[Congressional Record Volume 161, Number 22 (Tuesday, February 10, 2015)]
[House]
[Pages H899-H903]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]
ESSENTIAL TRANSPORTATION WORKER IDENTIFICATION CREDENTIAL ASSESSMENT
ACT
Mr. CARTER of Georgia. Mr. Speaker, I move to suspend the rules and
pass the bill (H.R. 710) to require the Secretary of Homeland Security
to prepare a comprehensive security assessment of the transportation
security card program, and for other purposes.
The Clerk read the title of the bill.
The text of the bill is as follows:
H.R. 710
Be it enacted by the Senate and House of Representatives of
the United States of America in Congress assembled,
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Essential Transportation
Worker Identification Credential Assessment Act''.
SEC. 2. COMPREHENSIVE SECURITY ASSESSMENT OF THE
TRANSPORTATION SECURITY CARD PROGRAM.
(a) In General.--Not later than one year after the date of
enactment of this Act, the Secretary of Homeland Security
shall submit to the Committee on Homeland Security and the
Committee on Transportation and
[[Page H900]]
Infrastructure of the House of Representatives, the Committee
on Commerce, Science, and Transportation of the Senate, and
the Comptroller General of the United States a comprehensive
assessment of the effectiveness of the transportation
security card program under section 70105 of title 46, United
States Code, at enhancing security and reducing security
risks for facilities and vessels regulated pursuant to
section 102 of Public Law 107-295. Such assessment shall be
conducted by a national laboratory that, to the extent
practicable, is within the Department of Homeland Security
laboratory network with expertise in maritime security or by
a maritime security university-based center within the
Department of Homeland Security centers of excellence
network.
(b) Contents.--The comprehensive assessment shall include--
(1) an evaluation of the extent to which the program, as
implemented, addresses known or likely security risks in the
maritime environment;
(2) an evaluation of the extent to which deficiencies
identified by the Comptroller General have been addressed;
and
(3) a cost-benefit analysis of the program, as implemented.
(c) Corrective Action Plan; Program Reforms.--Not later
than 60 days after the Secretary submits the assessment under
subsection (a), the Secretary shall submit a corrective
action plan to the Committee on Homeland Security and the
Committee on Transportation and Infrastructure of the House
of Representatives and the Committee on Commerce, Science,
and Transportation of the Senate that responds to the
assessment under subsection (b). The corrective action plan
shall include an implementation plan with benchmarks, may
include programmatic reforms, revisions to regulations, or
proposals for legislation, and shall be considered in any
rule making by the Department relating to the transportation
security card program.
(d) Comptroller General Review.--Not later than 120 days
after the Secretary issues the corrective action plan under
subsection (c), the Comptroller General shall--
(1) review the extent to which such plan implements--
(A) recommendations issued by the national laboratory or
maritime security university-based center, as applicable, in
the assessment submitted under subsection (a); and
(B) recommendations issued by the Comptroller General
before the enactment of this Act; and
(2) inform the Committee on Homeland Security and the
Committee on Transportation and Infrastructure of the House
of Representatives and the Committee on Commerce, Science,
and Transportation of the Senate as to the responsiveness of
such plan to such recommendations.
(e) Transportation Security Card Reader Rule.--
(1) In general.--The Secretary of Homeland Security may not
issue a final rule requiring the use of transportation
security card readers until--
(A) the Comptroller General informs the Committees on
Homeland Security and the Committee on Transportation and
Infrastructure of the House of Representatives and Commerce,
Science and Transportation of the Senate that the submission
under subsection (a) is responsive to the recommendations of
the Comptroller General; and
(B) the Secretary issues an updated list of transportation
security card readers that are compatible with active
transportation security cards.
(2) Limitation on application.--Paragraph (1) shall not
apply with respect to any final rule issued pursuant to the
notice of proposed rulemaking on Transportation Worker
Identification Credential (TWIC)-Reader Requirements
published by the Coast Guard on March 22, 2013 (78 Fed. Reg.
