CRITICAL 

INFRASTRUCTURE 

PROTECTION

Summary of DHS Actions to 

Better Manage Its Chemical 

Security Program 

Statement of Stephen L. Caldwell, Director

Homeland Security and Justice 

Testimony

Before the Subcommittee on Homeland 

Security, Committee on Appropriations, 

House of Representatives

For Release on Delivery 

Expected at 10:00 a.m. EDT

Thursday, September 20, 2012

GAO-12-1044T

United States Government Accountability Office

GAO
United States Government Accountability Office

Highlights of GAO-12-1044T, a testimony 

before the Subcommittee on Homeland 

Security, Committee on Appropriations, House 

of Representatives. 

September 2012 

CRITICAL INFRASTRUCTURE PROTECTION

Summary of DHS Actions to Better Manage Its 

Chemical Security Program

Why GAO Did This Study

The events of September 11, 2001, 

triggered a national re-examination of 

the security of facilities that use or 

store hazardous chemicals in 

quantities that, in the event of a 

terrorist attack, could put large 

numbers of Americans at risk of 

serious injury or death. As required by 

statute, DHS issued regulations that 

establish standards for the security of 

high-risk chemical facilities. DHS 

established the CFATS program to 

assess the risk posed by these 

facilities and inspect them to ensure 

compliance with DHS standards. ISCD, 

a division of IP, manages the program. 

A November 2011 internal ISCD 

memorandum, prepared by ISCD 

senior managers, expressed concerns 

about the management of the program. 

This statement addresses (1) how the 

memorandum was developed and any

challenges identified, (2) what actions 

are being taken in response to any 

challenges identified, and (3) the 

extent to which ISCD’s proposed 

solutions require collaboration with 

NPPD or IP. GAO’s comments are 

based on recently completed work 

analyzing the memorandum and 

related actions. GAO reviewed laws, 

regulations, DHS’s internal 

memorandum and action plans, and 

related documents, and interviewed 

DHS officials.

In a July 2012 report, GAO 

recommended that ISCD explore 

opportunities to develop measures, 

where practical, to determine where 

actual performance deviates from 

expected results. ISCD concurred and 

has taken action to address the 

recommendation.

What GAO Found

The November 2011 memorandum that discussed the management of the 

Chemical Facility Anti-Terrorism Standards (CFATS) program was prepared 

based primarily on the observations of the former Director of the Department of

Homeland Security’s (DHS) Infrastructure Security Compliance Division (ISCD), 

a division of the Office of Infrastructure Protection (IP) within the National 

Protection and Programs Directorate (NPPD). The memorandum was intended to 

highlight various challenges that have hindered ISCD efforts to implement the 

CFATS program. According to the former Director, the challenges facing ISCD 

included not having a fully developed direction and plan for implementing the 

program, hiring staff without establishing need, and inconsistent ISCD 

leadership—factors that the Director believed place the CFATS program at risk.

These challenges centered on three main areas: (1) human capital issues, 

including problems hiring, training, and managing ISCD staff; (2) mission issues, 

including problems reviewing facility plans to mitigate security vulnerabilities; and 

(3) administrative issues, including concerns about NPPD and IP not supporting 

ISCD’s management and administrative functions.

ISCD has begun to take various actions intended to address the issues identified 

in the ISCD memorandum and has developed a 94-item action plan to track its 

progress. According to ISCD managers, the plan appears to be a catalyst for 

addressing some of the long-standing issues the memorandum identified. As of 

June 2012, ISCD reported that 40 percent (38 of 94) of the items in the plan had 

been completed. These include requiring ISCD managers to meet with staff to 

involve them in addressing challenges, clarifying priorities, and changing ISCD’s 

culture; and developing a proposal to establish a quality control function over 

compliance activities. The remaining 60 percent (56 of 94) that were in progress

include those requiring longer-term efforts—i.e., streamlining the process for 

reviewing facility security plans and developing facility inspection processes; 

those requiring completion of other items in the plan; or those awaiting action by 

others, such as approvals by ISCD leadership. ISCD appears to be heading in 

the right direction, but it is too early to tell if individual items are having their

desired effect because ISCD is in the early stages of implementing them and has 

not yet established performance measures to assess results. 

