Diffuse Security Threats: Technologies for Mail Sanitization	 
Exist, but Challenges Remain (23-APR-02, GAO-02-365).		 
                                                                 
The attacks of September 11, 2001, and recent anthrax exposures  
have heightened long-standing concerns about the proliferation of
biological weapons and the United States's ability to quickly	 
respond to such incidents.  The United States must identify	 
technologies to protect against biological weapons, such as	 
anthrax, without harming humans. Ionizing radiation has emerged  
as the leading current technology for mail sanitization. However,
ionizing radiation may have adverse effects on mailed material,  
and it may not be applicable to some types of parcels, boxes, and
large packages. In addition, applying ionizing radiation in a	 
mail-processing environment requires radiation and biohazard	 
precautions, such as shielding the radiation source and wearing  
protective gear.						 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-02-365 					        
    ACCNO:   A03063						        
  TITLE:     Diffuse Security Threats: Technologies for Mail	      
Sanitization Exist, but Challenges Remain			 
     DATE:   04/23/2002 
  SUBJECT:   Chemical and biological agents			 
	     Terrorism						 
	     Postal service					 
	     Mail delivery problems				 
	     Health hazards					 


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GAO-02-365
     
Report to Congressional Requesters

United States General Accounting Office

GAO

April 2002 DIFFUSE SECURITY THREATS

Technologies for Mail Sanitization Exist, but Challenges Remain

GAO- 02- 365

Page 1 GAO- 02- 365 Mail Sanitization

April 23, 2002 The Honorable Henry A. Waxman Ranking Minority Member
Committee on Government Reform House of Representatives

The Honorable Danny K. Davis Ranking Minority Member Subcommittee on Civil
Service, Census, and Agency Organization Committee on Government Reform
House of Representatives

The attacks of September 11, 2001, and recent anthrax exposures have
heightened long- standing concerns about the proliferation of biological
weapons and the United States?s ability to quickly respond to exposure to
such weapons. In particular, the United States needs to identify
technologies that can be used to protect against biological weapons, such as
anthrax, without harming humans. In light of these concerns, you requested
that we identify the technologies that the United States Postal Service
(USPS) is currently using to sanitize the mail. In addition, you asked that
we identify the major issues associated with these technologies, including
current applications, occupational safety matters, effects on materials,
testing, operations and processing capabilities, costs, and implementation.

To address these objectives, we met with officials from USPS, the Armed
Forces Radiobiology Research Institute, and industry experts; reviewed
literature and documents on commercially available ionizing radiation
technologies; and visited existing irradiation facilities in Lima, Ohio, and
Bridgeport, New Jersey. In addition, we reviewed the strengths and
limitations for the forms of ionizing radiation technologies we assessed. We
also analyzed acquisition and life- cycle costs for ionizing radiation
technologies. However, due to the proprietary, competition- sensitive nature
of these costs, we did not include them in this report.

We performed our work from November 2001 through March 2002, in accordance
with generally accepted government auditing standards.

United States General Accounting Office Washington, DC 20548

Page 2 GAO- 02- 365 Mail Sanitization

On February 13, 2002, we provided a detailed briefing to your office on the
results of this work. The purpose of this report is to provide the briefing
slides to you. These slides are included as the appendix.

In our briefing, we reported that ionizing radiation has emerged as the
leading current technology for mail sanitization. This technology is
commonly used for sterilizing medical products; preparing food for human
consumption by reducing the bacterial contamination of meat, poultry, eggs,
and vegetables; and delaying the ripening or sprouting of fresh fruit to
control insects and parasites in foods. When sufficient dosages are used,
ionizing radiation can also decontaminate biological weapons such as
anthrax. However, ionizing radiation may have adverse effects on mailed
material (e. g., some paper products may be scorched), and it may not be
directly applicable to some types of mail such as parcels, boxes, and large
packages. In addition, applying ionizing radiation (irradiation) in a mail-
processing environment requires taking radiation and biohazard precautions,
such as shielding the radiation source with concrete vaults and wearing
protective gear if there are known contaminants.

