Transportation Security Administration: Actions and Plans to	 
Build a Results-Oriented Culture (17-JAN-03, GAO-03-190).	 
                                                                 
Never has a results-oriented focus been more critical than today,
when the security of America's citizens depends on the outcomes  
of many federal programs. In response to the September 11	 
terrorist attacks, the Congress passed the Aviation and 	 
Transportation Security Act (ATSA) that created the		 
Transportation Security Administration (TSA) and made it	 
responsible for transportation security. ATSA requires TSA to	 
implement specific practices that are intended to make it a	 
results-oriented organization.					 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-03-190 					        
    ACCNO:   A05860						        
  TITLE:     Transportation Security Administration: Actions and Plans
to Build a Results-Oriented Culture				 
     DATE:   01/17/2003 
  SUBJECT:   Counterterrorism					 
	     Customer service					 
	     Internal controls					 
	     National preparedness				 
	     Performance measures				 
	     Strategic planning 				 
	     Terrorism						 
	     Aviation						 
	     Safety regulation					 

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GAO-03-190

                                       A

Report to Congressional Requesters

January 2003 TRANSPORTATION SECURITY ADMINISTRATION

Actions and Plans to Build a Results- Oriented Culture

GAO- 03- 190

Letter 1 Results in Brief 3 Background 6 TSA Actions and Plans to
Implement Selected Results- Oriented

Practices 10 Concluding Observations 36 Recommendations for Executive
Action 36 Agency Comments 37

Appendix

Appendix I: Objective, Scope, and Methodology 39 Related GAO Products 40
Tables Table 1: Summary of ATSA Requirements, TSA Actions and Plans,

and Recommended Next Steps, by Results- Oriented Practice 4 Table 2:
Summary of Opportunities to Help Ensure Useful Annual

Plans and Applied Practices 21 Figures Figure 1: Standardized Performance
Agreement for TSA

Executives 14 Figure 2: DOT and TSA Goal Alignment for Aviation Security
18 Figure 3: TSA*s Interim Performance Management System 23

Abbreviations

ATSA Aviation and Transportation Security Act CSI customer satisfaction
index DHS Department of Homeland Security DOT Department of Transportation
GPRA Government Performance and Results Act PBO performance- based
organization

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materials separately from GAO*s product.

Letter

January 17, 2003 The Honorable Ernest F. Hollings United States Senate The
Honorable Kay Bailey Hutchison United States Senate The Honorable John
McCain United States Senate The Honorable John D. Rockefeller, IV United
States Senate Over a year has passed since the terrorist attacks of
September 11, 2001, turned commercial aircraft into missiles, killing
thousands of people, destroying billions of dollars* worth of property,
and realigning our national priorities. These attacks tragically
underscore the forces that are likely to shape American society, the
United States* place in the world, and the role of the federal government.
The federal government is engaged in a

comprehensive review, reassessment, reprioritization, and as appropriate
reengineering of what the government does, how it does business, and in
some cases, who does the government*s business. Leading public and private
organizations in the United States and abroad have found that for
organizations to successfully transform themselves they must often
fundamentally change their cultures so they are more results oriented,
customer focused, and collaborative in nature. 1 Ultimately, federal
agencies will need to transform their cultures to meet the realities of a
postSeptember 11 environment and the challenges of the 21st century. In
response to the September 11 terrorist attacks, the Congress passed the

Aviation and Transportation Security Act (ATSA) in November 2001, which
created the Transportation Security Administration (TSA) as a new
organization in the Department of Transportation (DOT). According to ATSA,
TSA is responsible for security in aviation and other modes of
transportation. In addition, ATSA requires TSA to implement specific
practices that are intended to make it a results- oriented organization.
Also

1 U. S. General Accounting Office, Highlights of a GAO Forum: Mergers and
Transformation: Lessons Learned for a Department of Homeland Security and
Other Federal Agencies, GAO- 03- 293SP (Washington, D. C.: Nov. 14, 2002).

in response to the September 11 terrorist attacks, the Congress created
the Department of Homeland Security (DHS) to better coordinate the United
States* efforts to combat terrorism. The creation of this department moves
TSA and its responsibilities for security of all modes of transportation
out of DOT and into the newly created DHS.

A key factor to help organizations achieve their missions and program
results is to implement a positive control environment. A positive control
environment provides discipline and structure as well as the climate that
influences the quality of internal control. In essence, a positive control
environment requires management and employees to establish a supportive
attitude toward internal control and conscientious management. As such,
effective internal control includes strategic planning, budget formulation
and execution, organizational alignment and control, performance
measurement, human capital, financial management, information technology,
and acquisition.

At your request, this report describes TSA*s actions and plans for
implementing the results- oriented practices required in ATSA and
recommends next steps for TSA to take to build a results- oriented
organizational culture and to establish a positive control environment. To
address the objective of this report, we reviewed our models, guides,
reports, and other products on strategic planning and performance

measurement, strategic human capital management, transformation efforts,
and other related areas to identify results- oriented practices and
recommend next steps for TSA. We next analyzed ATSA in relation to our

products to identify any results- oriented practices that were statutorily
required in the legislation. We interviewed officials from various TSA
offices responsible for strategic planning, human capital, training,
budget, public affairs, and policy, among others and reviewed TSA and DOT
missions, performance goals and measures, performance agreements, policies
and procedures, and organizational charts and other relevant
documentation. For additional information on our scope and methodology,
see appendix I.

This report addresses a part of your larger request for GAO to provide
information on the extent to which TSA*s policies, procedures, and
organizational structure are likely to ensure the adequate oversight of
its workforce of air marshals, airline passenger and baggage screeners,
and other security personnel, as well as other matters. We have testified
before your committee and issued reports on TSA and aviation security that
address issues included in your larger request. In an ongoing effort to

provide real- time, constructive assistance to TSA, we provided TSA with
our guides and reports on strategic planning and strategic human capital
management. See related GAO products listed at the end of this report for
a list of GAO reports, testimonies, guides, and other products related to
TSA, transportation security, and results- oriented practices.

Results in Brief TSA has faced immense challenges in its first year of
existence. In its first year, TSA has simultaneously started to build the
infrastructure of a large

organization as it focused primarily on meeting its aviation security
deadlines. TSA reports that it met two of its most significant mandated
deadlines* to deploy federal passenger screeners at airports across the
nation by November 19, 2002 and to screen every piece of checked baggage
for explosives by December 31, 2002. 2 To date, TSA has recruited, hired,

trained, and deployed over 44, 000 federal screeners to meet these
deadlines. As TSA begins to take responsibility for security in the
maritime and surface modes of transportation, its current and future
challenge is to continue to build, sustain, and institutionalize the
organizational capacity to help it achieve its current and future goals.
In this regard, TSA has made an impressive start in implementing practices
in  leadership commitment to creating a high- performing organization,

 strategic planning to establish results- oriented goals and measures, 
performance management to promote accountability for results, 
collaboration and communication to achieve national outcomes, and

2 The Homeland Security Act of 2002, Public Law 107- 296, Nov. 25, 2002,
the legislation that created DHS, amends this requirement. According to
the legislation, if, in his discretion or at the request of an airport,
the Under Secretary of Transportation for Security determines that TSA is
not able to deploy explosives detection systems required in ATSA by
December 31, 2002, then for each airport for which the Under Secretary
makes this determination, the Under Secretary shall submit to specific
congressional committees a detailed plan for the deployment of the number
of explosives detection systems at that airport necessary to meet the
requirement as soon as practicable at that airport but no later than
December 31, 2003. Also, the Under Secretary shall take all necessary
action to ensure that alternative means of screening all checked baggage
are implemented until the requirements have been met. TSA

reports that as of December 31, 2002, about 90 percent of all checked
baggage will be screened using explosives detection systems or explosives
trace detection equipment and the remaining checked baggage will be
screened using alternative means.

 public reporting and customer service to build citizen confidence. These
practices establish the foundation of a results- oriented culture that
will remain critically important when TSA moves into the new DHS.
Specifically, TSA has begun taking actions required in ATSA and used by
leading organizations when they emphasize a focus on results. These
actions lay the groundwork for *recommended next steps* that TSA can take
to help reinforce a results- oriented culture. ATSA*s requirements, TSA*s
actions and plans to implement them, and recommended next steps for each
results- oriented practice are shown in table 1. We provided drafts of
this report to officials from DOT, including TSA, for their review and
comment. TSA*s Director of Strategic Management and Analysis provided oral
comments on behalf of DOT and TSA generally agreeing with the contents,
findings, and recommendations of the draft report. In addition to making
minor technical clarifications, we made changes where appropriate to
reflect progress TSA has made in the results- oriented practices since the

completion of our audit work. Tabl e 1: Summary of ATSA Requirements, TSA
Actions and Plans, and Recommended Next Steps, by Results- Oriented
Practice ATSA requirements TSA actions and plans Recommended next steps

Leadership commitment to creating a high- performing organization

 Requires performance  Stated leadership commitment to creating a
resultsoriented  Establish a performance agreement for the agreements
between the

culture in its 180- day action plan. Under Secretary of Transportation for
Secretary of DOT and the

 Expressed plans to use the Baldrige performance Security that
articulates how bonuses will Under Secretary of excellence criteria as a
management tool to promote

be tied to performance. Transportation for Security

quality and performance.  Add expectations in performance

and between the Under  Established standardized performance agreements
for

agreements for top leadership to foster the

Secretary and TSA TSA executives.

culture of a high- performing organization. executives.