According to ISCD officials, almost half of the action items included in the June 

2012 action plan require ISCD collaboration with or action by NPPD and IP. The 

ISCD memorandum stated that IP and NPPD did not provide the support needed 

to manage the CFATS program when the program was first under development. 

ISCD, IP, and NPPD officials confirmed that IP and NPPD are now providing 

needed support and stated that the action plan prompted them to work together 

to address the various human capital and administrative issues identified.

View GAO-12-1044T. For more information, 

contact Stephen L. Caldwell, (202) 512-9610, 

CaldwellS@gao.gov. 
 

Page 1 GAO-12-1044T 

Chairman Aderholt, Ranking Member Price, and Members of the 

Subcommittee:

I am pleased to be here today to discuss the Department of Homeland 

Security’s (DHS) efforts to address the various challenges in 

implementing and managing the Chemical Facility Anti-Terrorism 

Standards (CFATS) program. My statement today summarizes the 

testimony I delivered on July 26, 2012, before this Subcommittee.1 The 

events of September 11, 2001, triggered a national re-examination of the 

security of facilities that use or store hazardous chemicals in quantities 

that, in the event of a terrorist attack, could put large numbers of 

Americans at risk of serious injury or death. Chemicals held at these 

facilities can be used to cause harm to surrounding populations during 

terrorist attacks; can be stolen and used as chemical weapons or as 

precursors (the ingredients for making chemical weapons); or stolen and 

used to build an improvised explosive device. To mitigate this risk, the 

DHS appropriations act for fiscal year 20072 required DHS to issue 

regulations to establish risk-based performance standards for securing 

high-risk chemical facilities, among other things.3

A November 2011, internal ISCD memorandum, prepared by ISCD’s 

former Director in consultation with the former Deputy Director

DHS established the 

CFATS program to assess the risk, if any, posed by chemical facilities; 

place high-risk facilities in one of four risk-based tiers; require high-risk 

facilities to develop security plans; review these plans; and inspect the 

facilities to ensure compliance with the regulatory requirements. DHS’s 

National Protection and Programs Directorate (NPPD) is responsible for 

the CFATS program. Within NPPD, the Infrastructure Security 

Compliance Division (ISCD), a division of the Office of Infrastructure 

Protection (IP), manages the program.

4

 

1

GAO, Critical Infrastructure Protection: DHS Is Taking Action to Better Manage Its 

Chemical Security Program, but It Is too Early to Assess Results, 

and 

GAO-12-515T 

(Washington, D.C.: July 2012).

2

Pub. L. No. 109-295, § 550, 120 Stat. 1355, 1388 (2006).

3

According to DHS, a high-risk chemical facility is one that, in the discretion of the 

Secretary of Homeland Security, presents a high risk of significant adverse consequences 

for human life or health, national security, or critical economic assets if subjected to a 

terrorist attack, compromise, infiltration, or exploitation. 6 C.F.R. § 27.105.

4

The ISCD director who prepared the internal memorandum is no longer in that position, 

and the deputy director who assisted with the internal memorandum is now the director. 

 
 

Page 2 GAO-12-1044T 

designated by DHS as “for official use only” (FOUO), expressed concerns 

about the management of the CFATS program. The ISCD memorandum, 

which was leaked to the media in December 2011, cited an array of 

challenges that, according to these officials, hindered ISCD’s ability to 

implement and manage the CFATS program.5

This statement is based on work we recently completed for this 

subcommittee on the ISCD memorandum and related actions. To conduct 

this work, we reviewed applicable laws and regulations, as well as NPPD, 

IP, and ISCD policies and procedures for administering the CFATS 

program, analyzed the ISCD memorandum prepared by the former ISCD 

Director in consultation with the former Deputy Director, compared it with 

the proposed action plan ISCD officials prepared to address the 

challenges identified, and compared subsequent action plans to monitor 

ISCD’s progress.