While USPS currently has two contracts to irradiate the mail, there are many
issues that must be addressed to expand the use of ionizing radiation
technology. For instance, the USPS will need to assess (1) how it will
integrate this technology with the current mail- processing equipment and
(2) the technology?s associated costs, schedule, benefits, and risks.

We shared the results of our work with the postmaster general and chief
executive officer of the USPS, and the agency generally agreed with our
findings. For several specific areas of our briefing, USPS offered
suggestions for revision, which we have incorporated where appropriate.

As agreed with your offices, unless you publicly announce the contents of
this report earlier, we plan no further distribution of it until 30 days
from the date of this letter. At that time, we will provide copies to the
chair of the House Government Reform Committee; the chairmen and ranking
minority members of the House and Senate Committees on Appropriations; the
Subcommittee on International Security, Proliferation and Federal Service,
Senate Committee on Governmental Affairs; the postmaster general and chief
executive officer, USPS; and other interested parties upon request. This
report will also be available at our Web site at www. gao. gov.

Page 3 GAO- 02- 365 Mail Sanitization

Should you or your offices have any questions concerning this report, please
contact me at (202) 512- 6412 or Madhav Panwar, director, at (202) 512-
6228. We can also be reached by e- mail at rhodesk@ gao. gov and panwarm@
gao. gov, respectively. Individuals making key contributions to the briefing
and this report were Sushil Sharma, David Gootnick, Nabajyoti Barkakati,
Rahul Gupta, Karen Richey, and Yvette Banks.

Sincerely yours, Keith A. Rhodes Chief Technologist, Applied Research and
Methods

Appendix Page 4 GAO- 02- 365 Mail Sanitization

Appendix

Sanitization of U. S. Mail Assessment of Ionizing Radiation Technologies

and Related Issues Briefing for the Committee on Government Reform

and the Subcommittee on Civil Service, Census, and Agency Organization

House of Representatives February 13, 2002

Appendix Page 5 GAO- 02- 365 Mail Sanitization

2

Purpose and Outline

To provide an assessment of existing ionizing radiation technologies that
the United States Postal Service (USPS) is using to sanitize mail and issues
related to those technologies.

Outline: * Objectives, Scope, and Methodology  Background Summary 
Ionizing Radiation  Vendor Operations and Processing Capabilities Costs 
Long- Term Implementation Issues  Conclusions  Further Work Needed

Appendix Page 6 GAO- 02- 365 Mail Sanitization

3

Objectives, Scope, and Methodology

Our objectives were to describe (1) current technologies being used for
sanitization of U. S. mail and (2) current applications, effects on
materials, occupational safety issues, testing, operations and processing
capabilities, costs, and long- term implementation issues for these
technologies.

We collected and analyzed information and documentation on anthrax and the
use of ionizing radiation to sanitize the mail, as well as actions taken by
USPS to implement this technology.

We interviewed industry experts, and officials from the Armed Forces
Radiobiology Research Institute (AFRRI) and USPS.

Appendix Page 7 GAO- 02- 365 Mail Sanitization

4

Objectives, Scope, and Methodology

(continued)

In addition, we analyzed acquisition and life- cycle costs for ionizing
radiation technologies. However, due to the proprietary,
competitionsensitive nature of the vendor costs, we did not include them in
this report.

We conducted our review at USPS offices in Washington, D. C., and
Merrifield, Virginia. We also visited existing irradiation facilities for
the two vendors- Titan Corporation (Titan) in Lima, Ohio, and Ion Beam
Applications (IBA) in Bridgeport, New Jersey (N. J.). We conducted our
review from November 2001 through March 2002, in accordance with generally
accepted auditing standards.

Appendix Page 8 GAO- 02- 365 Mail Sanitization

5

Background

USPS Anthrax Crisis

Statistics as of December 6, 2001:

 4 known letters containing anthrax

 11 confirmed cases of inhalation anthrax; 5 deaths

 7 confirmed and 4 suspected cases of cutaneous (i. e., skin) anthrax

 284 USPS facilities tested for anthrax contamination

 23 USPS facilities found to be contaminated

 2 USPS facilities (Trenton and Brentwood) remain closed

 8, 424 USPS employees offered antibiotics (D. C., N. J., and N. Y. C.)