Strategic planning to establish results- oriented goals and measures

 Requires a 5- year  Articulated vision, mission, values, strategic
goal, and  Establish security performance goals and performance plan and

performance goals and measures. measures for all modes of transportation
as annual performance report  Developed automated system to collect
performance

part of a strategic planning process that consistent with the principles
data to demonstrate progress in meeting goals.

involves stakeholders. of the Government  Aligned aviation security
performance goals and  Apply practices that have been shown to
Performance and Results measures with DOT goals.

provide useful information in agency Act.

 Reported it submitted its first annual performance performance plans.

report.

(Continued From Previous Page)

ATSA requirements TSA actions and plans Recommended next steps Performance
management to promote accountability for results

 Requires a performance  Established an interim performance management 
Build on the current performance management system.

system. agreements to achieve additional benefits.  Requires performance
 Created standardized performance agreements for

 Ensure the permanent performance agreements for all groups of employees
that include organizational and

management system makes meaningful employees that include

individual goals and standards of performance. distinctions in
performance. organizational and individual  Involve employees in
developing its goals.

permanent performance management system.

Collaboration and communication to achieve national outcomes

 Requires TSA to work within  Established Offices of Security Regulation
and Policy,  Define more clearly the collaboration and and outside the
government Communications and Public Information, Law

communication roles and responsibilities of to accomplish its mission.

Enforcement and Security Liaison, and Legislative TSA*s various offices. 
Establishes a Transportation Affairs to collaborate and communicate with

 Formalize roles and responsibilities among Security Oversight Board to

stakeholders. governmental entities for transportation

facilitate collaboration and  Convened the Oversight Board, which has met
twice. security. communication.

 Stated plans to use memorandums of understanding and memorandums of
agreement to formalize roles and responsibilities of TSA and other
agencies in transportation security.

Public reporting and customer service to build citizen confidence

 Requires a 180- day action  Submitted 180- day action plan and both
progress  Fill the ombudsman position to facilitate plan and two progress
reports within established time frames.

responsiveness of TSA to the public. reports within 6 months of

 Maintains a Web site to provide information to the  Continue to develop
and implement enactment.

public. mechanisms, such as the customer  Created ombudsman position to
serve customers.

satisfaction index, to gauge customer  Developed measures to track
customer satisfaction. satisfaction and improve customer service. 
Reviewed and eliminated security procedures that do not enhance security
or customer service.

 Stated plans to develop a customer satisfaction index to analyze
customer opinions to improve performance. Source: GAO analysis.

Background Unlike other federal organizations that must transform their
existing cultures, TSA has the opportunity to create a culture that
fosters high

performance from the outset. For TSA, this means creating a culture that
focuses on

 results rather than processes;  matrixes rather than stovepipes;  an
external (citizen, customer, and stakeholder) perspective rather than

an inward perspective;  employee empowerment rather than micromanagement;
 risk management rather than risk avoidance; and  knowledge sharing
rather than knowledge hoarding. TSA is an organization facing immense
challenges to simultaneously build the infrastructure of a large
government agency responsible for security in all modes of transportation
and meet unprecedented deadlines required in ATSA to federalize aviation
security. Two of the most significant deadlines require TSA to

 deploy federal passenger screeners at security checkpoints at 429
airports across the nation by November 19, 2002, and

 install explosives detection systems to screen every piece of checked
baggage for explosives no later than December 31, 2002.

In July 2002, we testified before your committee on the progress TSA has
made in enhancing aviation security and in meeting the deadlines to deploy
federal screeners at security checkpoints and to install explosives

detection systems. 3 At that time, we reported that while TSA*s efforts
were well underway to hire and train thousands of key security personnel,
including federal screeners and security directors, TSA had experienced
unexpected delays in finding and hiring security screener personnel who
met the requirements of ATSA. 4 We also reported that while TSA had made
progress in checking all bags for explosives and planning for the purchase
and installation of explosives detection equipment, TSA had not kept pace
with planned milestones to meet congressional deadlines for using
explosives detection systems to screen 100 percent of checked baggage. In
addition, we reported that TSA had not fully implemented the

responsibilities required in ATSA such as the security of other modes of
transportation, cargo security, and general aviation security. Finally, we
also observed that the move of TSA from DOT to a DHS poses further
challenges that may delay progress on meeting mandated deadlines and
addressing other security vulnerabilities in the nation*s transportation
system.

3 U. S. General Accounting Office, Aviation Security: Transportation
Security Administration Faces Immediate and Long- Term Challenges, GAO-
02- 971T (Washington, D. C.: July 25, 2002).

4 ATSA requires that federal security screener personnel have a
satisfactory or better score on a federal security screening personnel
selection examination; be a U. S. citizen; possess a high school diploma,
general equivalency diploma, or experience that the Under Secretary has
determined to be sufficient for the individuals to perform the duties of
the position; have basic aptitudes and physical abilities, including color
perception, visual and aural acuity, physical coordination, and motor
skills; have English proficiency to include reading,

speaking, and writing in English; have the ability to demonstrate daily a
fitness for duty without impairment due to illegal drugs, sleep
deprivation, medication, or alcohol; successfully pass an employment
investigation background check (including a criminal history record
check); not pose a national security risk or threat; and satisfactorily
complete all initial, recurrent, and appropriate specialized training
required by the security program. The requirement for U. S. citizenship
was subsequently changed by Public Law 107- 296, Nov. 25, 2002, to include
legal residents of the United States.

TSA and DOT leadership have also testified before the Congress at several
hearings on challenges TSA was facing as it tried to meet its deadlines
and other transportation security responsibilities while establishing
itself as a federal organization. 5 Leadership stated that one of TSA*s
challenges is to build a large organization from the ground up.
Specifically, in January 2002, TSA only had approximately 15 employees of
the more than 60,000 it reported it would need by the end of 2002. In
addition, the Under Secretary of Transportation for Security testified
that at that time the congressionally mandated cap on the number of
employees it can employ of 45,000 would limit its ability to meet the
deadlines. TSA also testified on the need for additional funding to meet
its security responsibilities and the delays it experienced in receiving
this funding. According to TSA and DOT, delays in funding and restrictions
on the use of the additional funding at that time had undermined TSA*s
ability to meet the deadlines. DOT leadership stated that TSA is
especially disadvantaged by operating under a continuing resolution
because it does not have money from previous years to help bridge the gaps
between programmatic needs and the funding it receives

under the continuing resolution. When the Congress created TSA, it
required practices consistent with other government initiatives to
restructure their agencies in order to instill results- oriented
organizational cultures. In the United States and abroad, governments have
restructured their agencies to improve the delivery of government services
and clarify accountability for results. During the 1980s and 1990s, the
Organisation for Economic Co- operation and Development reported that its
member countries increased efforts to restructure their public sector
organizations for results. 6 Among member countries, restructured
organizations represent about 50 percent, sometimes as high as 75 percent,
of public expenditure and public servants.

5 Statement of Admiral James Loy, Acting Under Secretary of Transportation
for Security before the Commerce, Science, and Transportation Committee,
U. S. Senate on September 10, 2002; Statement of Stephen J. McHale, Deputy
Under Secretary of

Transportation for Management and Policy, Transportation Security
Administration, before the Committee on Government Reform, U. S. House of
Representatives in Atlanta, Georgia on August 7, 2002; Statement of the
Honorable Norman Y. Mineta, Secretary of Transportation before the
Committee on Commerce, Science, and Transportation, U. S. Senate on July
25, 2002; Statement of the Honorable Norman Y. Mineta, Secretary of

Transportation before the Subcommittee on Aviation, Committee on
Transportation and Infrastructure, U. S. House of Representatives on July
23, 2002. 6 Organisation for Economic Co- operation and Development,
Distributed Public Governance: Agencies Authorities And Other Autonomous
Bodies, Preliminary Draft (Nov. 14, 2001).

In 1988, the United Kingdom started to restructure its government agencies
to increase their focus on accountability and improve customer service.
Called *executive agencies,* these restructured agencies are still the
predominant form of service delivery in the United Kingdom. As of December
2001, there were over 130 executive agencies covering more

than three- quarters of the British civil service. In July 2002, the Prime
Minister*s Office of Public Services Reform reviewed the performance of
these executive agencies and set out to identify management principles
that may have contributed to their success. 7 The Prime Minister*s Office
concluded that the restructured executive agency model has been a

success and the management principles underlying the restructured agencies
continue to be highly relevant. These principles are: (1) a clear focus on
delivering specified goals within a framework of accountability, (2)
responsibility for performance resting clearly with the chief executive

and agency staff, and (3) an agency focus that is outward rather than
inward.

In the 1990s, the Congress recognized the need to restructure federal
agencies and to hold them accountable for achieving program results. 8 To
this end, the Congress established performance- based organizations

(PBOs), modeled after the United Kingdom*s executive agencies: the Office
of Student Financial Assistance, United States Patent and Trademark
Office, and Air Traffic Organization. Designed in statute, PBOs were to
commit to clear management objectives and specific targets for improved
performance. These clearly defined performance goals, coupled with direct

ties between the achievement of performance goals and the pay and tenure
of the head of the PBO and other senior managers, were intended to lead to
improved performance. Specifically, the head of the PBO is appointed for a

set term, subject to annual performance agreements, and eligible for
bonuses for improved organizational performance.

Similarly for TSA, the Congress required an Under Secretary to be
appointed for a 5- year term to manage TSA who is entitled to a bonus
based 7 The Prime Minister*s Office of Public Services Reform, Better
Government Services: Executive Agencies in the 21 st Century (London:
2002). 8 U. S. General Accounting Office, Federal Student Aid: Additional
Management Improvements Would Clarify Strategic Direction and Enhance
Accountability, GAO- 02- 255 (Washington, D. C.: Apr. 30, 2002);
Performance- Based Organizations: Lessons Learned From the British Next
Steps Initiative, GAO/ T- GGD- 97- 151 (Washington, D. C: July 8, 1997);

and Performance- Based Organizations: Issues for the Saint Lawrence Seaway
Development Corporation Proposal, GAO/ GGD- 97- 74 (Washington, D. C: May
15, 1997).

on performance; measurable goals to be outlined in a 5- year performance
plan and reported annually; a performance management system to include
individual and organizational goals for managers and employees; an annual
performance agreement for the Under Secretary, senior managers, and staff;
an oversight board to facilitate communication and collaboration; and
public reporting requirements to build citizen confidence.