My statement today 

discusses: (1) how the memorandum was developed and what 

challenges were identified; (2) what actions are being taken to address 

the challenges identified; and (3) the extent to which ISCD’s planned 

actions and proposed solutions require action to be taken by or in 

collaboration with NPPD or IP.

6

We conducted this performance audit from February 2012 to July 2012 in 

accordance with generally accepted government auditing standards. 

Those standards require that we plan and perform the audit to obtain 

sufficient, appropriate evidence to provide a reasonable basis for our 

findings and conclusions based on our audit objectives. We believe that 

the evidence obtained provides a reasonable basis for our analysis based 

on our audit objectives.

 Our results are based on the ISCD’s action plan as of 

June 2012 so these results reflect the status of ISCD’s progress up to that 

point in time. The details of our scope and methodology can be found in 

our July 2012 statement. In August 2012, ISCD provided us with an 

updated action plan which we used to document the additional action 

items completed between June 2012 and August 2012. We did not verify 

that the status of these action items.

 

5

According to DHS officials, the ISCD memorandum was never intended to be publically 

released.

6

We initially reviewed an ISCD action plan developed in January 2012. ISCD periodically 

updated the plan to monitor progress on the action items and we reviewed 8 versions of 

the action plan up to and including one developed in June 2012. 
 

Page 3 GAO-12-1044T 

Section 550 of the DHS appropriations act for fiscal year 20077 requires 

DHS to issue regulations establishing risk-based performance standards8

for the security of facilities that the Secretary determines to present high 

levels of security risk, among other things. The CFATS rule was published 

in April 20079 and Appendix A to the rule, published in November 2007, 

listed 322 chemicals of interest and the screening threshold quantities for 

each.10 ISCD has direct responsibility for implementing DHS’s CFATS rule, 

including assessing potential risks and identifying high-risk chemical 

facilities, promoting effective security planning, and ensuring that final highrisk facilities meet the applicable risk-based performance standards 

through site security plans approved by DHS. ISCD is managed by a 

Director and a Deputy Director and operates five branches that are, among 

other things, responsible for information technology operations, policy and 

planning, and providing compliance and technical support. From fiscal 

years 2007 through 2012, DHS dedicated about $442 million to the CFATS 

program. During fiscal year 2012, ISCD was authorized 242 full-timeequivalent positions. For fiscal year 2013, DHS’s budget request for the 

CFATS program was $75 million and 242 positions.

 

7

Pub. L. No. 109-295, § 550, 120 Stat. 1355, 1388 (2006).

8

The CFATS rule establishes 18 risk-based performance standards that identify the areas 

for which a facility’s security posture are to be examined, such as perimeter security, 

access control, and cyber security. To meet these standards, facilities are free to choose 

whatever security programs or processes they deem appropriate so long as DHS 

determines that the facilities achieve the requisite level of performance in each applicable 

standard.

9

72 Fed. Reg. 17,688 (Apr. 9, 2007) (codified at 6 C.F.R. pt. 27).

1072 Fed. Reg. 65,396 (Nov. 20, 2007). According to DHS, CFATS not only covers 

facilities that manufacture chemicals but also covers facilities that store or use certain 

chemicals as part of their daily operations. This can include food-manufacturing facilities 

that use chemicals of interest in the manufacturing process, farms that use certain 

quantities of ammonium nitrate or urea fertilizers, or universities that use chemicals to do 

experiments.

Background
 

Page 4 GAO-12-1044T 

Our review of the ISCD memorandum and discussions with ISCD officials 

showed that the memorandum was developed during the latter part of 

2011 and was developed primarily based on discussions with ISCD staff 

and the observations of the ISCD former Director in consultation with the 

former Deputy Director. In November 2011, the former Director and 

Deputy Director provided the Under Secretary with the ISCD 

memorandum entitled “Challenges Facing ISCD, and the Path Forward.” 