17781)
(f) Comptroller General Oversight.--Not less than 18 months
after the date of the issuance of the corrective action plan
under subsection (c), and every six months thereafter during
the 3-year period following the date of the issuance of the
first report under this subsection, the Comptroller General
shall report to the Committee on Homeland Security and the
Committee on Transportation and Infrastructure of the House
of Representatives and the Committee on Commerce, Science,
and Transportation of the Senate regarding implementation of
the corrective action plan.
SEC. 3. NO ADDITIONAL FUNDS AUTHORIZED.
No additional funds are authorized to be appropriated to
carry out this Act and the amendments made by this Act, and
this Act and such amendments shall be carried out using
amounts otherwise available for such purpose.
The SPEAKER pro tempore. Pursuant to the rule, the gentleman from
Georgia (Mr. Carter) and the gentlewoman from Texas (Ms. Jackson Lee)
each will control 20 minutes.
The Chair recognizes the gentleman from Georgia.
General Leave
Mr. CARTER of Georgia. Mr. Speaker, I ask unanimous consent that all
Members have 5 legislative days within which to revise and extend their
remarks and include any extraneous material on the bill under
consideration.
The SPEAKER pro tempore. Is there objection to the request of the
gentleman from Georgia?
There was no objection.
Mr. CARTER of Georgia. Mr. Speaker, I yield myself such time as I may
consume.
I rise today in strong support of H.R. 710, the Essential
Transportation Worker Identification Credential Assessment Act.
First, I would like to thank the gentlelady from Texas (Ms. Jackson
Lee) for reintroducing this thoughtful legislation and the gentlewoman
from Michigan (Mrs. Miller) for her leadership in moving it through her
subcommittee last Congress.
Mr. Speaker, this legislation calls for a security assessment to
determine the efficacy of the Transportation Worker Identification
Credential, commonly known as the TWIC program. This bill will help
Congress better determine the value of the TWIC program and
simultaneously allow the Department to proceed with finalizing the
long-awaited card reader rule.
I support this bill under consideration on the floor today because it
responds to a key recommendation of the Government Accountability
Office that the TWIC program should have a baseline security assessment
before the program moves forward.
I have several thriving ports in my district, such as Savannah,
Brunswick, and Kings Bay. As many of my colleagues who also have ports
in their districts know, TWIC is a port security program that has been
wrought with constant delays and questions about its overall security
value.
Last Congress, the Border and Maritime Subcommittee held a hearing
with the Coast Guard, TSA, and GAO on the TWIC program and the ongoing
concerns therein, and this legislation is a result of that strong
oversight.
It may be hard to believe, but more than a decade after the
legislation that required TWIC was first enacted, there has been no
security or effectiveness assessment of the program to assess the
underlying assumptions of the security and access control concerns the
card was intended to mitigate.
This bill seeks to answer the simple question: How, if at all, does
TWIC improve maritime security? This should have been one of the very
first things the Department did when it began to implement this
program, and this bill ensures it is done.
The TWIC card was initially designed to prevent terrorists from
gaining access to sensitive parts of our Nation's ports through the use
of biometric-enabled credentials. However, with no biometric reader
regulations in place, the TWIC card is currently used as a flash pass
since most facilities and vessels are neither currently required to nor
voluntarily utilize biometric readers. The lack of biometric readers,
therefore, limits the effectiveness of this program.
For several years, members of the Homeland Security Committee have
been calling on the Department to release the card reader rule to
provide some certainty to workers and industry.
{time} 1915
The final rule to require TWIC readers to be used at the riskiest 5
percent of all TWIC-regulated vessels and facilities has not been
issued. The notice of proposed rulemaking was posted almost 2 years ago
which was nearly 6 years after workers were first required to pay for
and obtain a TWIC card.
The delays are so significant that workers have already had to renew
their biometric credentials in the time it has taken to issue
regulations on credential readers to actually utilize the biometric-
enabled technology. This is absurd.
While we all agree there is much room for improvement with the TWIC
program, putting it on hold for several more years would do more harm
than good. The business community has been preparing for this TWIC rule
for several years.