TSA will be 1 of over 20 originating agencies or their components with
differing missions, cultures, systems, and procedures that are to move
into DHS. The newly created DHS is the most recent manifestation of the
continuing consideration of how best to restructure government to respond
to the challenges of the 21 st century. At a GAO- sponsored forum on
mergers and transformation, participants observed that people and cultural
issues are at the center of successful mergers and transformations. 9 The
importance of these issues should not be avoided, but aggressively
addressed at the outset and throughout the process.

TSA Actions and Plans Within its first year of existence, TSA has made an
impressive start in to Implement Selected

implementing practices that can create a results- oriented organizational
culture and help TSA as it begins to take responsibility for the security
of Results- Oriented

the maritime and surface modes of transportation. These practices include
Practices

 leadership commitment to creating a high- performing organization, 
strategic planning to establish results- oriented goals and measures, 
performance management to promote accountability for results, 
collaboration and communication to achieve national outcomes, and  public
reporting and customer service to build citizen confidence. TSA*s actions
and plans to implement the results- oriented practices required in ATSA
and recommended next steps that can help TSA build a results- oriented
culture are described on the following pages.

9 GAO- 03- 293SP.

Leadership Commitment to A critical element and the foundation of TSA*s
successful implementation Creating a High- Performing

of results- oriented practices will be the demonstrated and sustained
Organization

commitment of its top leaders. Ultimately, successful organizations
understand that they must often change their culture to successfully
transform themselves, and that such a change starts with top leadership.

Top leadership involvement is essential to overcoming an organization*s
natural resistance to change, marshalling the resources needed in many
cases to improve management, and building and maintaining the
organizationwide commitment to new ways of doing business. At a recent
GAO- sponsored roundtable, we reported on the necessity to elevate
attention, integrate various efforts, and institutionalize accountability
to lead efforts to fundamentally transform an agency and address key

management functions at the highest appropriate level in the organization.
10 At TSA, the leadership faces a daunting challenge to create this
results- oriented culture. From the outset, this challenge was exacerbated
by the change in TSA*s head position, the Under Secretary of
Transportation for Security, just 8 months after the organization was
established. TSA has continually stated its commitment to becoming a high-
performing organization, and has reinforced that commitment in its
performance agreements for TSA executives.

TSA leadership has expressed its commitment to creating a resultsoriented
organizational culture. Specifically, in its 180- day action plan report
to the Congress outlining goals and milestones for defining

acceptable levels of performance in aviation security, TSA stated that it
is committed to *being a leading- edge, performance- based organization*
an organization whose operative culture establishes performance
expectations that support the mission, drives those expectations into
organizational and individual performance plans, and collects objective

data to assess its performance.* 10 U. S. General Accounting Office,
Highlights of a GAO Roundtable: The Chief Operating Officer Concept: A
Potential Strategy To Address Federal Governance Challenges, GAO- 03-
192SP (Washington, D. C.: Oct. 4, 2002).

TSA leadership also plans to use the Baldrige performance excellence
criteria as a management tool to promote an awareness of quality and
performance in TSA. 11 These criteria are: leadership, strategic planning,
customer and market focus, information and analysis, human resource focus,
process management, and business results. TSA leadership hired a

former Baldrige award application examiner to be TSA*s Chief Quality
Officer and to head the Office of Quality Performance. According to TSA
officials, the Office of Quality Performance will serve as internal
consultants to TSA management to help them use the Baldrige criteria as a

tool to create a culture focused on performance. To hold TSA*s leadership
accountable for achieving results, ATSA requires TSA to establish a
performance agreement between the Under Secretary and the Secretary of DOT
that includes organizational and individual performance goals. A TSA
official told us that as of November 2002, no performance agreement had
been finalized for the Under Secretary since the current Under Secretary
has been acting in the position. 12 During times of transition, high-
performing organizations recognize that performance agreements can
reinforce accountability for organizational goals. 13 To t hi s end, when
TSA moves into its new parent department, DHS, TSA can use

performance agreements to maintain a consistent focus on its goals. ATSA
also allows for the Under Secretary to receive a bonus for any calendar
year up to 30 percent of the annual rate of pay, based on a performance
evaluation. However, TSA*s interim performance management system does not
specifically address performance bonuses for the head of TSA.

In addition, ATSA requires TSA to establish performance agreements between
TSA*s Under Secretary and his or her executives that set organizational
and individual performance goals. TSA has created a standardized
performance agreement for TSA executives as a part of its interim
performance management system. TSA*s executive agreements

11 The Baldrige performance excellence criteria are used as the basis of
the Baldrige Award, which is given by the President of the United States
to organizations that are judged to be outstanding in seven criteria. The
Congress established the award program to recognize organizations for
their achievements in quality and performance and to raise awareness about
the importance of quality and performance as a competitive edge.

12 The acting Under Secretary of Transportation for Security was sworn in
on November 25, 2002. 13 U. S. General Accounting Office, Managing for
Results: Emerging Benefits From Selected Agencies* Use of Performance
Agreements, GAO- 01- 115 (Washington, D. C.: Oct. 30, 2000).

include both organizational and individual goals, as shown in figure 1.
For example, each executive performance agreement includes an
organizational goal such as to maintain the nation*s air security and
ensure

an emphasis on customer satisfaction. The agreement also includes
individual goals, such as to meet or exceed requirements for satisfactory
performance and to demonstrate commitment to civil rights. In addition,
the agreement includes competencies, such as to provide leadership in
setting the workforce*s expected performance levels and ensure that the
executive*s work unit contributes to the accomplishment of TSA*s mission.
TSA can strengthen these performance agreements by setting explicit
targets that are directly linked to organizational goals.

Figure 1: Standardized Performance Agreement for TSA Executives

Employee Name: Position: Executive Organization: Performance Period: From:
As a Transportation Security Administration executive, I will work
diligently to achieve the following organizational and individual goals:
Organizational Goal( s) : TSA will improve and maintain the security of
American air travel by effectively deterring or preventing successful

Individual Goal( s) : My organization will continuously set the standard
for excellence in transportation security through its people,

I also agree to meet or exceed the following level of performance:
Standard for Satisfactory Performance:

Performance Agreement Initiation: Executive signature and date:

Mid- Cycle Review: Executive signature and date:

Performance Assessment at the end of the appraisal period ( supervisor
should circle yes or no) :

Executive signature and date: Supervisor signature and date:

Source: TSA.

To:

to travelers. satisfaction. processes, and technologies.

( Add at least one program goal. )

I will: national and program goals and priorities.

evaluation of programs and polices. cooperation to accomplish goals.

Social Security Number:

terrorist ( or other) incidents on airlines and at airports, with minimal
disruption to transportation and complete service While maintaining the
nation s air security, TSA employees will ensure an emphasis on customer
satisfaction. During the first year of TSA, make substantial contributions
toward the successful creation of the Administration and the
accomplishment of organizational goals, i. e. , federalize aviation
security; improve security ; and customer

Supplemental Goal( s) : ( The supervisor may include additional
organizational goal( s) here. )

I will meet or exceed all requirements for Satisfactory Performance. I
will demonstrate through actions, words and leadership, my commitment to
civil rights at TSA.

Governmentwide, to help hold senior executives accountable for
organizational results, federal agencies are to establish performance
management systems that (1) hold senior executives accountable for their
individual and organizational performance by linking performance
management with the results- oriented goals of the Government Performance
and Results Act (GPRA); (2) evaluate senior executive performance using
measures that balance organizational results with customer satisfaction,
employee perspectives, and any other measures agencies decide are
appropriate; and (3) use performance results as a basis for pay, awards,
and other personnel decisions. We have found that progress is needed in
explicitly linking senior executive expectations for performance to
results- oriented organizational goals and greater emphasis should be
placed in fostering the necessary collaboration both within and across
organizational boundaries to achieve results. 14 Furthermore, a

specific performance expectation to lead and facilitate change could be a
critical element as agencies transform themselves to succeed in an
environment that is more results oriented, less hierarchical, and more

integrated. Recommended Next Steps Establish a performance agreement for
the Under Secretary of

Transportation for Security that articulates how bonuses will be tied to
performance. To hold the Under Secretary accountable for achieving
results, DOT, or the new parent department DHS, should create a
performance agreement for the Under Secretary that includes organizational
and individual goals and also articulates how bonuses for the Under
Secretary will be tied to his performance in achieving the goals in the
performance agreement.

Add expectations in performance agreements for top leadership to foster
the culture of a high- performing organization. Successful organizations
understand that top leadership performance and accountability are critical
to their success and to the success of the federal government*s
transformation. TSA can strengthen its current performance agreements for
top leadership, including the Under Secretary and senior executives, by
adding performance expectations that

 establish explicit targets directly linked to organizational goals, 14
U. S. General Accounting Office, Results- Oriented Cultures: Using
Balanced Expectations to Manage Senior Executive Performance, GAO- 02- 966
(Washington, D. C.: Sept. 27, 2002).

 foster the necessary collaboration within and across organizational
boundaries to achieve results, and

 demonstrate commitment to lead and facilitate change. Strategic Planning
to

Strategic planning is a continuous, dynamic, and inclusive process that
Establish Results- Oriented

provides the foundation for the fundamental results the organization seeks
Goals and Measures

to achieve. ATSA*s requirements for TSA are consistent with the
resultsoriented planning and reporting principles embodied in GPRA. GPRA
provides a strategic planning and management framework intended to improve
federal performance and hold agencies accountable for achieving results.
Effective implementation of this framework requires agencies to clearly
establish results- oriented performance goals in strategic and annual
performance plans for which they will be held accountable, measure
progress towards those goals, determine the strategies and resources to
effectively accomplish the goals, use performance information to make the
programmatic decisions necessary to improve performance, and formally

communicate results in performance reports. Specifically, ATSA requires
TSA to submit to the Congress a 5- year performance plan and an annual
performance report, but does not specify when these documents are to be
submitted to the Congress.