These officials stated that the memorandum was developed to inform 

leadership about the status of ISCD, the challenges it was facing, and the 

proposed solutions identified to date. In transmitting a copy of the 

memorandum to congressional stakeholders following the leak in 

December 2011, the NPPD Under Secretary discussed caveats about the 

memorandum, including that it had not undergone the normal review 

process by DHS’s Executive Secretariat and contained opinions and 

conclusions that did not reflect the position of DHS.

The former ISCD Director stated that the memo was intended to begin a 

dialog about the program and challenges it faced. The former Director 

confirmed that she developed the memorandum by (1) surveying division 

staff to obtain their opinions on program strengths, challenges, and 

recommendations for improvement; (2) observing CFATS program 

operations, including the security plan review process; and (3) analyzing 

an internal DHS report on CFATS operations,11

 

11DHS Office of Compliance and Security, National Protection and Programs Directorate, 

Infrastructure Security Compliance Division (ISCD) Program Inspection, April-September, 

2011. 

which, according to the 

former Director served as a basis for identifying some administrative 

Senior ISCD Leaders 

Developed the ISCD 

Memorandum to 

Highlight Various 

Challenges Hindering 

CFATS 

Implementation

ISCD’s Memorandum 

Based Largely on 

Observations of Senior 

ISCD Managers 
 

Page 5 GAO-12-1044T 

challenges and corrective action. The senior ISCD and NPPD officials we 

contacted said that they generally agreed with the material that they saw, 

but noted that they believed the memorandum was missing context and 

balance. For example, one NPPD official stated that that the tone of the 

memorandum was too negative and the problems it discussed were not 

supported by sound evaluation. However, the official expressed the view 

that the CFATS program is now on the right track.

The ISCD memorandum discussed numerous challenges that, according to 

the former Director, pose a risk to the program. The former Director pointed 

out that, among other things, ISCD had not approved any site security 

plans or carried out any compliance inspections on regulated facilities. The 

former Director attributed this to various management challenges, including 

a lack of planning, poor internal controls, and a workforce whose skills were 

inadequate to fulfill the program’s mission, and highlighted several 

challenges that have had an impact on the progress of the program. In 

addition, the memorandum provided a detailed discussion of the issues or 

problems facing ISCD, grouped into three categories: (1) human capital 

management, such as poor staffing decisions; (2) mission issues, such as 

the lack of an established inspection process; and (3) administrative issues, 

such as a lack of infrastructure and support, both within ISCD and on the 

part of NPPD and IP.

ISCD is using an action plan to track its progress addressing the 

challenges identified in the memorandum, and, according to senior 

division officials, the plan may be helping them address some legacy 

issues that staff were attempting to deal with before the memorandum 

was developed. The January 2012 version of the proposed action plan 

listed 91 actions to be taken categorized by issue—human capital 

management issues, mission issues, or administrative issues—that, 

according to the former ISCD Director, were developed to be consistent 

with the ISCD memorandum. However, the January 2012 version of the 

ISCD Management Was 

Concerned That 

Challenges Place the

CFATS Program at Risk

ISCD Has Begun to 

Take Various Actions 

Intended to Address 

Challenges Identified

ISCD’s Action Plan 

Included Time Frames and 

Appears to be Helping 

Address Some Legacy 

Issues
 

Page 6 GAO-12-1044T 

action plan did not provide information on when the action was started or 

to be finished. Eleven of the 12 ISCD managers (other than the former 

Director and Deputy Director) assigned to work as the coordinators of the 

individual action items told us that even though they were not given the 

opportunity to view the final version of the ISCD memorandum, the former 

Director provided them the sections of the action plan for which they were 

responsible to help them develop and implement any corrective actions. 

They said that they agreed that actions being taken in the plan were 

needed to resolve challenges facing ISCD. Our discussions with these 

officials also showed that about 39 percent (37 of 94) of the items in the 

March and June 2012 action plans addressed some legacy issues that 

were previously identified and, according to these officials, corrective 

actions were already underway for all 37 of these items.