 Approximately 1. 8 million pieces of mail requiring decontamination

Appendix Page 9 GAO- 02- 365 Mail Sanitization

6

Background

Anthrax Description

Anthrax is an acute infectious disease caused by the spore- forming
bacterium Bacillus anthracis.

Anthrax spores are

 metabolically inactive,

 able to survive for decades or longer,

 approximately 1 micron in diameter, and

 killed by dry heat at 320 o F for 2 hours. Anthrax spores germinate when
they enter a favorable environment, such as blood or tissues.

Three types of anthrax infection can occur: cutaneous (skin), inhalation,
and gastrointestinal.

Appendix Page 10 GAO- 02- 365 Mail Sanitization

7

Background

Anthrax as a Weapon

At least 17 nations are believed to have offensive biological weapons
programs.

At least 7 of our potential adversaries have worked to develop an offensive
biological warfare capability using anthrax.

Iraq has admitted to producing and weaponizing anthrax. The former Soviet
Union produced hundreds of tons of weapons- grade anthrax spores. In 1979,
the accidental release of a gram of anthrax spores, from a military
microbiology facility in one of the former Soviet Union territories,
resulted in at least 79 cases of anthrax, leading to 68 deaths.

Expert opinion varies on the ability of individuals or small groups to
obtain and disseminate anthrax.

Appendix Page 11 GAO- 02- 365 Mail Sanitization

8

Background

Anthrax as a Weapon (continued)

According to DOD, anthrax is an effective biological weapon: Inhalation is
almost always deadly if not treated early and effectively.

Spores can be produced in quantities using basic knowledge of biology.

Spores can be stored for decades without losing potency. Spores can be
easily spread by a variety of means. Exposure is insidious:

 no cloud or color,

 no smell,

 no taste,

 short incubation, and

 no indication of attack.

Appendix Page 12 GAO- 02- 365 Mail Sanitization

9

Summary

Ionizing radiation is the leading current technology being used for
sanitization of U. S. mail, assuming effective dosage can be uniformly
delivered to the target.

Two forms of ionizing radiation that can be used to sanitize the U. S. mail
are electron beam (e- beam) and x- ray. Both have strengths and limitations.

 E- beams provide high- volume mail sanitization, but have limited
penetration (i. e., are not effective for large packages).

 X- rays can penetrate deeper than e- beams, but they are not as efficient.

Current applications of ionizing radiation include sterilizing medical
products and preparing food for human consumption.

Appendix Page 13 GAO- 02- 365 Mail Sanitization

10

Summary (continued)

Ionizing radiation may have adverse effects on mailed material, such as
scorching paper products.

Ionizing radiation will require addressing occupational safety issues, such
as the need for precautions against radiation and biohazards.

Testing performed by the Armed Forces Radiobiology Research Institute
(AFRRI) confirmed that anthrax spores are rendered harmless by ionizing
radiation.

USPS has contracts to irradiate the mail at two operational facilities in
Ohio and N. J.; however, additional processing capabilities would be
required to implement ionizing radiation technology nationwide, if such a
decision were to be adopted.

Appendix Page 14 GAO- 02- 365 Mail Sanitization

11

Summary (continued)

USPS requested funding, through June 2002, to sanitize the mail. Long- term
vendor cost estimates to irradiate the mail nationwide range between
approximately $880 million to about $4. 2 billion over a ten- year period.

Long- term issues, such as integrating ionizing radiation into the mail
process, have not yet been fully defined by USPS.

USPS will need to determine

 the amount and types of mail to be processed,

 the location and number of sites to irradiate mail,

 the mix of technologies needed to irradiate mail, and

 the costs, benefits, and risks associated with these technologies.

Appendix Page 15 GAO- 02- 365 Mail Sanitization

12

Ionizing Radiation

Characteristics

Ionizing radiation is any radiation that has sufficient energy to remove
electrons from atoms.

Ionizing radiation includes:

 alpha (a) decay (disintegration of an atom or molecule that emits an alpha
particle- a highly charged twin of an He nucleus),

 beta (b) decay (disintegration of a nucleus that emits either a negatively
or positively charged electron- a negatron or positron) such as e- beam, and

 gamma (g) decay (disintegration of a nucleus that emits a highly charged
photon) such as x- ray.

