TSA's Explosives Detection Canine Program: Status of Increasing  
Number of Explosives Detection Canine Teams (31-JUL-08, 	 
GAO-08-933R).							 
                                                                 
This report formally transmits the attached briefing in response 
to section 1307 of the Implementing Recommendations of the 9/11  
Commission Act of 2007. The act requires the Comptroller General 
to report on the utilization of explosives detection canine teams
to strengthen security and the capacity of the national 	 
explosives detection canine team program, which is administered  
by the Transportation Security Administration.			 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-08-933R					        
    ACCNO:   A83187						        
  TITLE:     TSA's Explosives Detection Canine Program: Status of     
Increasing Number of Explosives Detection Canine Teams		 
     DATE:   07/31/2008 
  SUBJECT:   Appropriated funds 				 
	     Employee training					 
	     Explosives 					 
	     Explosives detection systems			 
	     Explosives trace detection 			 
	     Federal regulations				 
	     Financial management				 
	     Funds management					 
	     Homeland security					 
	     Mass transit					 
	     Military training					 
	     Program evaluation 				 
	     Standards						 
	     Statutory limitation				 
	     Systems evaluation 				 
	     Training utilization				 
	     Transportation security				 
	     Program goals or objectives			 
	     Program implementation				 
	     TSA Explosives Detection Canine Program		 

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GAO-08-933R

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GAO-08-933R: 

United States Government Accountability Office: 
Washington, DC 20548: 

July 31, 2008: 

Congressional Committees: 

Subject: TSA's Explosives Detection Canine Program: Status of 
Increasing Number of Explosives Detection Canine Teams: 

This report formally transmits the attached briefing in response to 
section 1307 of the Implementing Recommendations of the 9/11 Commission 
Act of 2007. The act requires the Comptroller General to report on the 
utilization of explosives detection canine teams to strengthen security 
and the capacity of the national explosives detection canine team 
program, which is administered by the Transportation Security 
Administration. 

We are sending copies of this report to the appropriate congressional 
committees. We are also sending copies to the Secretary of Homeland 
Security. This report will also be available at no charge on our Web 
site at [hyperlink, http://www.gao.gov]. Should you or your staff have 
any questions concerning this report, please contact me at (202) 512-
3404 or [email protected]. Contact points for our Offices of 
Congressional Relations and Public Affairs may be found on the last 
page of this report. Key contributors to this report were William 
Crocker, Assistant Director; Mary Catherine Hult, Assistant Director; 
Alana Finley; Lara Kaskie; Thomas Lombardi; and Clarence Tull. 

Signed by: 

Cathleen A. Berrick: 
Director, Homeland Security and Justice Issues: 

List of Committees: 

The Honorable Christopher J. Dodd: 
Chairman: 
The Honorable Richard C. Shelby: 
Ranking Member: 
Committee on Banking, Housing, and Urban Affairs: 
United States Senate: 

The Honorable Daniel K. Inouye: 
Chairman: 
The Honorable Ted Stevens: 
Vice Chairman: 
Committee on Commerce, Science, and Transportation: 
United States Senate: 

The Honorable Joseph I. Lieberman: 
Chairman: 
The Honorable Susan M. Collins: 
Ranking Member: 
Committee on Homeland Security and Governmental Affairs: 
United States Senate: 

The Honorable Bennie G. Thompson: 
Chairman: 
The Honorable Peter T. King: 
Ranking Member: 
Committee on Homeland Security: 
House of Representatives: 

The Honorable James L. Oberstar: 
Chairman: 
The Honorable John L. Mica: 
Ranking Republican Member Committee on Transportation and 
Infrastructure House of Representatives: 

[End of section] 

Enclosure: Briefing for Congressional Committees: 

TSAï¿½s Explosives Detection Canine Program: Status of Increasing Number 
of Canine Teams: 

Briefing for Congressional Committees: 

Contents: 

Introduction: 

Objective: 

Scope and Methodology: 

Summary: 

Background: 

Results: 
- TSAï¿½s Plan, Capacity, and Status of Meeting Mandated Increases of 
Explosives Detection Canine Teams: 

Agency Views: 

GAO Contacts: 

Appendixes: 

[End of section] 

Introduction: 

Under its National Explosives Detection Canine Team Program (NEDCTP), 
the Transportation Security Administration (TSA) procures, trains, 
deploys, and certifies explosives detection canine teamsï¿½each of which 
is a canine paired with a handlerï¿½to provide mobile and flexible 
deterrence and explosives detection capabilities in furtherance of its 
mission to secure all modes of transportation.[Footnote 1] 

Section 1307 of the Implementing Recommendations of the 9/11 Commission 
Act (9/11 Commission Act) requires the Secretary of Homeland Security 
to begin to increase the number of explosives detection canine teams 
certified by TSA for transportation-related security by up to 200 teams 
annually by the end of 2010.[Footnote 2] 

Section 1307 also requires GAO to report on the utilization of 
explosives detection canine teams to strengthen security and the 
capacity of the national explosives detection canine team program. 