Our analysis of the June 2012 version of the ISCD action plan showed 

that 40 percent of the items in the plan (38 of 94) had been completed. 

The remaining 60 percent (56 of 94) were in progress. Of the 38 

completed items, we determined that 32 were associated with human 

capital management and administrative issues, including those involving 

culture and human resources, contracting, and documentation. The 

remaining 6 of 38 action items categorized by ISCD as completed were 

associated with mission issues. Figure 1 shows the status of action items 

by each of the three categories as of June 2012.

ISCD’s June 2012 Plan 

Update Showed 38 Action 

Items Completed
 

Page 7 GAO-12-1044T 

Figure 1: Status of ISCD Action Plan by Category, as of June 2012

For the remaining 56 items that were in progress as of June 2012, 40 

involved human capital management and administrative issues.

According to ISCD officials, these 40 issues generally involved longerterm efforts—such as organizational realignment—or those that require 

approval or additional action on the part of IP or NPPD. Sixteen of 56 

remaining actions items in progress covered mission issues that will likely 

also require long-term efforts to address.

As of August 2012, ISCD reported that it had completed another 21 action 

items, of which 8 were to address mission-related issues. We did not 

verify ISCD’s efforts to complete actions since June 2012. However, we 

have recently begun a follow-up review of CFATS at the request of this 

and other committees, which will focus on DHS’s efforts to address 

mission-related issues. We expect to report the results of these efforts 

early in 2013.
 

Page 8 GAO-12-1044T 

Our analysis of the April and June versions of the plan shows that the 

division had extended the estimated completion dates for nearly half of 

the action items. Estimated completion dates for 52 percent (48 of 93 

items)12

 

12ISCD data showed that 93 of 94 action items were consistent between the April 2012 

and June 2012 action plans; therefore, computation of the estimated completion dates 

was based on 93 total items. One action item in the April 2012 plan dealing with strategies 

for managing ISCD funding levels was removed from the June 2012 plan because after 

the analysis was prepared and submitted to NPPD, the decision was made to delete the 

item from the plan. The funding action item was replaced in the June 2012 action plan with 

an action item to conduct a peer review of the facility tiering process and formula. For 

purposes of this analysis, we used the 93 action items (instead of 94 action items) that 

were consistent between the April and June 2012 action plans. 

either did not change (37 items) or the date displayed in the June 

2012 plan was earlier than the date in the April 2012 version of the plan 

(11 items). Conversely, 48 percent (45 of 93) of the items in the June 

2012 version of the plan had estimated completion dates that had been 

extended beyond the date in the April 2012 plan. Figure 2 shows the 

extent to which action plan items were completed earlier than planned, 

did not change, or were extended, from April 2012 through June 2012, for 

the human capital management, mission, and administrative issues 

identified in the plan.

Almost Half of ISCD’s 

Action Item Completion 

Dates Had Been Extended 

since April 2012
 

Page 9 GAO-12-1044T 

Figure 2: Change in CFATS Action Plans Estimated Completion Dates from April 2012 to June 2012

a

ISCD data showed that 93 of 94 action items were consistent between the April 2012 and June 2012 

action plans, therefore, computation of the estimated completion dates was based on 93 total items. 

One action item in the April 2012 plan dealing with strategies for managing ISCD funding levels was 

removed from the June 2012 plan because after the analysis was prepared and submitted to NPPD, 

the decision was made to delete the item from the plan. The funding action item was replaced in the 

June 2012 with an action item to conduct a peer review of the facility tiering process and formula. For 

purposes of this analysis, we used the 93 action items that were consistent between the April and 

June 2012 action plans. 

ISCD officials told us that estimated completion dates had been extended 

for various reasons. For example, one reason for moving these dates was 

that the work required to address some items was not fully defined when 

the plan was first developed and as the requirements were better defined, 

the estimated completion dates were revised and updated. In addition, 

ISCD officials also stated that timelines had been adversely affected for 

some action items because staff had been reassigned to work on higher 

priority responsibilities, such as reducing the backlog of security plans 

under review.
 