Ionizing radiation can be generated with an accelerator or a radioactive
source.

Appendix Page 16 GAO- 02- 365 Mail Sanitization

13

Ionizing Radiation

Characteristics (continued)

Appendix Page 17 GAO- 02- 365 Mail Sanitization

14

Ionizing Radiation

Characteristics (continued)

Ionizing radiation:

 E- beams are generated by a heated filament. A voltage gradient
accelerates the electrons through a vacuum tube. Electrons can also be
accelerated by using radio frequency (RF) microwave power.

 X- rays are generated by bombarding a metal (usually a heavy metal) with
high- velocity electrons.

 Gamma rays are generated by the decay of radioactive sources. However,
because the presence of highly radioactive sources may present additional
safety hazards to workers, gamma ray irradiation was eliminated as a method
of sanitizing the mail.

Various manufacturers produce equipment to generate ionizing radiation such
as linear accelerators, Dynamitrons, and Rhodotrons.

Appendix Page 18 GAO- 02- 365 Mail Sanitization

15

Ionizing Radiation

LINAC (Linear Accelerator)

Electrons emitted from a heated filament are accelerated, under the action
of an electric field, in a long vacuum pipe then spread using a magnetic
scanning device to provide full treatment of products.

Source: ï¿½ 2002, Titan Corporation.

Appendix Page 19 GAO- 02- 365 Mail Sanitization

16

Ionizing Radiation

Dynamitron

Dynamitrons work on the same principle as television tubes. Electrons are
generated by a heated filament, which forms the electron gun; a voltage
gradient draws the electrons away from the gun and accelerates them through
the vacuum tube.

Source: ï¿½ 2002, IBA.

Appendix Page 20 GAO- 02- 365 Mail Sanitization

17

Ionizing Radiation

Rhodotron

Electrons are accelerated as they pass through properly oriented electrical
fields.

Source: ï¿½ 2002, IBA.

Appendix Page 21 GAO- 02- 365 Mail Sanitization

18

Ionizing Radiation

Titan?s Concept

Source: ï¿½ 2002, Titan Corp. Double-

sided mail irradiation

Appendix Page 22 GAO- 02- 365 Mail Sanitization

19

Ionizing Radiation

Current Applications

Range of radiation dose a by target type:

 <1 kGy is used to delay physiological processes, such as ripening or
sprouting of fresh fruits and vegetables, and to control insects and
parasites in foods

 1- 30 kGy is used to reduce bacterial contamination of meat, poultry,
eggs, spices, and vegetables for human consumption

 10- 40 kGy is used for medical product sterilization

a Radiation dose is measured in kilograys (kGy).

Irradiation Target Net Effect Dose Range (kGy)

Food Delay ripening, insect deinfestation <1- 30

Medical products Sterilization 10- 40 Polyolefin foams and heat- shrinkable
materials

Crosslinking and memory imparted 40- 250

Rubber and fluoropolymers

Vulcanization and degradation

80- 1500 Gemstones Coloration 10, 000+

Appendix Page 23 GAO- 02- 365 Mail Sanitization

20

Ionizing Radiation

E- beams and X- rays

E- beam machines can also be designed to produce x- rays to irradiate
parcels and large boxes.

X- rays are emitted when a high- speed e- beam bombards a suitable metallic
target, such as tungsten.

* This process generates heat and requires a cooling system. * 99 percent of
the e-beam?s power is lost as heat. * The throughput (amount of material
irradiated in a given time) is greatly

reduced. Electron

X-ray

Appendix Page 24 GAO- 02- 365 Mail Sanitization

21

Ionizing Radiation

E- beam

Strengths:

 High volume

 Effective for anthrax and bacterial spores

 Consistent results when packaging density is maintained

 Not toxic, corrosive, or staining Limitations:

 Limited penetration

 High- density materials will inhibit penetration (packing density must be
maintained)

 Limited to letters and flat mail

 Source must be shielded

 Raises temperature of mail to 150ï¿½ F or greater

 Scorches some materials

 Degrades certain materials

 Produces ozone in bagged mail

Appendix Page 25 GAO- 02- 365 Mail Sanitization

22

Ionizing Radiation

X- rays

Strengths:

 Deep penetration

 Effective for anthrax and bacterial spores

 Packaging not critical

 Handles items such as parcels and boxes

 Density not issue for mail

 Not toxic, corrosive, or staining Limitations:

 Limited conveyor speed and radiation power (slower throughput)

 High cost (less than 10 percent as efficient as e- beam)

 Activation of irradiated material

 Source must be shielded

 Raises temperature of mail to 150ï¿½ F or greater

 Scorches some materials

 Degrades certain materials

 Produces ozone in bags

Appendix Page 26 GAO- 02- 365 Mail Sanitization

23

Ionizing Radiation

Examples of Effects on Materials

 Live material (possibly killed)

 Lab samples (destroyed)

 Pharmaceuticals (potency altered)

 Food (altered taste)

 Eyeglasses and other glass products (fogged)

 Film (damaged)

 Smart Cards (possible data loss)

 Some paper products (scorched)

Appendix Page 27 GAO- 02- 365 Mail Sanitization

24

Ionizing Radiation

Occupational Safety Issues

Radiation safety requires shielding, processing safeguards, dosimeter 1
monitoring of employees, and radiation safety and quality control officers.

Biohazard precautions require procedures for facility bio- safety, personal
protective gear, environmental monitoring, and disposal of materials.

The Environmental Protection Agency (EPA), the Occupational Safety and
Health Administration (OSHA), and state public health authorities all
regulate radiation safety issues.

If gamma radiation is used, environmental clean- up and nuclear waste issues
emerge.

1 A dosimeter measures the amount of radiation applied to a target.

Appendix Page 28 GAO- 02- 365 Mail Sanitization

25

Ionizing Radiation

Testing

Mail sanitization is a stringent and standardized process that renders
treated anthrax in the mail harmless for humans, according to Armed Forces
Radiobiology Research Institute (AFRRI).

Mail can be sanitized by delivering sufficient doses of ionizing radiation
to disrupt or destroy DNA, RNA, proteins, and other cell components,
rendering bacteria harmless.

Ionizing radiation renders anthrax spores harmless; however, the spores will
remain detectable by advanced techniques.

Appendix Page 29 GAO- 02- 365 Mail Sanitization

26

Ionizing Radiation

Testing (continued)

Armed Forces Radiobiology Research Institute (AFRRI) conducted tests which
confirmed that anthrax spores are rendered harmless by ionizing radiation.
The tests were conducted at three sites:

 AFRRI Laboratory,

 Lima, Ohio, and

 Bridgeport, N. J. The French achieved similar results testing the effects
of cobalt- 60 on anthrax.

Appendix Page 30 GAO- 02- 365 Mail Sanitization

27

Ionizing Radiation

Testing (continued)

AFRRI?s Study: The Efficacy of Electron Beam to Decontaminate Chemical and
Biological Warfare Agents: Phase One (July 30, 2001). This study

 tested a series of chemical and biological agent surrogates under very
controlled conditions to determine the kill effectiveness of e- beam, and

 established dose values to render Bacillus anthracis- Sterne strain and
Bacillus subtilis var. globigii (BG- anthrax simulant) ineffective.

The efficacy of the standard minimum dose was tested on- site at Lima, Ohio,
and Bridgeport, N. J.

Appendix Page 31 GAO- 02- 365 Mail Sanitization

28

Ionizing Radiation

Testing (continued)

On November 1, 2001, AFRRI tested the efficacy of the standard minimum dose
at Lima under the following on- site conditions:

 packaging and orientation of mail,

 conveyor speed and radiation power (to determine throughput), and

 electron energy (to determine penetration). On- site conditions
demonstrated that

 delivered dose is 1 to 2 times standard minimum dose (dosimetry), and

 BG simulant is rendered harmless as verified by negative cultures. Similar
results were achieved on site at the Bridgeport facility. Testing with BG
simulant confirmed that the established minimum dose deactivates spores.

Appendix Page 32 GAO- 02- 365 Mail Sanitization

29

Ionizing Radiation

Testing (continued)

Dosimetry Results

Note: NIST represents the National Institute of Standards and Technology.

