Passenger Ferry Security, New GAO Report Issued

A Letter from Stephen L. Caldwell, Director

Maritime Security and Coast Guard Issues
Homeland Security and Justice Issues
US Government Accountability Office

December 3, 2010

Today, the U.S. Government Accountability Office (GAO) released its report on passenger ferry security…

Maritime Security: Ferry Security Measures Have Been Implemented, but Evaluating Existing Studies Could Further Enhance Security (see below).

This is a public version of a classified report and is the second of two reports on high capacity passenger vessels. The first report was on cruise ship security (see Maritime Security: Varied Actions Taken to Enhance Cruise Ship Security, but Some Concerns Remain, GAO-10-400 at www.gao.gov/cgi-bin/getrpt?GAO-10-400). For the ferry report, GAO’s objectives were to examine (1) the extent to which the U.S. Coast Guard has assessed and identified key risks; and (2) actions that Coast Guard and other maritime stakeholders have taken to mitigate risks and implement applicable security requirements; and what additional actions could be taken to further enhance security.

By way of background, ferries are an important component of the U.S. transportation system and, according to respondents to the 2008 National Census of Ferry Operators, carried more than 82 million passengers and over 25 million vehicles that year. Ferries are also potential targets for terrorism in the United States and have already been targets overseas. In the Philippines, terrorist have repeatedly attempted to attack ferries and successful bombings in 2004 and 2005 killed or wounded more than one hundred people. Terrorist have also successfully attacked mass transit systems in Europe and ferries are part of the mass transit system in the United States. A 2006 RAND study stated that ferries are inherently attractive to terrorist because attacks are easy to execute, have the potential to kill many people, and are likely to get significant media attention.

Regarding the assessment and identification of key risks to ferries, federal officials reported to GAO that there had been no recent credible threats against ferries in the United States. However, they noted the existence of terrorist groups with the capability to attack ferries. The Coast Guard has takes a variety of steps to assesses risks to vessels and port infrastructure, including ferries and ferry facilities. To better prevent and respond to an attack at a port, the Coast Guard prepares Area Maritime Security Plans, which describe operational and physical security measures, communications procedures, time frames for responding to security threats, and other actions. The Coast Guard also reviews and approves ferry and ferry facility operators’ security plans—plans operators are required by federal law to devise and implement—and inspects ferries and facilities to ensure security concerns are addressed and that operators are complying with their respective plans. Maritime stakeholders, including the Coast Guard and operators of ferries and their facilities reported various security risks, chief among them being attacks with improvised explosive devices carried by vehicles, passengers or small boats.

Regarding actions to improve ferry security, maritime stakeholders are doing a variety of things to protect ferries and their facilities against terrorist threats. At the federal level, the Coast Guard performs escorts of ferries as they traverse critical port areas and provides a security presence by boarding and riding ferries. The Coast Guard also established screening requirements, which ferry and ferry facility operators incorporate into their security plans. While these requirements set forth the frequency with which screening must be conducted, ferry operators are permitted to select the screening methods and personnel. The Transportation Security Administration supports ferry security by demonstrating a security presence using its Visible Intermodal Prevention and Response (VIPR) teams, providing training to maritime stakeholders, and implementing pilot programs for screening technologies. For international ferries, Customs and Border Protection inspects ferries, cargo, vehicles, passengers and crew upon arrival in U.S. ports. These efforts include using radiation detection monitors for cargo and vehicles, and interviewing passengers and crew.

In addition to federal-level activities, ferry and ferry facility operators act to protect ferries and ferry facilities against attacks by conducting random searches of vehicles and passengers; monitoring and securing ferries, facilities, and surrounding areas; and informing passengers about security operations and potential risks. GAO found that various screening methods are being used, including foot patrols and canine patrols. Such screening is carried out by a mix of ferry and facility employees, security contractors, and law enforcement officers. GAO found that in some cases, ferry systems have their own police to help address security concerns. State and local law enforcement also support ferry operators by conducting canine screening and providing a security presence both on board ferries and in ferry facilities and, in some locations, they assist the Coast Guard in escorting ferries.

In terms of additional enhancements, GAO found that in spite of the actions currently being taken to secure ferry systems, more can be done. The Coast Guard initiated five studies to conduct more comprehensive research and development to enhance security on ferries. Although the studies were completed in 2005 and 2006 and included several findings and recommendations, the Coast Guard has still not evaluated them. GAO recommended that the Coast Guard go back and evaluate the completed studies to determine if further actions are necessary. GAO also found that the Coast Guard had not followed its own guidance to periodically evaluate and revise screening requirements for ferries. Thus, GAO also recommended that the Coast Guard reassess vehicle screening requirements and revise them as appropriate. The Department of Homeland Security and Coast Guard concurred with GAO’s recommendations.

For more information visit http://www.gao.gov/products/GAO-11-207
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