This bill would give them certainty about the requirements of the
TWIC program. It also allows the Coast Guard and TSA to continue their
efforts to deliver the port security program Congress expected years
ago.
Finally, Mr. Speaker, H.R. 710 requires the GAO to perform consistent
reviews of the TWIC program and to follow the changes the Department
makes as a result of the required assessment. This added level of
review
[[Page H901]]
will provide Congress with progress updates for future legislative
action.
The proposed rule and open GAO recommendations lead to some very
basic questions about mitigating threat, risk, and vulnerability at our
Nation's ports and how the TWIC program should be used effectively to
prevent a potential terrorist attack.
We have an obligation, Mr. Speaker, to get this right. I urge my
colleagues to support H.R. 710, and I reserve the balance of my time.
Committee on Transportation and Infrastructure, House of
Representatives,
Washington, DC, February 5, 2015.
Hon. Michael T. McCaul,
Chairman, Committee on Homeland Security, Washington, DC.
Dear Chairman McCaul: I write concerning H.R. 710, the
Essential Transportation Worker Identification Credential
Assessment Act. This legislation includes matters that fall
within the Rule X jurisdiction of the Committee on
Transportation and Infrastructure.
In order to expedite floor consideration of H.R. 710, the
Committee on Transportation and Infrastructure will forgo
action on this bill. However, this is conditional on our
mutual understanding that forgoing consideration of the bill
does not prejudice the Committee with respect to the
appointment of conferees or to any future jurisdictional
claim over the subject matters contained in the bill or
similar legislation that fall within the Committee's Rule X
jurisdiction. I request you urge the Speaker to name members
of the Committee to any conference committee named to
consider such provisions.
Please place a copy of this letter and your response
acknowledging our jurisdictional interest into the
Congressional Record during consideration of the measure on
the House floor.
Sincerely,
Bill Shuster,
Chairman.
____
House of Representatives, Committee on Homeland Security,
Washington, DC, February 5, 2015.
Hon. Bill Shuster,
Chairman, Committee on Transportation and Infrastructure,
Washington, DC.
Dear Chairman Shuster: Thank you for your letter regarding
H.R. 710, the ``Essential Transportation Worker
Identification Credential Assessment Act.'' I appreciate your
support in bringing this legislation before the House of
Representatives, and accordingly, understand that the
Committee on Transportation and Infrastructure will forego
action on the bill.
The Committee on Homeland Security concurs with the mutual
understanding that by foregoing consideration of this bill at
this time, the Committee on Transportation and Infrastructure
does not waive any jurisdiction over the subject matter
contained in this bill or similar legislation in the future.
In addition, should a conference on this bill be necessary, I
would support your request to have the Committee on
Transportation and Infrastructure represented on the
conference committee.
I will insert copies of this exchange in the Congressional
Record during consideration of this bill on the House floor.
I thank you for your cooperation in this matter.
Sincerely,
Michael T. McCaul,
Chairman, Committee on Homeland Security.
Ms. JACKSON LEE. Mr. Speaker, I rise in strong support of H.R. 710,
the Essential Transportation Worker Identification Credential
Assessment Act, and I yield myself such time as I may consume.
Mr. Speaker, I want to thank my good friend from Georgia for his
concern and for his commitment and thank him for his service on the
Homeland Security Committee. I also want to acknowledge our chairman
and our ranking member of the full committee and Mrs. Miller who now
serves as the chairwoman of the Border and Maritime Security, on which
I served as the ranking member in the last Congress.
The bill passed the House unanimously in the 113th Congress, and I am
pleased it is being considered by the House again today. Mr. Speaker,
might I add my appreciation to the House leadership, in particular the
Speaker; majority leader; and, of course, our leader and minority whip.
The SAFE Port Act of 2006 directed the Secretary of Homeland Security
to implement a biometric credential program, now known as the TWIC
program, to ensure that individuals with unescorted access to secure
areas of ports and vessels were vetted and carrying proper credentials.
