SLD manages three programs: the Megaports Initiative, the Core Program, and the Sustainability Program. The Core Program funds the installation of radiation detection equipment at land borders, airports, and strategic seaports—primarily in Russia, other former Soviet Union countries, and Eastern Europe. The Sustainability Program supports both the Megaports Initiative and the Core Program by overseeing the transition of radiation detection equipment from NNSA to partner countries. Figure 1 shows the organization of SLD. The Megaports Initiative is part of a broader U.S. government effort to prevent terrorists from acquiring, smuggling, and using special nuclear and other radioactive materials to develop a weapon of mass destruction or a dirty bomb. The Megaports Initiative coordinates with and complements DHS’s Container Security Initiative (CSI), a related program that targets and examines high-risk containers for weapons of mass destruction before they are shipped to the United States. CSI began operating in January 2002 and is active at 58 seaports around the world, including 29 seaports where the Megaports Initiative had completed Megaports as of August 2012. Under CSI, DHS places U.S. Customs and Border Protection officials at foreign seaports to review the cargo manifests of U.S.-bound shipping containers and identify high-risk containers for scanning with nonintrusive imaging systems—which use X-rays or gamma rays to scan a container and create images of the container’s contents without opening it. In some cases, CSI officers use handheld radiation detection equipment to collect additional information about the selected shipping containers. The Megaports Initiative and the CSI programs have some similarities, but they also have key differences, which are outlined in table 1. The Megaports Initiative 2011 Program Plan states that the Initiative has committed to providing radiation detection capability at all CSI ports, which will give CSI officials additional information in assessing high-risk containers. SLD, numerous DOE national laboratories,play a role in implementing the Megaports Initiative, as described in table 2. The Megaports team generally implements the Initiative at foreign seaports in three phases: (1) engagement, (2) implementation, and (3) sustainability. Engagement: Before installing equipment at a seaport, NNSA and the appropriate agency in the partner country enter into an arrangement that outlines the expectations, roles, and responsibilities of all stakeholders involved. When possible, NNSA attempts to establish a cost-sharing arrangement with partner countries. Implementation: This phase involves several different activities. The Megaports team surveys the port to help plan for the installation of radiation detection equipment. Moreover, the Megaports team begins, among other things, training foreign officials on operating radiation detection equipment, resolving alarms, and maintaining this equipment. During this phase, the Megaports team also (1) hires one of three approved private contractors that will lead the construction and communications services at the new Megaport, (2) drafts a sustainability and a joint transition plan, and (3) installs and tests the radiation detection equipment and prepares the equipment for operations. Sustainability: The Megaports team works with the partner country to develop the capabilities needed to sustain equipment operations and maintenance over the long-term. For example, the Megaports Initiative funds the maintenance of equipment during this phase and conducts additional training of foreign officials. NNSA officials also regularly visit the port to ensure that the equipment is properly calibrated and being used as intended. NNSA typically transfers ownership of and responsibility for radiation detection equipment operations and maintenance to partner countries after about 3 years. The Megaports Initiative provides partner countries with several types of radiation detection equipment that is used to scan shipping containers in primary or secondary scanning inspections. NNSA’s goal is to scan as much container traffic as possible with primary radiation detection equipment—including Radiation Portal Monitors (RPM), which are large stationary systems through which cargo containers and trucks pass as they are entering or exiting the port; Mobile Radiation Detection and Identification Systems (MRDIS), which are mobile radiation detection systems that can be driven to different locations at a seaport; and Radiation Detection Straddle Carriers (RDSC), which are mobile radiation detection systems that can scan rows of containers stacked up to three high. These types of equipment detect both gamma and neutron radiation, which is important for detecting the presence of highly enriched uranium and plutonium. When a container is scanned with primary equipment, an alarm will sound if the equipment detects the presence of radiation. However, during primary scanning, the equipment cannot identify what type of material triggered the alarm. If they determine it is necessary, foreign customs officials will then conduct a secondary inspection with a handheld Radioisotope Identification Device (RIID) or a Spectroscopic