TSA has taken the first steps to establishing the performance planning and
reporting framework consistent with GPRA. The starting point for the
framework envisioned under GPRA is the strategic plan that describes an
organization*s mission, outcome- oriented strategic goals, strategies to

achieve these goals, and key factors beyond the agency*s control that
could impact the goals* achievement, among other things. According to TSA
officials, TSA is currently developing its strategic plan. TSA has,
however, made components of its plan public. TSA has articulated its
mission, vision, and values. TSA*s mission is to protect the nation*s
transportation systems to ensure freedom of movement for people and
commerce. TSA*s vision is to continuously set the standard for excellence
in transportation security

through people, processes, and technologies and its values are integrity,
innovation, courtesy and respect, competence, customer focus, dedication,
diversity, and teamwork. In addition, TSA has set an overall strategic
goal: to prevent intentional harm or disruption to the transportation
system by terrorists or other persons intending to cause harm. To support
this strategic goal, TSA has defined three performance goals:

 meeting the ATSA mandates to federalize transportation security,

 maintaining and improving aviation security, and  servicing TSA
customers. To demonstrate its progress toward meeting its performance
goals, TSA established an initial set of 32 performance measures. For
example, TSA*s primary performance measures for its performance goal to
maintain and improve aviation security are the percentage of bags screened
by explosives detection systems and the percentage of trained screeners.
Other measures to complement these primary measures include the percentage
of explosives detection systems deployed, the percentage of

screeners with 60 hours of on- the- job training completed, and the
percentage of screeners compliant with training standards. TSA plans to
develop more outcome- oriented goals and measures in fiscal year 2003 and
is in the process of finalizing strategies to achieve its goals.

To report on its progress in meeting its performance goals and measures,
TSA has begun to build the capacity to gather and use organizational
performance information. TSA has installed an automated performance
management information system, which became operational in April 2002 and
is designed to collect and report data on TSA*s performance measures. Data
will be collected from federal security directors, security screener
supervisors, and headquarters officials and reported through Web- based
reports designed for internal decision making and external reporting.
According to TSA officials, the system will be expanded to include goals
and measures related to all modes of transportation in upcoming fiscal
years. As required by ATSA, TSA reported on November 19, 2002, that it
submitted its first annual performance report.

TSA has linked its aviation security performance goals to those of its
parent department, DOT, to provide a clear, direct understanding of how
the achievement of its performance goals will lead to the achievement of
DOT*s strategic goal for homeland security, as shown in figure 2.
Specifically, TSA*s performance goals to federalize and maintain and
improve aviation

security are intended to contribute to DOT*s performance goal to *reduce
vulnerability to crime and terrorism and promote regional stability* and
its strategic goal on homeland security, to *ensure the security of the
transportation system for the movement of people and goods and support the
National Security Strategy.* As TSA establishes its performance goals for
other modes of transportation, it should continue to align its goals with
DOT*s goals. When TSA moves to DHS, it will be necessary to maintain goal

alignment with its new parent department.

Figure 2: DOT and TSA Goal Alignment for Aviation Security DOT strategic

Homeland security - Ensure the security of the transportation system for
the movement of people and goods,

goal

and support the National Security Strategy

DOT

Reduce vulnerability to crime and terrorism and promote regional stability

performance goal

DOT performance

Ensure that no terrorist or other individual is successful in Reduce
passenger waiting time at screening

goals for

causing harm or significant disruption to the aviation system checkpoints
to no more than 10 minutes,

aviation

95 percent of the time

security TSA strategic

Prevent intentional harm or disruption to the transportation system by
terrorists or other persons intending to cause harm

goal TSA

Federalize aviation Maintain and improve

performance

security aviation security

Customer satisfaction

goals TSA primary

Percentage of Percentage of

Percentage of Percentage of

Percentage of Average

performance

required staff airports that have

bags screened by trained

complaints per customer

measures

on board been rolled over

explosives screeners

1,000 wait time to federal authority

detection systems passengers

Source: GAO analysis based on "FY 2003 DOT Performance Plan" and "TSA
Initial Performance Measures and Their Definitions".

GPRA requires agencies to consult with the Congress and solicit the views
of other stakeholders as they develop their strategic plans. 15 However,
TSA has stated few plans to involve stakeholders in its strategic planning
process. Such consultations provide an important opportunity for TSA and
the Congress to work together to ensure that agency missions are focused,
goal are specific and results oriented, and strategies and funding
expectations are appropriate and reasonable. Results- oriented
organizations also recognize that it is important to broaden stakeholder
involvement to create a basic understanding among stakeholders of
competing goals. As TSA works to meet its goals, it will continue to face
ongoing challenges to balance aviation security against customer service.
While TSA needs to screen passengers and baggage carefully to meet its

goal to maintain the security of the aviation system, it must efficiently
move customers and their baggage through the aviation system to minimize
passenger inconvenience to encourage them to continue using air
transportation.

Recommended Next Steps Establish security performance goals and measures
for all modes of transportation as part of a strategic planning process
that involves stakeholders. Stakeholder involvement, and specifically
congressional consultation, is particularly important for TSA in its
strategic planning process given the importance of its mission and the
necessity to establish additional goals to address other modes of
transportation. In addition, TSA operates in a complex political
environment where there will be the ongoing need to balance the sometimes
conflicting goals of security and customer service.

We identified approaches that can enhance the usefulness of consultations
between TSA and the Congress that can also apply to consultations with
external stakeholders. 16 Among the approaches are the following.

 Engage the right people. Including people who are knowledgeable about
the topic at hand, such as TSA officials who are knowledgeable about
particular transportation modes and specific programs, is important when
consulting with the Congress and other stakeholders.

15 U. S. General Accounting Office, Agencies* Strategic Plans Under GPRA:
Key Questions to Facilitate Congressional Review, GAO/ GGD- 10. 1.16
(Washington, D. C.: May 1997). 16 U. S. General Accounting Office,
Managing for Results: Enhancing the Usefulness of GPRA Consultations
Between the Executive Branch and Congress, GAO/ T- GGD- 97- 56
(Washington, D. C.: Mar. 10, 1997).

 Address differing views. Stakeholders may have differing views on what
they believe the level of detail discussed during consultation meetings
should be. For example, participants may want to engage in discussion that
goes beyond TSA*s mission to the appropriate balance between

enforcing security and servicing passengers.  Establish a consultation
process that is iterative. All parties involved in

transportation security recognize that the consultation process should be
continuous and they should meet as many times as both sides feel are
necessary to reach a reasonable consensus on TSA*s strategic and
performance goals to address transportation security.

Apply practices that have been shown to provide useful information in
agency performance plans. Results- oriented organizations focus on the
process of performance planning rather than the planning documents
themselves. GPRA was intended, in part, to improve congressional decision
making by giving the Congress comprehensive and reliable information on
the extent to which federal programs are fulfilling their statutory
intent. We have identified practices that TSA can apply to ensure the
usefulness of its required 5- year performance plan to TSA managers, the
Congress, and other decision makers and interested parties. 17 Table 2
outlines these practices.

17 U. S. General Accounting Office, Agency Performance Plans: Examples of
Practices That Can Improve Usefulness to Decisionmakers, GAO/ GGD/ AIMD-
99- 69 (Washington, D. C.: Feb. 26, 1999) and Agencies* Annual Performance
Plans Under the Results Act: An Assessment Guide to Facilitate
Congressional Decisionmaking, GAO/ GGD/ AIMD- 10. 1.18 (Washington, D. C.:
February 1998).

Table 2: Summary of Opportunities to Help Ensure Useful Annual Plans and
Applied Practices Opportunities to help ensure useful annual plans Applied
practices

Articulate a results orientation. 1. Create a set of performance goals and
measures that addresses important dimensions of program performance and
balances competing priorities. 2. Use intermediate goals and measures to
show progress or contribution to intended results. 3. Include explanatory
information on the goals and measures. 4. Develop performance goals to
address mission- critical management problems. 5. Show baseline and trend
data for past performance. 6. Identify projected target levels of
performance for multiyear goals. 7. Link the goals of component
organizations to departmental strategic goals.

Coordinate cross- cutting programs. 8. Identify programs that contribute
to the same or similar results. 9. Set complementary performance goals to
show how differing program strategies are mutually

reinforcing and establish common or complementary performance measures, as
appropriate. 10. Describe* briefly or refer to a separate document*
planned coordination strategies.

Show how strategies will be used to 11. Link strategies and programs to
specific performance goals and describe how they will achieve goals.
contribute to the achievement of those goals.

12. Describe strategies to leverage or mitigate the effects of external
factors on the accomplishment of performance goals. 13. Discuss strategies
to resolve mission- critical management problems. 14. Discuss* briefly or
refer to a separate document* plans to ensure that mission- critical

processes and information systems function properly and are secure. Show
performance consequences 15. Show how budgetary resources relate to the
achievement of performance goals. of budget and other resource

16. Discuss* briefly and refer to the agency capital plan* how proposed
capital assets decisions.

(specifically information technology investments) will contribute to
achieving performance goals. 17. Discuss* briefly or refer to a separate
plan* how the agency will use its human capital. Build the capacity to
gather and use

18. Identify internal and external sources for data. performance
information. 19. Describe efforts to verify and validate performance data.