Mr. Speaker, I had a TWIC card. I remember being there as the TWIC
card was being implemented and watching various workers come to a
central point and sign up for the TWIC card. We had great hope and
inspiration on that TWIC card.
Establishment of this program was viewed as critical to ensuring
protection of our ports from a so-called insider security threat;
however, in the years since it was established, the Department of
Homeland Security struggled to realize the security benefits that
Congress envisioned.
I know that the former director of the Transportation Security
Administration, Mr. Pistole, was very concerned. It should be noted
their efforts are an important part of their work, along with others.
In fact, the Government Accountability Office has examined the
program and identified serious shortcomings that may undermine the
program's intended purpose and make it difficult to justify the
program's costs and particularly the costs to workers. I saw that
firsthand. I also saw the challenges of workers who had many unique
scheduling for their work hours to be able to get a TWIC card.
In response, I introduced H.R. 710 and its predecessor last Congress
with the support of Subcommittee Chairman Miller as an original
cosponsor to ensure that Congress receives an independent, scientific
assessment of the program and to require the Secretary to issue a
corrective action plan in response to the assessment.
Ranking Member Thompson is also a cosponsor, but this is bipartisan
legislation. The required assessment should give Congress the
information it needs to determine how best to proceed with the TWIC
program.
The bill has been refined over time to ensure that the long overdue
rulemaking for TWIC card readers would not be affected by the bill and
to refine the scope of the assessment we are seeking.
There is great interest in that final rule; particularly, there is
interest in how many ports and vessels will be required to install
readers for biometric cards. If the final rule requires only a limited
number of vessels and ports to have biometric readers, as has been
previously proposed by the Department, we will still--we will still--
certainly need to have a discussion about what this means for the
approximately 2 million truckers, longshoremen, and port workers who
today carry TWICs as part of their jobs.
For those of us who live around and near our ports, such as the
Houston port, we know that this will have a great impact.
In closing, I again thank my friend for his concern and presence here
on the floor today and in support of this legislation.
Mr. Speaker, I just want to make the point that this bill was
generated by the GAO report which found a number of concerns, and I
just want to mention one or two. The reliability of data collection
retention was done in an incomplete and inconsistent manner, this
report wanted to inform us of--this was a GAO TWIC report--and it
commented on some of the illnesses or ailments of this process.
It reported that transaction data did not match underlying
documentation, installed TWIC readers and access control systems could
not collect required data on TWIC reader use, and TSA and the
independent test agent did not employ effective compensating data
collection measures.
Also, pilot participants did not document instances of denied access.
Finally, TSA and the independent test agent did not collect complete
data on malfunctioning TWIC cards.
This legislation, the underlying legislation, H.R. 710, is to be a
helper. It is to help correct our path to make the document, the TWIC
card that all of us are quite familiar with, the best effective data-
collecting document and system that it can possibly be.
I am very grateful that, again, my colleagues on the Homeland
Security Committee have supported this legislation, and I ask my
colleagues to join us in making what is good much better and best to be
able to secure the Nation and provide for the homeland.
Mr. Speaker, I rise in strong support of my bill, H.R. 710, the
``Essential Transportation Worker Identification Credential Assessment
Act.''
This bill passed the House unanimously in the 113th Congress and I am
pleased it is being considered by the House again today.
The SAFE Port Act of 2006 directed the Secretary of Homeland Security
to implement a biometric credential program, now known as the TWIC
program, to ensure that individuals with unescorted access to secure
areas of
[[Page H902]]
ports and vessels were vetted and carrying proper credentials.
Establishment of this program was viewed as critical to ensuring the
protection of our ports from a so-called ``insider security threat.''
However, in the years since it was established, the Department of
Homeland Security struggled to realize the security benefits that
Congress envisioned.
In fact, the Government Accountability Office has examined the
program and identified serious shortcomings that may undermine the
program's intended purpose and make it difficult to justify program
costs, and particularly the costs to workers.