Page 10 GAO-12-1044T 

ISCD, through its action plan, appears to be heading in the right direction 

towards addressing the challenges identified, but it is too early to tell if the 

action plan is having the desired effect because (1) the division had only 

recently completed some action items and continues to work on 

completing more than half of the others, some of which entail long-term 

changes, and (2) ISCD had not yet developed an approach for measuring 

the results of its efforts. ISCD officials told us that they had not yet begun 

to plan or develop any measures, metrics, or other documentation 

focused on measuring the impact of the action plan on overall CFATS 

implementation because they plan to wait until corrective action on all 

items has been completed before they can determine the impact of the 

plan on the CFATS program. For the near term, ISCD officials stated that 

they plan to assess at a high level the impact of the action plan on 

CFATS program implementation by comparing ISCD’s performance rates 

and metrics pre-action plan implementation and post-action plan 

implementation.13

In our July 2012 statement, we recommended that ISCD look for 

opportunities, where practical, to measure results of their efforts to 

implement particular action items, and where performance measures can 

be developed, periodically monitor these measures and indicators to 

identify where corrective actions, if any, are needed. The agency 

concurred with our recommendation and developed a new action item 

(number 95) intended to develop metrics for measuring, where practical, 

results of efforts to implement action plan items, including processes for 

periodic monitoring and indicators for corrective actions. This action item 

is in progress.

However, because ISCD will not be completing some 

action items until 2014, it will be difficult for ISCD officials to obtain a 

complete understanding of the impact of the plan on the program using 

this comparison only.

 

13According to ISCD officials, ISCD uses a performance measure to track the 

performance of the CFATS program overall, but as of June 2012 did not have 

performance measures in place to track the progress of the action plan, or particular 

action items.

Action Plan Performance 

Measures Could Help 

Gauge Progress
 

Page 11 GAO-12-1044T 

According to ISCD officials, almost half of the action items included in the 

June 2012 action plan either require ISCD to collaborate with NPPD and IP 

or require NPPD and IP to take action to address the challenges identified 

in the ISCD memorandum. NPPD, IP, and ISCD officials have been 

working together to identify solutions to the challenges the memorandum 

identified and to close pertinent action items. According to division officials, 

46 of the 94 action items included in the June 2012 action plan required 

action either by NPPD and IP or collaboration with NPPD and IP. This 

includes collaborating with NPPD officials representing the NPPD human 

capital, facilities, and employee and labor relations offices, among others, 

and with IP’s Directorate of Management Office.14 As of June 2012, 13 of 

the 46 items that require action by or collaboration with NPPD or IP were 

complete; 33 of 46 were in progress. As of August 2012, ISCD reported 

that it had completed 8 more of these action items, such that 21 of the 46 

were complete and 25 were in progress. We did not verify ISCD’s efforts to 

close these additional action items.

Chairman Aderholt, Ranking Member Price, and members of the 

subcommittee, this completes my prepared statement. I would be happy 

to respond to any questions you may have at this time.

For information about this statement please contact Steven L. Caldwell, 

Director, Homeland Security and Justice, at (202) 512-9610 or 

CaldwellS@gao.gov. Contact points for our Offices of Congressional 

Relations and Public Affairs may be found on the last page of this 

statement. Other individuals making key contributions include John F. 

Mortin, Assistant Director; Ellen Wolfe, Analyst-in-Charge; Charles 

Bausell; Jose Cardenas; Andrew M. Curry; Michele Fejfar; Tracey King; 

Marvin McGill; Mona E. Nichols-Blake; and Jessica Orr.

 

14The IP Directorate of Management Office is responsible for providing IP divisions with 

program management support such as training and facilities management. 

ISCD Officials Stated 

That Almost Half of 

the Action Items 

Required 

Collaboration with or 

Action by NPPD or IP

GAO Contact and 

Staff 

Acknowledgements

(441111)
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