20. Identity actions to compensate for unavailable or low- quality data.
21. Discuss implications of data limitations for assessing performance.

Source: GAO/ GGD/ AIMD- 99- 69.

Performance Management TSA has an opportunity to use its individual
performance management

to Promote Accountability system as a strategic tool to drive internal
change and achieve external

for Results results. TSA, as a new organization, has a critical challenge
in (1) integrating potentially more than 60,000 employees into a new

organization, (2) creating a common culture, and (3) achieving its
security, customer satisfaction, and related performance goals in an
effective, efficient, and economical manner. The individual performance

management system can be an essential tool in meeting all three of the
above. To help agency leaders manage their people and integrate human
capital considerations into daily decision making and the program results
they seek to achieve, we developed a strategic human capital model. 18 The
model highlights the kinds of thinking that agencies should apply, as well
as some of the steps they can take, to make progress in managing human
capital strategically. In our model, we identify two critical success
factors that can assist organizations in creating results- oriented
cultures: (1) a *line of sight* showing how unit and individual
performance link to organizational goals and (2) the inclusiveness of
employees. TSA can apply these factors to its performance management
system to help create a results- oriented culture.

ATSA requires TSA to establish a performance management system that is to
strengthen the organization*s effectiveness by providing for the
establishment of goals for managers, employees, and the organization that
are consistent with the agency*s performance plan. TSA used the Federal
Aviation Administration*s system until it established its own system in
July 2002, when TSA leadership approved an interim employee performance
management system. The interim system is to remain in place until a
permanent system is created and implemented. As of November 2002, TSA had
not established a time frame for implementing its permanent performance
management system.

TSA*s interim system provides specific requirements for planning
individual performance, monitoring that performance, determining employee
development needs, appraising performance, and recognizing and rewarding
performance, as shown in figure 3. For example, at the

beginning of the appraisal cycle, employees* expectations are to be
established using a performance agreement; throughout the cycle

18 U. S. General Accounting Office, A Model of Strategic Human Capital
Management, GAO02- 373SP (Washington, D. C.: Mar. 15, 2002).

supervisors are to monitor performance; halfway through the performance
cycle supervisors are to provide feedback to employees and identify
employee development needs; and at the end of the cycle, supervisors are
to appraise performance at two levels: fully satisfactory and
unacceptable. Employees may then receive a bonus or other incentive if
their performance is at the fully satisfactory level. TSA*s first
appraisal cycle ended November 15, 2002.

Figure 3: TSA*s Interim Performance Management System Planning performance

Employees are to receive a performance agreement establishing their
performance expectations within 30 days of the employees'

start date.

Recognizing and rewarding performance

Monitoring performance

Employees may receive a bonus or other Employees are to receive feedback
halfway incentive if they have demonstrated

through the performance cycle and at the end performance at the fully
satisfactory level.

of the performance cycle. Supervisors must provide justification for

awards.

Appraising performance Developing performance

Employees' performance is to be appraised Supervisors are to work with
employees to

against the goals described in their identify developmental needs and
opportunities

performance agreements. The appraisal such as on- the- job training,
formal training, or

includes two levels: (1) fully satisfactory mentoring.

and (2) unacceptable. Source: TSA.

In addition, ATSA requires that TSA*s performance agreements for its
employees include individual and organizational goals. These performance
agreements can help TSA align individual and organizational goals and

establish the line of sight that helps create a results- oriented culture.
TSA has created standardized performance agreements for groups of
employees including transportation security screeners, supervisory
transportation security screeners, supervisors, and executives. These
performance

agreements include a consistent set of organizational goals, individual
goals, and standards for satisfactory performance. Supervisors may
customize performance agreements for the individual job by adding
additional organizational and individual goals and standards of
performance. For example, the standardized performance agreement for
security screeners includes two organizational goals: (1) to improve and
maintain the security of American air travel by effectively deterring or
preventing successful terrorist (or other) incidents on aircraft and at

airports, with minimal disruption to transportation and complete service
to travelers and (2) to ensure an emphasis on customer satisfaction while
maintaining the nation*s air security. In addition, the standardized
performance agreement for security screeners includes an individual goal

to consistently meet or exceed the basic proficiency requirements by: 
vigilantly carrying out duties with utmost attention to tasks that will

prevent security threats,  demonstrating the highest levels of courtesy
to travelers and working to maximize their levels of satisfaction with TSA
services,

 working as an effective team member at assigned post to ensure that
security violations do not get past the team,  contributing to the
accomplishment of TSA*s mission and vision,  behaving in a way that
supports TSA*s values, and  demonstrating the highest level of concern
for the civil rights of

coworkers and the traveling public. Finally, the agreement includes
standards for satisfactory performance for security screeners. Standards
include (1) completing all required training successfully and as
scheduled, performing satisfactorily on required proficiency reviews, and
passing operational testing satisfactorily and (2) performing security
functions in an effective and timely manner in

accordance with TSA prescribed guidelines.

As described in our strategic human capital model, in addition to and
concurrent with the first critical success factor of creating a line of
sight showing how unit and individual performance link to organizational
goals, successful organizations involve employees to build results-
oriented cultures. This critical success factor is especially timely for
TSA as it transitions from its interim performance management system and
finalizes its permanent system. Particularly when developing a new
results- oriented performance management system, leading organizations
have found that actively involving employees can build confidence and
belief in the system. We reported that when reforming their performance
management systems,

agencies in other countries consulted a wide range of stakeholders early
in the process, obtained feedback directly from employees, and engaged
employee unions or associations. 19 Recommended Next Steps Build on the
current performance agreements to achieve

additional benefits. Successful organizations design and implement
performance management systems that align individual employee performance
expectations with agency goals so that individuals understand the
connections between their daily activities and their organization*s
success. While TSA has created standardized performance agreements for

groups of employees as a part of its interim performance management
system, it can also use its performance agreements to achieve benefits by
doing the following. 20  Strengthen alignment of results- oriented goals
with daily operations. Performance agreements can define accountability
for specific goals

and help align daily operations with agencies* results- oriented
programmatic goals. As TSA continues to develop and gain experience with
performance agreements, TSA should ensure an explicit link exists between
individual performance expectations and organizational goals for all
employees. For example, while TSA lists certain competencies for
individuals that are related to organizational goals such as demonstrating
the highest level of courtesy to travelers, the next step is to set
individual targets to meet the organizational goals.

19 U. S. General Accounting Office, Results- Oriented Cultures: Insights
for U. S. Agencies from Other Countries* Performance Management
Initiatives, GAO- 02- 862 (Washington, D. C.: Aug. 2, 2002). 20 GAO- 01-
115.

 Foster collaboration across organizational boundaries. Performance
agreements can encourage employees to work across traditional
organizational boundaries or *silos* by focusing on the achievement of
organizationwide goals. For example, as TSA continues to assume
responsibility for security in all modes of transportation, TSA can use
employee performance agreements to set expectations that encourage
employees to work collaboratively to achieve cross- cutting transportation
security goals.

 Enhance opportunities to discuss and routinely use performance
information to make program improvements. Performance agreements can
facilitate communication about organizational performance and pinpoint
opportunities to improve performance. TSA*s performance

management process offers several opportunities to discuss an individual*s
performance and how that individual can contribute to TSA*s goals when
meeting to set performance expectations, reviewing

midyear progress, and assessing performance at year- end. These formal
expectation, feedback, and assessment sessions are important to clarify
responsibility and accountability. As a next step, TSA can ensure that it
uses its performance agreements as a critical component of its performance
management process to have on- going, two- way consultations between
employees and their supervisors. In other words, strategic performance
management* a performance management

system that is tied to organizational goals* is not just a once- or twice-
ayear formal occurrence, but rather is ongoing and routine.

 Provide a results- oriented basis for individual accountability.
Performance agreements can serve as the basis for performance evaluations.
An assessment of performance against the performance agreement can provide
TSA and its employees the data needed to better achieve organizational
goals.

 Maintain continuity of program goals during transitions. Performance
agreements help to maintain a consistent focus on a set of broad
programmatic priorities during changes in leadership and organization. TSA
can use its process for developing performance agreements as a tool to
communicate priorities and instill those priorities throughout the
organization during periods of transition.

Ensure the permanent performance management system makes meaningful
distinctions in performance. In addition to providing candid and
constructive feedback to help individual employees maximize their
potential in understanding and realizing goals and objectives of the
agency, an effective performance management system provides management
with the objective and fact- based information it needs to reward top
performers and the necessary information and documentation to deal with
poor performers. Under TSA*s interim performance

management system, employee performance is appraised at only two levels*
fully satisfactory and unacceptable. We have observed that such a pass/
fail system does not provide enough meaningful information and dispersion
in ratings to recognize and reward top performers, help everyone attain
their maximum potential, and deal with poor performers. 21 As a next step,
TSA should consider appraisal systems with more than two

standards of performance. By using its performance agreements as the basis
in making distinctions in performance, TSA can have objective and fact-
based information and the documentation necessary to have an effective
performance management system.

Involve employees in developing its permanent performance management
system. TSA has the opportunity to create a culture that values the
importance of employees to help TSA achieve its goals. Employee
involvement improves the quality of the system by providing a front line
perspective and helping to create organizationwide understanding and
ownership. In addition, even after TSA develops its

permanent performance management system, involving employees in the
process can help employees perceive that the system is fair.

We have identified practices that organizations can apply to further
involve employees. 22 The practices TSA can adopt to promote inclusiveness
and encourage employee ownership for the permanent performance management
system include the following.