In response, I introduced H.R. 710 and its predecessor last Congress,
with the support of Subcommittee Chairman Miller as an original
cosponsor, to ensure that Congress receives an independent scientific
assessment of the program and to require the Secretary to issue a
corrective action plan in response to the assessment.
The required assessment should give Congress the information it needs
to determine how best to proceed with the TWIC program.
The bill has been refined over time to ensure that the long-overdue
rulemaking for TWIC card readers would not be affected by the bill and
to refine the scope of the assessment we are seeking.
There is great interest in that final rule, particularly there is
interest in how many ports and vessels will be required to install
readers for biometric cards.
If the final rule requires only a limited number of vessels and ports
to have biometric readers, as has been previously proposed by the
Department, we will certainly need to have a discussion about what this
means for the approximately 2 million truckers, longshoremen and port
workers who today carry TWICs as part of their jobs.
In closing, I want to express my appreciation to Chairman Miller for
the bipartisan nature of the work on this bill and express my
appreciation to her staff for their cooperation.
I am proud to represent a portion of the Port of Houston and know
firsthand the importance of this issue to the maritime workers,
truckers, and others who access our Nation's ports every day. It is
imperative that we get this right on their behalf.
Mr. Speaker, I urge passage of H.R. 710, a bipartisan bill that is
essential to ensuring that the Department of Homeland Security has an
effective program in place to help secure our ports.
Identical legislation that I authored was approved unanimously last
Congress. Today, with this legislation, we have the opportunity to send
another strong message to the Department.
Mr. Speaker, as a senior member of the Homeland Security Committee,
the Ranking Member of the Border and Maritime Security Subcommittee,
and the author of the legislation, I rise in strong and enthusiastic
support of H.R. 710, the ``Essential Transportation Worker
Identification Credential Assessment Act.''
H.R. 710 is identical in all substantive respects to H.R. 3202, which
passed the House during the 113th Congress on July 28, 2014.
The Essential Transportation Worker Identification Credential
Assessment Act directs the Secretary of Homeland Security (DHS) to
submit to Congress and the Comptroller General (GAO) a comprehensive
assessment of the effectiveness of the transportation security card
program at enhancing security or reducing security risks for maritime
facilities and vessels.
I reintroduced H.R. 710, in response to this GAO TWIC Report on the
Weaknesses in the Transportation Worker Identification Credential
(TWIC) Reader Pilot program that impacted the accuracy, and reliability
of the system.
The GAO report stated that data collection and retention was done in
an incomplete and inconsistent manner during the pilot, further
undermining the completeness, accuracy, and reliability of the data
collected at pilot sites.
Problems identified included by the GAO report included:
1. Installed TWIC readers and access control systems could not
collect required data on TWIC reader use, and TSA and the independent
test agent did not employ effective compensating data collection
measures.
2. Reported transaction data did not match underlying documentation.
3. Pilot documentation did not contain complete TWIC reader and
access control system characteristics.
4. Transportation Security Administration (TSA) and the independent
test agent did not record clear baseline data for comparing operational
performance at access points with TWIC readers.
5. TSA and the independent test agent did not collect complete data
on malfunctioning TWIC cards.
6. Pilot participants did not document instances of denied access.
7. TSA and the independent test agent did not collect consistent data
on the operational impact of using TWIC cards with readers.
8. Pilot site reports did not contain complete information about
installed TWIC readers' and access control systems' design.
H.R. 710 addresses the problems outlined in the GAO report by
directing the Secretary to issue a corrective action plan based on the
assessment that responds to the findings of a cost-benefit analysis of
the program and enhances security or reduces security risk for such
facilities and vessels.
Following the assessment the Comptroller General, within 120 days
must review the extent to which the submissions implement certain
recommendations issued by the Comptroller General, and inform Congress
as to the responsiveness of the submission.
The bill also prohibits the Secretary from issuing a final rule
requiring the use of transportation security card readers until the
Comptroller General informs Congress that the submission is
substantially responsive to the GAO recommendations, and the Secretary
issues an updated list of transportation security card readers that are
compatible with active transportation security cards.