Appendix Page 33 GAO- 02- 365 Mail Sanitization

30

Ionizing Radiation

Testing (continued)

Biological Indicator Test Procedure AFRRI?s lab tests confirmed that after
irradiation the cultures for

Bacillus subtilis var. globigii (BG-anthrax simulant) were negative

Appendix Page 34 GAO- 02- 365 Mail Sanitization

31

Operations and Processing Capabilities

Ionizing Radiation Vendors

USPS had contracts with two vendors, IBA and Titan, to initially irradiate
mail that was backlogged from the Brentwood and Trenton mail processing
facilities.

Currently, these vendors are under contract to irradiate letters and flats
addressed to congressional and government offices in ZIP Codes 202, 203,
204, and 205.

Neither of these vendors is irradiating parcels or large boxes because the
x- ray equipment is not ready.

Appendix Page 35 GAO- 02- 365 Mail Sanitization

32

Operations and Processing Capabilities

IBA: Current Facility

IBA has a facility in Bridgeport, N. J. that is being used to irradiate
mail. The facility has a single Rhodotron capable of generating both e- beam
and x- rays.

It was originally designed to irradiate

 polymers at high (> 200 kGy) dosage using e- beam, and

 frozen food (hamburgers) at low dosage using x- ray. Currently operating
in e- beam mode at about 170 kW@ 10 MeV (17 mA).

X- ray equipment not yet functional at N. J. facility. Rhodotron irradiating
down

Source: ï¿½ 2002, IBA.

Appendix Page 36 GAO- 02- 365 Mail Sanitization

33

Operations and Processing Capabilities

IBA: Current Facility (continued)

Receiving room Conveyor system Inside receiving room Control room Tray that
holds mail Tray with boxes of mail

Appendix Page 37 GAO- 02- 365 Mail Sanitization

34

Operations and Processing Capabilities

IBA: Current Facility (continued)

Conveyor speed was increased to handle mail. Roller conveyor system is being
used. Mail must arrive packaged flat, double bagged, boxed, and sealed. Each
box is irradiated twice, once per side. Sealed boxes are manually flipped
over for second pass. Dosimetry is performed on trays. Throughput is 4, 500
lbs per hour. Current biohazard precautions include visual inspection of
incoming mail in clean area by personnel in full protective gear.

The availability requirement is 90 percent (current USPS contract); IBA
estimates over 95 percent at other facilities.

Appendix Page 38 GAO- 02- 365 Mail Sanitization

35

Operations and Processing Capabilities

Titan: Current Facility

Titan has a facility in Lima, Ohio that is being used to irradiate mail. The
facility has a single accelerator operating at 18 kW@ 10 MeV (1.8 mA). USPS
purchased eight additional systems that will be used to assess longterm use.

The Lima facility was initially designed to sterilize medical products and
has no x- ray equipment.

The availability requirement is 90 percent (current USPS contract); Titan
estimates 96 percent at its other facilities in San Diego and Denver that
operate 24 hours a day, 7 days a week.

Appendix Page 39 GAO- 02- 365 Mail Sanitization

36

Operations and Processing Capabilities

Titan: Current Facility (continued)

Conveyor system Control room Tray with boxes of mail

Box of mail Irradiated mail in truck

Appendix Page 40 GAO- 02- 365 Mail Sanitization

37

Operations and Processing Capabilities

Titan: Current Facility (continued)

 Conveyor speed was decreased to handle mail.

 Fixed- carrier conveyor system is being used.

 Mail arrives packaged vertically in trays, double bagged, boxed, and
sealed.

 Each box is irradiated four times (conveyor rotates boxes automatically
for each pass).

 Dosimetry is performed on trays. Dosimeter

 Throughput is 1,000 lbs per hour.

 Current biohazard precautions include masks and gloves in pre- irradiation
area.

Appendix Page 41 GAO- 02- 365 Mail Sanitization

38

Costs

USPS Request for Supplemental Funding on 11/ 13/ 01

a Sanitization represents costs for purchasing eight electron beam systems,
adjusting for space or renovation requirements, changes to existing material
handling systems for revised mail flow, and development of a testing
protocol for chlorine dioxide gas.