 Seek employee input. Leading organizations not only provide information
to employees but also commonly seek their employees* input on a periodic
basis and explicitly address and use that input to

21 U. S. General Accounting Office, FBI Reorganization: Initial Steps
Encouraging but Broad Transformation Needed, GAO- 02- 865T (Washington, D.
C.: June 21, 2002). 22 U. S. General Accounting Office, Human Capital:
Practices That Empowered and Involved Employees, GAO- 01- 1070 (Washington
D. C.: Sept. 14, 2001).

adjust their human capital practices. As TSA matures as an organization it
can collect feedback using employee satisfaction surveys, focus groups,
employee advisory councils, and/ or employee task forces.  Involve
employees in planning and sharing performance information. Involving
employees in the planning process to develop agency goals helps to
increase employees* understanding and acceptance of them and improve
motivation and morale. For TSA, employees* understanding and acceptance of
its goals is particularly important because they are to

be held accountable for achieving the goals set out in their performance
agreements.

Collaboration and Virtually all of the results that the federal government
strives to achieve

Communication to Achieve require the concerted and coordinated efforts of
two or more agencies. National Outcomes

Thus, similar to virtually all federal agencies, TSA must collaborate and
communicate with stakeholders within and outside the government to achieve
meaningful results, and participate in matrixed relationships* or networks
of governmental, private sector, and nongovernmental organizations working
together* to achieve its goals. This collaboration and communication will
be even more important given the complex nature of national security-
related goals.

ATSA requires TSA to collaborate and communicate with organizations across
the government and in the private sector to accomplish its mission. For
example, ATSA requires TSA to do the following.

 Work with the Federal Aviation Administration to establish procedures
for notifying its Administrator and others of the identity of individuals
known to pose, or suspected of posing, a risk of air piracy or terrorism
or a threat to airline or passenger safety.

 Enter into memorandums of understanding with federal agencies or other
entities to share or otherwise cross- check data on individuals identified
on federal agency databases who may pose a risk to transportation or
national security.

 Coordinate with federal agencies and air carriers to require air
carriers to use information from government agencies to identify
individuals on passenger lists who may be a threat to civil aviation or
national security; and if such an individual is identified, notify
appropriate law

enforcement agencies, prevent the individual from boarding an aircraft, or
take other appropriate action with respect to that individual.

TSA has established a number of offices to collaborate and communicate
with external stakeholders.

 The Office of Security Regulation and Policy is to coordinate with TSA*s
offices and stakeholders on policy, rulemaking, and customer service
issues.

 The Office of Communications and Public Information is to serve as an
advisor to senior leadership on the public impacts of major policy
decisions, internal audience concerns, and community reaction to and
civilian news media interest in TSA missions and functions.

 The Office of Law Enforcement and Security Liaison is to serve as the
national level liaison with federal, state, and local law enforcement and
the international community and is to administer TSA*s Freedom of
Information Act requirement, which allows the public to request
information about TSA policies, procedures, operations, and decisions,
among other things and TSA*s Privacy Act requirement, which allows the
public to request any records that the government has about the individual
making the request.

 The Office of Legislative Affairs is to be responsible for working and
communicating with the Congress.

TSA has experienced some challenges with collaboration and communication.
According to TSA officials, TSA is still defining and clarifying the
specific roles and responsibilities of the offices that are to

communicate with stakeholders. As of December 2002, TSA did not have
written guidance to provide information about TSA communication roles and
responsibilities to other TSA employees or to external stakeholders. In
addition, the Under Secretary testified that there were some problems with
reaching stakeholders in the past, specifically the airlines and airports.
23 The Under Secretary recognized that collaboration with these and other

stakeholders is important to ensure aviation security and made a personal
commitment that TSA will make a concerted effort to communicate better

23 Testimony of Admiral James Loy, Acting Under Secretary of
Transportation for Security before the Commerce, Science, and
Transportation Committee, U. S. Senate on July 25, 2002.

with stakeholders. In September 2002, we briefed the staff of the
Committee on Transportation and Infrastructure, U. S. House of
Representatives, that some officials at selected airports told us that
they had not received clear and comprehensive guidance from TSA on issues

concerning the feasibility of meeting the baggage screening deadline. TSA
officials that we spoke to are aware of the importance of collaboration
and communication across the government. According to TSA officials, the
primary tools TSA will use to formally collaborate with governmental
entities are memorandums of agreement and memorandums of understanding.
They are developing memorandums of agreement with the other modal
administrations within DOT. TSA officials told us that they also plan to
develop memorandums of agreement and memorandums of understanding with
local law enforcement agencies, the Department of

Defense, the Department of State, the Federal Bureau of Investigation, the
Nuclear Regulatory Commission, the Federal Emergency Management Agency,
and the Customs Service, among others. They told us that the purposes of
the memorandums are to delineate clear lines of authority and
responsibility between parties; improve services to DOT*s modal

administrations, other federal, state, and local agencies, nongovernmental
stakeholders, and the American public; and achieve national performance
security goals, among other purposes. TSA plans to complete the
memorandums no later than March 1, 2003.

As an additional mechanism to facilitate collaboration and communication,
ATSA established the Transportation Security Oversight Board. According to
ATSA, the Board, which must meet at least every 3 months, should consist
of cabinet heads; directors; high- ranking officials and/ or their
designees from DOT, the Department of Defense, the Department of Justice,
the Department of the Treasury, and the Central Intelligence

Agency; and presidentially appointed representatives from the National
Security Council and the Office of Homeland Security. The Secretary of
Transportation is to be the chairperson of the Board. 24 The Board*s

responsibilities include, among other things, reviewing transportation
plans; facilitating the coordination of intelligence, security, and law
enforcement activities affecting transportation; and facilitating the
sharing

24 The Homeland Security Act of 2002 reestablishes the Board within DHS,
replaces the representative from the Office of Homeland Security with the
Secretary of Homeland Security or the Secretary*s designee, and designates
the chairperson of the Board as the Secretary of Homeland Security.

of intelligence, security, and law enforcement information affecting
transportation. The Board, established within DOT, met twice in 2002. TSA
officials noted that the Board is an excellent mechanism to share
information with national security agencies across government and has
helped focus the national security community on the threats to the
transportation system, which TSA believes is a critical element of meeting
the mandates in ATSA.

Recommended Next Steps Define more clearly the collaboration and
communication roles and responsibilities of TSA*s various offices. To hel
p ensure collaboration and communication with stakeholders are consistent
and mutually reinforcing, TSA should more fully define and clarify the
collaboration and communication responsibilities of the many offices that
interact with its stakeholders. TSA should ensure both internal TSA staff
and external stakeholders can identify who is responsible for
collaboration and communication at TSA.

Formalize roles and responsibilities among governmental entities for
transportation security. Finalizing memorandums of agreement and
memorandums of understanding with the other modal administrations

within DOT as well as other government agencies as appropriate can help
TSA successfully manage the necessary matrixed relationships to achieve
security in all modes of transportation. For example, agreements between
TSA and the modal administrations can address such issues as separating
responsibilities for standards and regulations, funding, coordinating with
customers, and implementing future security initiatives. Although the
memorandums may change when TSA moves to DHS, TSA should continue to make
progress to formalize its roles and responsibilities until the transition
takes place.

Public Reporting and Federal agencies can promote greater transparency of
government by

Customer Service to Build publicizing what they intend to achieve and by
being held accountable for

Citizen Confidence achieving those results. Such transparency can improve
the confidence of

the American people in the capabilities of the federal government.
Improving public confidence is especially critical for TSA as it works to
achieve its goals of improving transportation security.

ATSA required TSA to issue specific reports to the Congress on its
activities and progress in establishing and meeting its goals.
Specifically, ATSA required TSA to provide to the Congress, within 180
days of enactment of the legislation, an action plan with goals and
milestones that was to outline

how acceptable levels of performance for aviation security will be
achieved. In accordance with the time frames outlined in ATSA, TSA
submitted the action plan to the Congress on May 19, 2002, and has made
this report available to the public on its Web site. The action plan,
entitled

*Performance Targets and Action Plan, 180 Day Report to Congress,* made
public TSA*s strategic and performance goals, TSA*s performance measures,
and the performance measurement information system. ATSA also required two
progress reports within 6 months of the enactment of the legislation. TSA
released these reports within the established time frame. The first
progress report was to describe TSA*s progress to date on the evaluation
and implementation of actions listed in the legislation. TSA

submitted this progress report, entitled *Report to Congress on Enhanced
Security Measures,* on May 19, 2002, and made the report available to the
public on its Web site. Some of the actions TSA reported it was evaluating
include the following.

 Establish a uniform system of identification for all state and local law
enforcement personnel for use in obtaining permission to carry weapons in
aircraft cabins and in obtaining access to a secured area of an airport.

 Establish requirements to implement trusted passenger programs and use
available technologies to expedite the security screening of passengers
who participate in such programs.

 Provide for the use of technologies to enable the private and secure
communication of threats to aid in the screening of passengers and other
individuals on airport property who are identified on any state or federal
security- related database for the purpose of having an integrated
response of various authorized airport security forces.

The second progress report was to describe the deployment of passenger and
baggage screening systems. TSA submitted this report on May 18, 2002, and
has made nonsensitive portions of the report available on its Web site.
The report, entitled *Deployment of Screening Systems Strategy &
Progress,* provided the Congress with TSA*s progress on and strategy for
meeting the mandated deadlines to deploy federal screeners at security
checkpoints at 429 airports and to have systems in place for screening

every piece of checked baggage for explosives. For example, TSA reported
that at that time it had identified security screener standards; selected
private contractors to recruit, assess, and train security screeners;

developed a preliminary plan for deploying federal screeners to the
airports; developed an initial screening checkpoint design; and reviewed
available and emerging explosives detection technology. The report did not
include all of the information required in ATSA. For example, ATSA
required specific information such as the dates of installation of each
system to screen all checked baggage for explosives and the date each
system is operational.