Objective: 

Our objective was to determine whether TSA has a plan to increase its 
number of certified explosives detection canine teams as required by 
statute and, if so, to evaluate the extent to which TSA has the 
capacity to do so and is on track with its plan. 

We are also including information on: 

* Department of Homeland Security (DHS) componentsï¿½ explosives 
detection canine programs (app. I) and; 

* DHS efforts to establish industrywide training and certification 
standards for explosives detection canines (app. II). 

Scope and Methodology: 

To satisfy our objective, we: 

* reviewed federal laws and related materials and analyzed TSAï¿½s canine 
program policies and procedures, as well as its goals, plans, and 
actions for training, deploying, and certifying additional explosives 
detection canine teams; 

* observed the training laboratories and the Canine Breeding and 
Development Center at NEDCTPï¿½s Canine Training and Evaluation Branch at 
Lackland Air Force Base in San Antonio, Texas; and; 

* interviewed TSA canine program officials. 

To describe DHSï¿½s explosives detection canine programs and efforts to 
establish industrywide standards for explosives detection canines, we 
analyzed information and interviewed officials from U.S. Customs and 
Border Protection, the U.S. Secret Service, the U.S. Coast Guard, the 
U.S. Federal Protective Service, DHSï¿½s Office for Bombing Prevention; 
and the Scientific Working Group on Dog and Orthogonal[Footnote 3] 
Detector Guidelines. 

We conducted this performance audit from November 2007 through July 
2008 in accordance with generally accepted government auditing 
standards. Those standards require that we plan and perform the audit 
to obtain sufficient, appropriate evidence to provide a reasonable 
basis for our findings and conclusions based on our audit objectives. 
We believe that the evidence obtained provides a reasonable basis for 
our findings and conclusions based on our audit objectives. 

Summary: 

TSA Has a Plan and Has Begun to Increase Its Capacity to Train and 
Deploy Additional Explosives Detection Canine Teams, and Is on Track 
with Its Plan during the First Year of Implementation: 

TSA plans to train, deploy, and certify up to 200 canine teams annually 
over the next 3 years, consistent with statutory requirements. 

* Collectively, the statutes provide TSA with flexibility to determine 
the number of additional teams it will deploy within this range to 
satisfy the requirements of the mandates. 

* For example, TSAï¿½s plan for 2008 meets the minimum increase required 
by the U.S. Troop Readiness, Veteransï¿½ Care, Katrina Recovery, and Iraq 
Accountability Appropriations Act, 2007 [Footnote 4] (Iraq 
Supplemental) (170 teams) and is within the upper limit (200 teams) 
range set forth in the 9/11 Commission Act. 

* TSAï¿½s plan includes a specific training and deployment schedule for 
2008 and 2009, but TSA has not yet determined these specific schedules 
for 2010. 

TSA has begun to increase its capacity to implement its plan to train, 
deploy, and certify additional canine teams, for example, by: 

* making arrangements to procure additional canines by contracting with 
a private kennel to supplement existing canine sources and; 

* adjusting NEDCTPï¿½s training schedule to accommodate additional 
classes. 

TSA is on track to implement its planned increase in its number of 
explosives detection canine teams for calendar year 2008. 

* For example, TSA has conducted, or is in the process of conducting, 
training classes for 104 canine teams out of 204 planned for 2008. 

* In order to successfully increase the number of explosives detection 
canine teams by about 200 in 2009, some ongoing issues will need to be 
resolved, such as hiring additional instructors to conduct training 
classes and certify newly deployed teams. 

Background: Congressional Mandates to Increase Explosives Detection 
Canine Teams: 

The 9/11 Commission Act: 

* requires the Secretary of Homeland Security to begin to increase the 
number of explosives detection canine teams certified by TSA for 
transportation-related security by up to 200 teams annually by the end 
of 2010; 

* provides options for how to increase the number of canine teams,and; 

* authorizes the appropriation of such funds as necessary to carryout 
this mandate for fiscal years 2007 through 2011. 

The Iraq Supplemental appropriated funds for use by TSA to expand 
NEDCTP by no fewer than 170 additional canine teams, including the use 
of agency-led teams, to support air cargo security. 