Requirements Through June 2002 Est imat ed Cost Percent Total Sanitization a
307.5 $ 24%

Purchase and installation of vacuums and hepafilters 310.0 24% Biological
air monitoring and detection 306.5 24% Operations and disruptions of mail
152.4 12% Other costs (testing, antibiotics, gloves, and security) 139.7 11%
Anthrax decontamination 44.9 4% September 11, 2001-related costs 10.5 1%

Total 1,271.5 100%

Deduction for initial $175 million emergency funding (175.0) $ 14%

Total additional request 1,096.5 $ 86% Mail Sanitization and Security
Requirements (Dollars in Millions)

Appendix Page 42 GAO- 02- 365 Mail Sanitization

39

Costs

Vendor Long- Term Estimates

Factors affecting cost estimates include:

 volume of mail to be irradiated (pounds per hour),

 conveyor speed,

 machine power, and

 number of locations for installation. Long- term cost estimates for
irradiating mail nationwide range from approximately $880 million to about
$4. 2 billion over a ten- year period.

Appendix Page 43 GAO- 02- 365 Mail Sanitization

40

Long- Term Implementation Issues

USPS

USPS issued Emergency Preparedness Plan for Protecting Postal Employees and
Postal Customers From Exposure to Biohazardous Material and for Ensuring
Mail Security Against Bioterror Attacks, March 6, 2002.

GAO will be evaluating the technologies identified in this plan and their
implications such as cost, schedule, benefits, and risks.

Appendix Page 44 GAO- 02- 365 Mail Sanitization

41

Long- Term Implementation Issues

USPS (continued)

USPS will need to determine

 the amount and types of mail to be processed;

 the location and number of sites to irradiate mail;

 whether to irradiate mail at USPS facilities or build new facilities;

 what mix of technologies will be used to irradiate mail;

 the costs, benefits, and risks associated with these technologies; and

 whether the resources are available to - manage the acquisition and
installation of irradiation

equipment, - train personnel to operate irradiation equipment, - run and
oversee the irradiation operations, and - conduct periodic testing on mail
and equipment.

Appendix Page 45 GAO- 02- 365 Mail Sanitization

42

Long- Term Implementation Issues

USPS (continued)

Ionizing radiation equipment will require

 new or modified facilities,

 concrete (about 10- 12 ft) and steel shielding,

 conveyor design and installation,

 appropriate permits (OSHA, EPA, and local certification), and

 additional venting or cooling capacity. Government and industry need to
define standards for mail irradiation and monitoring.

Appendix Page 46 GAO- 02- 365 Mail Sanitization

43

Long- Term Implementation Issues

Contractors

IBA

 Existing facility in Gainesville, Florida- owned by the U. S. Department
of Agriculture- has the shielding needed, as well as skilled workers.

 Rhodotron and Dynamitron production: -- one Rhodotron and one Dynamitron
in stock, and -- about 6 months are needed to prepare for production.

Titan

 Accelerators: -- a number of accelerators available for installation, and
-- additional production requires 6 to 9 months of lead time.

Appendix Page 47 GAO- 02- 365 Mail Sanitization

44

Conclusions

 Ionizing radiation technologies can kill anthrax spores.

 Current irradiation facilities are not designed specifically to sanitize
mail.

 Enhancements to mail security should be risk- based and, to the extent
practicable, done in conjunction with enhancements to mail operations and
efficiency.

 E- beams have high throughput and low penetration (can only penetrate 3 to
6 inches of mail).

 X- rays have low throughput and high penetration (can penetrate 14 to18
inches of mail).

 Both ionizing radiation technologies adversely affect some material in the
mail.

Appendix Page 48 GAO- 02- 365 Mail Sanitization

45

Further Work Needed

 Ionizing radiation for other biochemical threats (i. e., viruses,
chemicals, and other strains of anthrax)

 Materials adversely affected by ionizing radiation

 Development of industry standards for sanitization of mail

 External validation of industry data on x- ray activation

 Pre- scanning of mail

 Ultraviolet, detection, and filtration systems for USPS facilities

 Biohazard precautions and other workplace safety procedures

 Assessment of the costs, benefits, risks, and schedule for implementing
irradiation technologies to sanitize all mail including letters, parcels,
and large packages.

(460521)

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