Since TSA has issued the statutorily required action plan and progress
reports, it has continued to publicly report on its progress.
Specifically, TSA created a Web site that provides information for
customers and the

public, including updates on its progress toward meeting the deadlines in
ATSA; speeches, statements, and testimonies by TSA and DOT leadership;
information on aviation security technology such as explosives detection

systems; fact sheets on TSA contractors; frequently asked questions
related to TSA*s policies and procedures; information for the traveling
public; and information on employment opportunities with TSA. For example,
a private citizen could find out when TSA would be hiring security
screeners at her or his local airport, how to apply for a position with
TSA, and what objects are prohibited and permitted to be carried onto an
airplane. 25

In addition, TSA created an Office of Communications and Public
Information. The purpose of this office is to provide information to the
general public concerning TSA, its people, programs, policies, and events.
To facilitate this mission, the Office of Communications and Public
Information maintains a call center to receive and respond to inquiries
from the public. This office also performs a variety of other functions.
For example, the office develops statements, position papers, policy
releases, media alerts, and marketing plans to inform and educate the
public.

TSA has taken several actions that are intended to focus on customer
satisfaction and be responsive to customer concerns in delivering critical
and sensitive services. TSA established an ombudsman position to, among
other things, serve external customers. Specifically, TSA*s ombudsman is
responsible for recommending and influencing systemic change where
necessary to improve TSA operations and customer service. As of November
2002, TSA is recruiting to fill this position. We have reported that
through the impartial and independent investigation of citizens*
complaints, federal ombudsmen help agencies be more responsive to the

25 See www. tsa. gov.

public, including people who believe their concerns have not been dealt
with fairly or fully through normal channels. 26 Ombudsmen may recommend
ways to resolve individual complaints or more systematic problems, and may
help to informally resolve disagreements between the agency and the
public.

In addition, TSA is tracking performance on its customer service. For
example, TSA*s primary performance measure for customer satisfaction is
the average wait time and percentage of passenger complaints per 1,000
passengers. 27 Other measures to gauge customer satisfaction include the
percentage of flights delayed due to security issues, the percentage of
incidents/ interventions per 1,000 passengers, the number of weapons
seized per 1,000 passengers, and the number of seats delayed due to
security issues, among others.

As part of its ongoing challenge to balance security against customer
service, TSA is reviewing existing security procedures in order to
eliminate those that do not enhance security or customer service. For
example, the Under Secretary testified that TSA has recently eliminated
two procedures

to reduce customers* *hassle factor* at airports. In August 2002, TSA
allowed passengers to carry beverages in paper or foam polystyrene
containers through walk- through metal detectors and prohibited screeners
from asking passengers to drink or eat from any containers of food or
liquid as a security clearance procedure. TSA also eliminated the
requirement for the airlines to ask a series of security- related
questions to customers at check- in. In addition, TSA recently lifted the
existing rule that prohibits

parking within 300 feet of airport terminals. TSA has replaced this rule
with parking security measures specific to each airport and linked to the
national threat level.

Lastly, TSA is also planning to create a customer satisfaction index (CSI)
for aviation operations, which includes collecting customer information
from national polls, passenger surveys at airports, the TSA call center,
and customer feedback at airports. TSA intends to use data from the CSI to

26 U. S. General Accounting Office, Environmental Protection: Issues for
Consideration in the Reorganization of EPA*s Ombudsman Function, GAO- 02-
859T (Washington, D. C.: June 25, 2002). 27 TSA reports that, at airports
where data are available, it met DOT*s performance goal that 95 percent of
passengers wait less than 10 minutes to pass through airport checkpoints
through October 2002.

improve performance. As a first step, TSA conducted 12 focus groups with
air travelers to help it understand the aspects of customer experiences
that influence satisfaction with and confidence in aviation security. TSA
learned from the focus groups that:

 the federalization of aviation security significantly increased the
confidence of passengers;

 key attributes that drive increased satisfaction and confidence include
attentiveness of screeners, thoroughness of the screening process,
professionalism of the workforce, and consistency of the process across

airports;  wait time was not a significant driver of satisfaction, and
participants

said they would be willing to wait longer if they thought it would make
them more secure;

 the lack of checked baggage screening reduces confidence; and 
secondary screening processes are a significant driver of reduced
satisfaction. The results of the focus groups will help TSA develop the
passenger surveys to be used to collect data for the CSI. TSA intends to
implement the CSI for aviation operations in 2003 and to expand the CSI to
include other stakeholders, such as airport operators, air carriers, and
customers of other modes of transportation.

Recommended Next Steps Fill the ombudsman position to facilitate
responsiveness of TSA to the public. To ensure TSA is as responsive to the
public as possible and is able to identify and resolve individual
complaints and systematic problems,

TSA should fill its ombudsman position as soon as high quality candidates
can be identified.

Continue to develop and implement mechanisms, such as the CSI, to gauge
customer satisfaction and improve customer service. TSA has identified
customer satisfaction as one of its three annual performance goals. By
combining data on its service delivery from a number of sources, such as
the CSI, TSA will be able obtain a robust picture of customer
satisfaction, which can be used to improve performance. TSA should
complete the planning and developing of the CSI and begin its i m p l e m
e n t a t i o n .

Concluding Never has a results- oriented focus been more critical than
today, when the

Observations security of America*s citizens depends so directly and
immediately on the

results of many federal programs. TSA has faced immense challenges in its
first year of existence to build the infrastructure of a large
organization and meet mandated deadlines to federalize aviation security.
As TSA begins to take responsibility for security in the maritime and
surface modes of

transportation, its current and future challenge is to build, sustain, and
institutionalize the organizational capacity to help it achieve its
current and future goals. As TSA moves into the newly created DHS, TSA has
an opportunity to continue to foster a results- oriented culture. In this
regard, TSA has started to put in place the foundation of this results-
oriented culture through

 leadership commitment to creating a high- performing organization, 
strategic planning to establish results- oriented goals and measures, 
performance management to promote accountability for results, 
collaboration and communication to achieve national outcomes, and  public
reporting and customer service to build citizen confidence. This
foundation can serve TSA well in DHS and help TSA to focus on and achieve
its mission to protect the nation*s transportation systems to ensure
freedom of movement for people and commerce.

Recommendations for We recommend that the Secretary of Transportation, in
conjunction with

Executive Action the Under Secretary of Transportation for Security,
continue TSA*s

leadership commitment to creating a high- performing organization that
includes next steps to establish a performance agreement for the Under
Secretary that articulates how bonuses will be tied to performance and to
add expectations in performance agreements for top leadership to foster
the culture of a high- performing organization.

We recommend that the Under Secretary of Transportation for Security take
the next steps to continue to implement the following results- oriented
practices.

 Strategic planning to establish results- oriented goals and measures
that includes next steps to establish security performance goals and
measures for all modes of transportation as part of a strategic planning
process that involves stakeholders and to apply practices that have been
shown to provide useful information in agency performance plans.

 Performance management to promote accountability for results that
includes next steps to build on the current performance agreements to
achieve additional benefits, to ensure the permanent performance
management system makes meaningful distinctions in performance, and to
involve employees in developing its performance management

system.  Collaboration and communication to achieve national outcomes
that

includes next steps to define more clearly the collaboration and
communication roles and responsibilities of TSA*s various offices and to
formalize roles and responsibilities among governmental entities for
transportation security.

 Public reporting and customer service to build citizen confidence that
includes next steps to fill the ombudsman position to facilitate
responsiveness of TSA to the public and to continue to develop and
implement mechanisms, such as the CSI, to gauge customer satisfaction and
improve customer service.

Agency Comments We provided drafts of this report in December 2002 to
officials from DOT, including TSA, for their review and comment. TSA*s
Director of Strategic Management and Analysis provided oral comments on
behalf of DOT and TSA generally agreeing with the contents, findings, and
recommendations

of the draft report. TSA*s Director of Strategic Management and Analysis
provided minor technical clarifications and we made those changes where
appropriate. In addition, she provided updated information on TSA*s

progress in its strategic planning, collaboration and communication, and
customer service since the completion of our audit work. We added that
information where appropriate. As agreed with your office, unless you
publicly announce its contents

earlier, we plan no further distribution of this report for 30 days from
the date of this letter. At that time, we will provide copies of this
report to the Secretary of Transportation, the Under Secretary of
Transportation for Security, the Director of the Office of Homeland
Security, the Director of the Office of Personnel Management, and the
Director of the Office of

Management and Budget. We will also make copies available to others upon
request. In addition, the report will be available at no charge on the GAO
Web site at http:// www. gao. gov.

If you have any questions concerning this report, please contact me or
Lisa Shames on (202) 512- 6806. Marti Tracy was a key contributor to this
report. J. Christopher Mihm Director, Strategic Issues

Appendi Appendi xes x I

Objective, Scope, and Methodology The objective of our review was to
describe the Transportation Security Administration*s (TSA) actions and
plans for implementing the resultsoriented practices required in the
Aviation and Transportation Security Act (ATSA) and recommend next steps
for TSA to build a results- oriented organizational culture and to
establish a positive control environment. To identify results- oriented
practices and recommend next steps, we reviewed

our models, guides, reports, and other products on strategic planning and
performance measurement, strategic human capital management,
transformation efforts, and other related areas. See related GAO products
listed at the end of this report for a list of our products in these
areas. We next analyzed ATSA in relation to our products to identify any
resultsoriented

practices that were statutorily required in the legislation. In addition,
we reviewed TSA and Department of Transportation missions, performance
goals and measures, performance agreements, policies and

procedures, and organizational charts and other relevant documentation. To
describe TSA*s status in implementing these results- oriented practices,
we interviewed 25 officials from various TSA offices including strategic
planning, human capital, training, budget, public affairs, and policy,
among others. We also visited Baltimore- Washington International airport
after it was transitioned to federal control to talk to front- line
managers about their responsibilities and specifically their role in
providing performance data to headquarters. We developed the recommended
next steps by referring to our models, guides, reports, and other products
on resultsoriented practices and identifying additional practices that
were associated with and would further complement or support current TSA
efforts. We performed our work from May through September 2002 in
accordance with

generally accepted government auditing standards.