Funding: 

* Of amounts appropriated to TSA through Division E of the Consolidated 
Appropriations Act, 2008 (DHS Appropriations Act, 2008), the 
accompanying explanatory statement directs $10 million to remain 
available until September 30, 2009, to increase the number of 
explosives detection canine teams.[Footnote 5] 

* The Iraq Supplemental appropriated $80 million to TSA, to remain 
available until September 30, 2009, for air cargo security. Of this, 
TSA allocated $20.3 million to its canine programs. 

* TSA plans to use $3.5 million in fiscal year 2008 funding to expand 
the number of explosives detection canine teams to be used in mass 
transit. 

Background: NEDCTP: Program Overview: 

Established in 1972, NEDCTPï¿½s mission is to deter and detect the 
introduction of explosive devices into the transportation system. (See 
app. III for more information about NEDCTPï¿½s organization and budget.) 

NEDCTP is a partnership between TSA and state or local law enforcement 
authorities (LEA) with jurisdiction over airports or mass transit 
systems. 

* An LEA agrees to participate in the program for 5 years, provide 
three officers (each must serve a minimum of 3 years), and maintain TSA-
certified canine teams available for 24-hour incident response. 

* TSA provides a canine for each handler, team training, explosives to 
use for training, certification, and a partial stipend (about $50,000 
per year). 

* Teams are to devote 80 percent of their duty time in their 
operational environment (e.g., airport) conducting TSA-related 
activities.[Footnote 6] 

Background: NEDCTP: Uses of Canine Teams: 

NEDCTP team responsibilities include: 

* searching during bomb threats associated with aircraft, airport 
terminals, vehicles, luggage, and cargo; 

* patrolling airport or mass transit terminals, including for airports 
ticket counters, curbside areas, and secured areas; 

* screening air cargo; and; 

* serving as general deterrents to would-be terrorists or criminals. 

NEDCTP teams also participate in Visible Intermodal Prevention and 
Response (VIPR) missions.[Footnote 7] 

* From December 2005 through December 2007, TSA conducted about 500 
missions. 

* According to officials, TSA tries to use canines in all of the VIPR 
missions and uses either NEDCTP teams or other local canine teams. 

Background: NEDCTP: Deployment of Canine Teams: 

According to TSA officials, taking into account LEA voluntary 
participation, TSA deploys its canine teams to: 

* airports on the basis of passenger and cargo volume and airport size 
and; 

* mass transit systems on the basis of factors such as a systemï¿½s 
passenger volume, proximity to critical infrastructure, and threat 
information for the mass transit sector. 

As of June 9, 2008, about 430 certified explosives detection canine 
teams were deployed in aviation and mass transit systems nationwide: 

* 370 teams were deployed to 69 airports and; 

* 56 teams were deployed to 14 mass transit systems. 

Background: NEDCTP Program Growth, 2000 ï¿½2007: 

Figure 1: NEDCTP Teams Authorized and Number of Participating Airports 
and Mass Transit: 

This figure is a combination vertical bar graph and table, depicting 
the following data: 

Year: 2000; 
Teams authorized: 180; 
Number of airports: 39; 
Number of mass transit systems: 1. 

Year: 2001; 
Teams authorized: 200; 
Number of airports: 39; 
Number of mass transit systems: 1. 

Year: 2002; 
Teams authorized: 265; 
Number of airports: 64; 
Number of mass transit systems: 1. 

Year: 2003; 
Teams authorized: 300; 
Number of airports: 64; 
Number of mass transit systems: 1. 

Year: 2004; 
Teams authorized: 341; 
Number of airports: 64; 
Number of mass transit systems: 1. 

Year: 2005; 
Teams authorized: 450; 
Number of airports: 75; 
Number of mass transit systems: 11. 

Year: 2006; 
Teams authorized: 478; 
Number of airports: 75; 
Number of mass transit systems: 13. 

Year: 2007; 
Teams authorized: 500; 
Number of airports: 75; 
Number of mass transit systems: 14. 

Source: GAO analysis of TSA data. 

[End of figure] 

Background: NEDCTP: Training and Certification: 

It takes about 7 months from the date a canine enters training to a 
canine teamï¿½s initial certification. 

* For about 2 months, canines are pretrained through a series of 
repetitive tasks to identify several explosive odors. 

* To be deployed, teams must then complete a 2-ï¿½-month (10-week) 
training course conducted by NEDCTPï¿½s Training and Evaluation Branch at 
Lackland Air Force Base, where the teams are trained to detect the 
explosive odors in environments including aircraft and mass transit 
terminals, luggage, vehicles, cargo, and buildings. 