Portal Monitor (SPM) to specifically identify the source and location of the radiation. If the foreign customs officials cannot determine the content of the container after the secondary inspection, they may manually inspect the container or request assistance from other agencies within their government. NNSA also provides partner countries with Personal Radiation Detectors (PRD), or pagers, which are small detectors that can be worn on an individual’s belt to continuously monitor radiation levels in the immediate area. PRDs help to ensure personal safety. For more detailed information about and photographs of the equipment NNSA provides partner countries, see appendix II. NNSA completed 42 Megaports as of August 2012 and plans to complete work at 3 additional ports by the end of fiscal year 2012, for a total of 45 Megaports at a cost of about $850 million. However, if proposed budget cuts are enacted, the Initiative’s plans to establish new Megaports would cease. As a result, NNSA has halted the implementation of new Megaports and is working with an interagency work group to determine an appropriate future scope for the program. NNSA had completed 42 Megaports as of August 2012 and plans to complete 3 additional ports by September 2012, according to NNSA officials, bringing the total to 45 operational Megaports by the end of fiscal year 2012. To ensure that countries are able to independently operate and maintain the radiation detection equipment after NNSA transfers the equipment, NNSA has (1) implemented a training program for foreign personnel operating the radiation detection equipment, (2) developed a sustainability program, and (3) developed new technology to address challenges faced at some ports. As of December 2011, NNSA had spent about $850 million on Megaports Initiative activities. The 42 completed Megaports and the 3 additional Megaports that are planned for completion by September 2012 are located in 33 countries throughout Europe, Asia, Latin America, Africa, and the Middle East. Figure 2 shows the countries where NNSA has either established a Megaport or plans to have completed work for one by the end of fiscal year 2012. (See app. III for a complete list of the Megaports and information about each port.) To help decision makers identify and prioritize foreign seaports for participation in the Megaports Initiative, NNSA uses a model that ranks foreign ports according to their relative attractiveness to potential nuclear smugglers. Currently, the model scores 1,100 foreign seaports on the basis of two categories: (1) scannable shipping volume, which accounts for 75 percent of the score, and (2) potential threat, which accounts for 25 percent of the score. Potential threat is determined on the basis of several factors, including the capabilities of terrorist groups within a country, amount of special nuclear material within a country, and the freedom of criminal groups to operate within a country. This information is then combined to provide each port with an overall score. Ports receiving higher scores are considered more attractive to a nuclear material smuggler and, therefore, of potentially higher interest for inclusion in the Initiative. The model is also updated regularly to incorporate new information. After the model produces a ranked list of ports that takes into consideration these factors and assumptions, NNSA officials work with the Department of State to ensure that U.S. diplomatic concerns are considered. For example, NNSA may not pursue ports in countries that do not have diplomatic relations with the United States. According to our analysis of NNSA’s priority list of ports, 18 of the 45 Megaports that are completed or under way (or 40 percent) are ranked lower in priority than the top 100 highest priority seaports NNSA identified. NNSA officials told us that the Initiative uses the priority list generated by the model as a targeting guide but noted that various factors affect which ports they can equip with radiation detection equipment. For example, some foreign governments with seaports identified as being of high-priority have been unwilling to participate in the Initiative because of internal political sensitivities. NNSA officials also told us that the DHS CSI ports are always added to the list regardless of ranking because of an arrangement between NNSA and DHS for the Megaports Initiative to provide radiation detection equipment at these ports. In addition, NNSA officials said that they choose some lower ranked ports if there are cost-sharing opportunities, if partner countries specifically request partnerships, or if NNSA is given an opportunity to demonstrate a new scanning approach—such as using the MRDIS to scan transshipped containers in Salalah, Oman. We last reported on the Megaports Initiative in March 2005. At that time, NNSA had completed work on two Megaports and faced diplomatic and other impediments that limited its ability to complete more Megaports in its first 2 years. In addition, we reported that NNSA officials faced difficulties reaching agreement with foreign countries due to political considerations outside of NNSA’s control. In October 2011, NNSA officials told us they continue to face these same limitations.