Mr. Speaker, my congressional district is located in Houston, Texas,
which is home to the Port of Houston, one of the world's busiest ports,
and one of its most critical infrastructure projects.
According to the Department of Commerce in 2012, Texas exports
totaled $265 billion.
The Port of Houston is a 25-mile-long complex of diversified public
and private facilities located just a few hours' sailing time from the
Gulf of Mexico.
In 2012, ship channel-related businesses contribute 1,026,820 jobs
and generate more than $178.5 billion in statewide economic impact.
For the past 11 consecutive years, Texas has outpaced the rest of the
nation's ports in exports and ranked: 1. 1st in foreign tonnage; 2. 2nd
in total tonnage; and 3. 7th in container ports by total TEUs in 2012.
The Port of Houston is the largest Texas port with 46% of market
share by tonnage and the largest Texas container port with 96% market
share in containers by total TEUs in 2012.
It is the largest Gulf Coast container port, handling 67% of Gulf
Coast container traffic in 2012 and ranked 2nd in terms of cargo value
(based on CBP Customs port definitions).
The Government Accountability Office (GAO), reports that the Port of
Houston, its waterways, and vessels are part of an economic engine
handling more than $700 billion in merchandise annually.
The Port of Houston houses approximately 100 steamship lines offering
services that link Houston with 1,053 ports in 203 countries.
The Port of Houston hosts a $15 billion petrochemical complex, the
largest in the nation and second largest worldwide.
The Port of Houston petrochemical complex supplies over 40 percent of
the nation's base petrochemical manufacturing capacity.
What happens at the Port of Houston affects the entire nation.
When Congress enacted the SAFE Ports Act in 2006, we directed the
Secretary of Homeland Security to implement a biometric credential
program to ensure that individuals with unescorted access to sensitive
areas in ports and vessels were vetted and known.
However, under the Homeland Security Committee's oversight
responsibilities we learned that, as implemented by TSA and the Coast
Guard, there are weaknesses in the program.
For this reason, I introduced H.R. 710, with the support of Mr.
Thompson, the Homeland Security Committee Ranking Member, and Mrs.
Miller, Chair of the Border and Maritime Security Subcommittee as
original cosponsors, to ensure that Congress receives an independent
scientific assessment of the program and to require the Secretary to
issue a corrective action plan in response to the assessment.
The required assessment should give Congress the information it needs
to determine how best to proceed with the program.
I want to point out that in the last Congress when this bill was
marked up in Committee, language was integrated to ensure that
clarified that pending rulemaking would not be impacted by the bill and
refined the scope of the assessment we are seeking.
H.R. 710 retains this language.
The Department has said that the final rule for biometric readers
will be published in January 2015.
There is great interest in the Department's final rule for biometric
readers, particularly as it relates to the number of ports and vessels
that will be required to install readers for biometric cards.
If the final rule requires only a limited number of vessels and ports
to have biometric readers, as has been previously proposed by the
Department, we will certainly need to have a discussion about what this
means for the approximately 2 million truckers, longshoremen and port
workers who today are required to carry biometric cards to do their
jobs.
I want to express my appreciation to Chairman Miller for the
bipartisan nature of the
[[Page H903]]
work on this and all the bills that originate in her Subcommittee and
thank her and the Committee staff for their cooperation and assistance
in shepherding this vital legislation to the floor.
I ask my colleagues on both sides of the aisle to strongly support
this bipartisan bill.
Mr. Speaker, I yield back the balance of my time.
Mr. CARTER of Georgia. Mr. Speaker, first of all, I want to thank the
gentlewoman from Texas for her leadership in this very important issue.
Once again, I want to urge all of my colleagues to support this
strong, bipartisan piece of legislation, and I yield back the balance
of my time.
The SPEAKER pro tempore. The question is on the motion offered by the
gentleman from Georgia (Mr. Carter) that the House suspend the rules
and pass the bill, H.R. 710.
The question was taken; and (two-thirds being in the affirmative) the
rules were suspended and the bill was passed.
A motion to reconsider was laid on the table.
____________________