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Terrorism and Drug Trafficking: Threats and Roles of Explosives and Narcotics Detection Technology (Briefing Report, 03/27/96,
GAO/NSIAD/RCED-96-76BR).
The ability to detect explosives and narcotics is increasingly important to U.S. national security. In response to your request, we are providing information on the first phase of our review, which focused on (1) the threats of terrorist attacks to civil aviation and of narcotics trafficking in the United States, (2) strategies developed to meet these threats, and (3) planned detection technology deployments to combat terrorism and interrupt the shipment of narcotics. The second phase of our work will cover technology development and both domestic and overseas deployment. The third will cover impediments to more widespread deployment.
Cover
===================================== COVER
Briefing Report to Congressional Requesters
March 1996
TERRORISM AND DRUG TRAFFICKING -
THREATS AND ROLES OF EXPLOSIVES
AND NARCOTICS DETECTION TECHNOLOGY
GAO/NSIAD/RCED-96-76BR
GAO/NSIAD/RCED-96-76BR
Terrorism and Drug Trafficking
(341459/705128)
As you requested, we limited our efforts to ports of entry into the United States, including airports. On November 7, 1995, we briefed your staff on the results of this phase of our work. This report summarizes and updates the information presented in that briefing.
BACKGROUND
------------------------------------------------------------ Letter :1
The threats posed by terrorists' use of explosives and by narcotics trafficking differ in significant ways. The bombing of an aircraft is still a rare event, but the consequences are catastrophic. By
contrast, narcotics trafficking is a frequent occurrence and a single shipment has far different consequences than an aircraft bombing.
The Federal Aviation Administration (FAA) is responsible for defining the level of threat to civil aviation security, based upon assessments from law enforcement and intelligence agencies, and
prescribing countermeasures, but airlines and airports are responsible for implementing those measures. Unlike aviation security, narcotics countermeasures are the responsibility of many
agencies at all levels of government. The FAA is developing explosives detection technology to aid in countering threats to aviation. The U.S. Customs Service, the Department of Defense
(DOD), and the Office of National Drug Control Policy (ONDCP), which coordinates counterdrug enforcement research and development within
the government, are participating in developing nonintrusive detection technology to aid in countering narcotics trafficking.
RESULTS IN BRIEF
------------------------------------------------------------ Letter :2
The intelligence community believes that the threat of terrorism within the United States has increased. Although no specific aviation threat is known, experts believe that aviation is likely to
remain an attractive target for terrorists. According to the Federal Bureau of Investigation (FBI), terrorist attacks could come from
groups that are difficult to infiltrate and control. Information was uncovered in January 1995 about plans by such a group for multiple attacks on specific U. S. flights in Asia. Narcotics trafficking
is a continuing concern. While cocaine has been the primary threat since 1985, heroin is becoming more of a threat. The intelligence community believes traffickers are presently most active on the Southwest border of the United States and use vehicles such as cars, trucks, and tractor-trailers carrying containers to smuggle narcotics.
To counter these threats, the FAA and Customs have developed strategies that rely on intelligence information; various procedures, such as profiling and targeting high-risk shipments for examination;
and technologies. The FAA relies on a strategy of "tailored response" to mandate security procedures commensurate with the level
of threat at specific places and times. The terrorist threat overseas is higher, and therefore, the FAA mandated more stringent security measures for international flights, including use of
conventional X-ray screening for checked baggage. Customs' strategy includes disseminating intelligence on drug trafficking, targeting high-threat conveyances and cargoes, and using detection technologies; the current emphasis is on the Southwest border and
particularly on trucks, private vehicles, and their contents.
Concealed explosives and narcotics are difficult to detect using technologies currently deployed in the United States. Tests of conventional X-ray screening conducted by the FAA in May 1994 showed that there is a low probability of detecting a moderately sophisticated explosive device. Since then, the FAA has certified an advanced automated explosive detection system, but has not required deployment of that system. The FAA's preliminary estimates are that the cost of purchasing and installing the system at the 75 busiest domestic airports could range from $400 million to $2.2 billion, depending on the mix of technologies and procedures. Customs has one
truck X-ray system at the Southwest border for detecting narcotics and plans to acquire others at a total cost of about $38 million.
Its plans for seaports and the use of mobile systems have not been clearly defined. Other countries, such as the United Kingdom and
France, are already deploying advanced technologies intended for explosives or narcotics detection.
Briefing section I provides more details about threats to aviation and the role of detection technology to counter terrorism. Briefing
section II deals with the drug trafficking and the technology to detect drugs.
AGENCY COMMENTS
------------------------------------------------------------ Letter :3
FAA, ONDCP, DOD, Customs, Central Intelligence Agency (CIA), Department of Justice, FBI, and Drug Enforcement Administration (DEA)
reviewed the information in a draft of this report and provided oral comments. They generally agreed with the facts presented and their
suggested technical corrections have been incorporated where appropriate.
SCOPE AND METHODOLOGY
------------------------------------------------------------ Letter :4
To obtain information for this report, we met with officials from 17 departments and agencies, including the FAA, Customs, and major agencies in the counterterrorism and counternarcotics communities.
In order to identify the threats of terrorist attacks to civil aviation and of narcotics trafficking in the United States, we interviewed officials and obtained documentation primarily from the
CIA; the FBI; the FAA; the ONDCP; Customs; and the DEA. As a part of this effort, we analyzed studies prepared by the FAA and DEA to
identify the greatest vulnerabilities to both ensuring civil aviation safety and interdicting narcotics. We also reviewed strategies
developed by the FAA and Customs and identified the mix of intelligence, procedures and technologies needed to defeat their respective threats. Finally, we met with FAA and Customs officials to discuss their plans to acquire detection technologies and reviewed their plans to acquire these technologies. Where possible, we made
site visits and observed the detection technologies actually being used to detect explosives or narcotics.
We performed this first phase of work between May 1995 and February 1996 in accordance with generally accepted government auditing
standards.
---------------------------------------------------------- Letter :4.1
As arranged with your office, unless you publicly announce its contents earlier, we plan no further distribution of this report until 30 days from its issue date. At that time, we will send copies
to the Chairmen, Senate and House Committees on Budget, on Appropriations, and on Transportation; Senate Armed Services
Committee and House National Security Committee; and Senate Finance
Committee and House Ways and Means Committee; the Secretary of
Defense; the Administrators, FAA and Drug Enforcement Administration; the Commissioner, U.S. Customs Service; the Directors, ONDCP, CIA,
and FBI; and the Attorney General, Department of Justice. Copies will also be made available to others upon request.
If you or your staffs have any questions concerning terrorism or drug trafficking issues, please contact Louis Rodrigues at (202) 512-4841.
If you have specific questions regarding aviation security or FAA programs, please contact John Anderson, Jr., at (202) 512-2834.
Major contributors to this report are listed in appendix I.
Louis J. Rodrigues
Director, Defense Acquisitions Issues,
National Security and
International Affairs Division
John H. Anderson, Jr.,
Director, Transportation and
Telecommunications Issues,
Resources, Community, and Economic
Development Division
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Posted on: 2007-06-28 08:56:24