Related GAO Products The following list provides information on recent GAO
products related to the Transportation Security Administration (TSA),
transportation security, and the results- oriented practices discussed in
this report. These and other GAO products can be found at www. gao. gov.

TSA and Transportation

Mass Transit: Federal Action Could Help Transit Agencies Address Security

Security Challenges. GAO- 03- 263. Washington, D. C.: December 13, 2002.

Port Security: Nation Faces Formidable Challenges in Making New
Initiatives Successful. GAO- 02- 993T. Washington, D. C.: August 5, 2002.

Aviation Security: Transportation Security Administration Faces Immediate
and Long- Term Challenges. GAO- 02- 971T. Washington, D. C.: July 25,
2002. Aviation Security: Information Concerning the Arming of Commercial

Pilots. GAO- 02- 822R. Washington, D. C.: June 28, 2002.

Aviation Security: Deployment and Capabilities of Explosive Detection
Equipment. GAO- 02- 713C. Washington, D. C.: June 20, 2002. (CLASSIFIED)

Leadership Commitment to

Highlights of a GAO Forum: Mergers and Transformation: Lessons

Creating a High- Performing

Learned for a Department of Homeland Security and Other Federal
Organization

Agencies. GAO- 03- 293SP. Washington, D. C.: November 14, 2002.

Highlights of a GAO Roundtable: The Chief Operating Officer Concept: A
Potential Strategy to Address Federal Governance Challenges. GAO- 03-
192SP. Washington, D. C.: October 4, 2002. Managing for Results: Using
Strategic Human Capital Management to

Drive Transformational Change. GAO- 02- 940T. Washington, D. C.: July 15,
2002. Managing for Results: Federal Managers* Views Show Need for Ensuring

Top Leadership Skills. GAO- 01- 127. Washington, D. C.: October 20, 2000.

Management Reform: Elements of Successful Improvement Initiatives. GAO/ T-
GGD- 00- 26. Washington, D. C.: October 15, 1999.

Strategic Planning to

Performance Reporting: Few Agencies Reported on the Completeness and

Establish Results- Oriented

Reliability of Performance Data. GAO- 02- 372. Washington, D. C.: April
26, Goals and Measures

2002.

Agency Performance Plans: Examples of Practices That Can Improve
Usefulness to Decisionmakers. GAO/ GGD/ AIMD- 99- 69. Washington, D. C.:
February 26, 1999.

Agencies* Annual Performance Plans Under the Results Act: An Assessment
Guide to Facilitate Congressional Decisionmaking. GAO/ GGD/ AIMD- 10.
1.18. Washington, D. C.: February 1998.

Managing For Results: Enhancing the Usefulness of GPRA Consultations
Between the Executive Branch and Congress. GAO/ T- GGD- 97- 56.
Washington, D. C.: March 10, 1997. Agencies* Strategic Plans Under GPRA:
Key Questions to Facilitate

Congressional Review. GAO/ GGD- 10. 1.16. Washington, D. C.: May 1997.
Executive Guide: Effectively Implementing the Government Performance and
Results Act. GAO/ GGD- 96- 118. Washington, D. C.: June 1996. Performance
Management

Results- Oriented Cultures: Using Balanced Expectations to Manage

to Promote Accountability

Senior Executive Performance. GAO- 02- 966. Washington, D. C.: for Results
September 27, 2002.

Results- Oriented Cultures: Insights for U. S. Agencies from Other
Countries* Performance Management Initiatives. GAO- 02- 862. Washington,
D. C.: August 2, 2002.

A Model of Strategic Human Capital Management. GAO- 02- 373SP. Washington,
D. C.: March 15, 2002.

Human Capital: Practices That Empowered and Involved Employees.

GAO- 01- 1070. Washington, D. C.: September 14, 2001.

Managing for Results: Emerging Benefits From Selected Agencies* Use of
Performance Agreements. GAO- 01- 115. Washington, D. C.: October 30, 2000.

Human Capital: Using Incentives to Motivate and Reward High Performance.
GAO/ T- GGD- 00- 118. Washington, D. C.: May 2, 2000.

Collaboration and

Homeland Security: Effective Intergovernmental Coordination Is Key to

Communication to Achieve

Success. GAO- 02- 1011T. Washington, D. C: August 20, 2002. National
Outcomes

Homeland Security: Intergovernmental Coordination and Partnership Will Be
Critical to Success. GAO- 02- 900T. Washington, D. C.: July 2, 2002.

Managing for Results: Barriers to Interagency Coordination. GAO/ GGD00-
106. Washington, D. C.: March 29, 2000.

Managing For Results: Using the Results Act to Address Mission
Fragmentation and Program Overlap. GAO/ AIMD- 97- 146. Washington, D. C.:
August 29, 1997. Public Reporting and

Managing for Results: Using GPRA to Assist Oversight and

Customer Service to Build

Decisionmaking. GAO- 01- 872T. Washington, D. C.: June 19, 2001. Citizen
Confidence

Human Capital: The Role of Ombudsmen in Dispute Resolution. GAO- 01- 466.
Washington, D. C.: April 13, 2001.

Managing for Results: The Statutory Framework for Performance- Based
Management and Accountability. GAO/ GGD/ AIMD- 98- 52. Washington, D. C.:
January 28, 1998.

(450146)

a

GAO United States General Accounting Office

In its first year, TSA has simultaneously started to build the
infrastructure of a large organization as it focused primarily on meeting
its aviation security deadlines. As TSA begins to take responsibility for
security in the maritime and surface modes of transportation, its current
and future challenge is to continue to build, sustain, and
institutionalize the organizational capacity to help it achieve its
current and future goals. In this regard, TSA has made an impressive start
in implementing practices that can create a results- oriented culture.
These practices* leadership commitment, strategic planning, performance
management, collaboration and communication, and public reporting and
customer service* are shown below. Such practices are especially important
when TSA moves into the newly created Department of Homeland Security.

Selected ATSA requirements, TSA actions and plans, and recommended next
steps for each results-oriented practice.

ATSA requirements TSA actions and plans Recommended next steps Leadership
commitment to creating a high-performing organization Performance
agreements for head of TSA and executives.

Established standardized performance agreements for TSA executives.
Establish a performance

agreement for the head of TSA and add expectations in performance
agreements for top leadership to foster the culture of a high- performing
organization. Strategic planning to establish results-oriented goals and
measures Planning and

reporting requirements.

Articulated vision, mission, values, strategic goal, and performance goals
and measures.

Developed automated system to collect performance data. Establish security
performance goals and measures for all modes of transportation as part of
a

strategic planning process that involves stakeholders. Performance
management to promote accountability for results Performance management
system and performance agreements.

Established an interim performance management system and created
performance agreements that include organizational and individual goals
and standards of performance. Ensure the permanent system makes meaningful
distinctions in performance. Involve employees in developing its

permanent system. Collaboration and communication to achieve national
outcomes Work within and outside the government to accomplish its mission.
Established several offices to collaborate and communicate with
stakeholders.

Stated plans to use memorandums to formalize roles and responsibilities of
TSA and other agencies in transportation security.

Define more clearly the collaboration and communication roles and
responsibilities of TSA*s various offices. Formalize roles and
responsibilities among governmental entities for

transportation security.

Public reporting and customer service to build citizen confidence A
180-day action plan and two progress reports within 6 months of enactment.

Submitted 180-day action plan and both progress reports within established
time frames. Stated plans to develop customer

satisfaction index. Continue to develop and implement

mechanisms, such as the customer satisfaction index, to gauge customer
satisfaction and improve customer service. TRANSPORTATION SECURITY
ADMINISTRATION

Actions and Plans to Build a ResultsOriented Culture

www. gao. gov/ cgi- bin/ getrpt? GAO- 03- 190. To view the full report,
including the scope and methodology, click on the link above. For more
information, contact J. Christopher Mihm, 202- 512- 6086, mihmj@ gao. gov.
Highlights of GAO- 03- 190, a report to

Congressional Requesters

January 2003

Source: GAO.

Never has a results- oriented focus been more critical than today, when
the security of America*s citizens depends on the outcomes of many federal
programs. In response to the September 11 terrorist attacks, the Congress
passed the Aviation and Transportation Security Act (ATSA) that created
the Transportation Security Administration (TSA) and made it responsible
for transportation security. ATSA requires TSA to implement specific
practices that are intended to make it a resultsoriented organization.

GAO makes specific recommendations to the Secretary of Transportation and
the Under Secretary of Transportation for Security to continue and augment
TSA*s progress in implementing ATSA*s results- oriented practices. The
adjacent table shows selected recommended next steps for TSA. We provided
drafts of this report to officials from the Department of Transportation
(DOT), including TSA, for their review and comment. TSA*s Director of
Strategic Management and Analysis provided oral comments on behalf of DOT
and TSA generally agreeing with the contents, findings, and
recommendations of the draft report.

Page i GAO- 03- 190 TSA's Results- Oriented Practices

Contents

Contents

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Appendix I

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Related GAO Products Page 41 GAO- 03- 190 TSA's Results- Oriented
Practices

Related GAO Products Page 42 GAO- 03- 190 TSA's Results- Oriented
Practices

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