* To be initially certified, after a 2-month acclimation period, teams 
must complete a 14-day ï¿½training missionï¿½ in their operational 
environment.[Footnote 8] 

Thereafter, teams must pass an annual certification evaluation. All 
certifications are conducted by NEDCTP staff. 

[End of section] 

Results: TSA has a plan to increase the number of certified explosives 
detection canine teams: 

TSAï¿½s Plan: Is Consistent with Statutory Requirements to Increase 
Number of Canine Teams: 

TSA plans to train, deploy, and certify up to 200 canine teams annually 
by the end of 2010 in accordance with the 9/11 Commission Act.[Footnote 
9] 

* Of these, TSA plans to train and deploy 170 teams by the end of 
calendar year 2008 to support efforts to secure air cargo as required 
by the Iraq Supplemental. 

* TSA plans to deploy the remaining teams in NEDCTP to aviation and 
mass transit systems and for attrition replacement of existing 
teams.These teams are scheduled to be trained and deployed primarily in 
calendar years 2009 and 2010. 

Taking into account currently deployed teams,[Footnote 10] TSA plans to 
have: 

* 627 teams deployed by the end of fiscal year 2008 and; 

* 720 teams deployed by the end of fiscal year 2009. 

Consistent with the 9/11 Commission Act, to meet mandated increases in 
the number of certified canine teams, TSA plans to procure additional 
canines, use its NEDCTP facilities, and increase its staff. 

The statutes provide TSA with some flexibility in determining how many 
additional teams it will deploy to satisfy the statutory requirements. 

* The Iraq Supplemental appropriated funding for no fewer than 170 
additional canine teams to support efforts to secure air cargo. 

* The 9/11 Commission Act requires an increase of up to 200canine teams 
that support transportation-related security annually. 

According to officials, TSA interprets meeting the requirements of the 
Iraq Supplemental as contributing to its efforts to meet the 
requirements of the 9/11 Commission Act. As such, the 170 canine teams 
to be procured in accordance with the Iraq Supplemental fall within the 
upper limit of 200 teams per year established by the 9/11 Commission 
Act. 

TSAï¿½s Plan: Includes Establishing Proprietary Canine Program to Support 
Air Cargo Screening Efforts in Iraq Supplemental: 

Of the 170 teams funded by the Iraq Supplemental, TSA plans to deploy 
85 in its Proprietary Canine Program, which was established in January 
2008 within the Office of Security Operations (OSO),[Footnote 11] to 
support air cargo screening efforts. 

* NEDCTP is responsible for training and certifying the Proprietary 
Canine Program teams, but the canine teams will have TSA employees as 
handlers instead of LEA handlers. 

* Teams will be dedicated to searching air cargo, for example cargo 
warehouses. 

TSA plans to add the other 85 teams to NEDCTP; these teams will have 
LEA handlers. 

* To increase overall efforts in screening air cargo, TSA requires that 
all NEDCTP teams spend 25 percent of their duty cycle actively 
screening air cargo. This requirement translates to 60 minutes per duty 
cycle.[Footnote 12] 

TSAï¿½s Plan: Includes Deploying Additional Explosives Detection Canine 
Teams to Aviation and Mass Transit Modes: 

TSA plans to fund the procurement, training, and deployment of 
additional canine teams through its fiscal year 2008 appropriation, and 
TSA plans to deploy them in NEDCTP. 

* A total of $10 million has been allocated to support the deployment 
of 92 teams. 
- As of June 2008, TSA is considering deployment options for these 
teams, but officials said that at least 46 will be deployed in NEDCTP. 
- Options for the other 46 include deploying in the Proprietary Canine 
Program with TSA handlers, in maritime mode, or to support multimodal 
efforts. 

A total of $3.5 million has been allocated to support 45 NEDCTP mass 
transit teams. 

[End of section] 

Results: TSA has begun to increase its capacity to train and deploy 
additional explosives detection canine teams: 

Capacity: TSA Has Begun to Increase Its Capacity to Implement Its Plan 
to Satisfy Statutory Requirements: 

TSA has begun to increase its capacity to implement its plan to train, 
deploy, and certify additional explosives detection canine teams, as 
required, including: 

* making arrangements for procuring additional canines; 

* conducting outreach efforts to secure handlers; 

* adjusting NEDCTPï¿½s training schedule to accommodate additional 
training courses, and; 

* authorizing additional staff positions to support planned efforts. 

Capacity: TSA Has Made Arrangements for Procuring Additional Canines to 
Support Planned Increases: 

TSA receives canines from the Department of Defense (DOD) through an 
existing interagency support agreement. 

