Case Study 17: From Aviation Security, GAO-11-740, July 12, 2011

Explosives in baggage represent a continuing threat to aviation security. To detect explosives, TSA used the Electronic Baggage Screening Program (EBSP) for checked baggage. To identify and resolve threats in checked baggage, the program includes the use of the explosives detection system (EDS) in conjunction with explosives trace detection (ETD) machines.

We analyzed EDS requirements, compared the EDS acquisition schedule against our best practices, and interviewed DHS officials. We found that TSA had faced challenges in procuring the first 260 EDSs to meet 2010 requirements. For example, the danger associated with some explosives challenged TSA and DHS in developing simulants and collecting data on the explosives’ physical and chemical properties. Vendors and agencies needed these data to develop detection software and test EDSs before acquisition. In addition, TSA’s decision to pursue EDS procurement during data collection complicated both efforts and resulted in a delay of over 7 months for the 2011 EDS procurement.

TSA could have helped avoid additional schedule delays by completing data collection for each phase of the 2010 requirements before pursuing EDS procurement that met those requirements. Although TSA had established a schedule for the 2011 EDS procurement, the schedule did not fully comply with our best practices, and TSA had not developed a plan to upgrade its EDS fleet to meet the 2010 requirements.