* Officials said that they have requested up to 190 canines per year 
for 2007 through 2009, which historically has provided enough canines 
for108 teams plus attrition.[Footnote 13] 

TSA operates a Canine Breeding and Development Center, which since 2002 
has provided 36 canines that have been deployed in NEDCTP. 

To support planned increases, TSA supplemented its existing supply of 
canines by contracting with a private kennel for 200 pretrained canines 
for fiscal year 2008. 

* TSA selects canines to purchase after conducting performance (such as 
evaluating if a canine can detect pretrained odors or is not aggressive 
around people) and medical tests. 

* There is a contract option for 270 additional canines for fiscal year 
2009, bringing the total to 470 canines. 

Capacity: TSA Has Taken Steps and Conducted Outreach Efforts to Secure 
Canine Handlers: 

In November 2007, TSA posted an internal announcement for 85 
Transportation Security Inspector-Cargo explosives detection canine 
handlers for the Proprietary Canine Program. 

* NEDCTP scheduled training for these positions in its 2008 training 
schedule. 

NEDCTP has made efforts to secure volunteer LEA handlers for 2008 and 
2009, according to officials. 

* Field canine coordinators[Footnote 14] work with LEAs in their 
assigned areas to determine the LEAsï¿½ interest in participating in the 
NEDTCP program. 

* Once an LEA expresses interest, TSA sends it a formal invitation to 
participate in NEDCTP. If the LEA accepts the invitation, it signs an 
interagency cooperative agreement with TSA and determines which of its 
officers will attend training and be deployed as handlers. 

Capacity: TSA Has Adjusted Its Training Schedule to Double Student 
Output While Using Existing Facilities: 

NEDCTP training facilities can support two classes, of up to 12 student 
teams each, conducted simultaneously. 

To meet its plan, starting in January 2008 NEDCTP doubled its capacity 
for the number of 12-student classes conducted per year from 9 to 18, 
which increases the maximum number of teams that can be trained from 
108 to 216 annually. 

NEDCTP plans to stagger the class start dates and adjust the daily 
schedules so that up to four different classes can be in training 
during the same time. 

The training curriculum and requirements, length of the course, and 
number of students per class are not being modified. 

Capacity: TSA Has Authorized Staff Positions to Support Planned 
Efforts: 

To support efforts to increase the number of deployed teams, TSA 
authorized 24 additional positions, 16 of which were to support the 
Training and Evaluation Branch. These include: 

* 14 instructor positions, responsible for conducting training classes 
and certifying deployed canine teams, and; 

* 2 support positions that include one management and program analyst 
and one administrative assistant. 

These additional positions increase the branchï¿½s authorized staff to 54 
full-time equivalents. Officials said that this increase was based in 
part on a 2006 study of NEDCTPï¿½s human capital needs,[Footnote 15] and 
once the positions are filled, TSA will be able to assess future needs 
to support the increased number of teams. 

According to officials,NEDCTP has focused on filling instructor 
positions because of their dual role in conducting training and 
certifying deployed teams. 

Four of the newly authorized positions are for additional field canine 
coordinators to increase oversight capacity of deployed teams.[Footnote 
16] 

[End of section] 

Results: TSA is on track with its plan during the first year of 
implementation: 

Implementation: TSA Is On Track in 2008 Implementation, but Some Issues 
Need to Be Resolved for Future Yearsï¿½ Implementation: 

Thus far, TSA has generally obtained canines to meet its needs for 2008 
despite early issues with purchasing canines from the private kennel. 

To deploy the 170 additional canine teams required by the Iraq 
Supplemental, TSA has secured canine handlers and scheduled them for 
training in 2008. TSA efforts to secure volunteer LEA handlers for 2009 
are ongoing. 

TSA is on track with its training schedule: Half of the planned 2008 
training classes are completed or are in process, with 104 teams 
deployed or in training. 

TSA is in the process of filling instructor positions to support 
training and deployment, but the focus on training additional canine 
teams and the remaining vacancies could affect annual certifications. 
Additionally, TSA has identified the need for additional oversight and 
training support for deployed teams. 

Implementation: Thus Far, TSA Has Generally Obtained Additional Canines 
for 2008 Despite Early Issues with Purchasing Pretrained Canines: 

Thus far, TSA has generally obtained the number of canines it needs to 
conduct its training classes in 2008. Nine training classes have been 
conducted or are in process, and TSA has made arrangements to obtain 
canines for the remaining eight classes in 2008. 

* TSA has received 55 canines from DOD. 

* TSA has received six of the nine scheduled fiscal year 2008 
deliveries from the private kennel, but purchased 64 canines out of 
126canines delivered. (See table 1.) 

TSA canceled one training class in February because of the lack of 
pretrained canines. However, TSA officials stated that the kennel did 
not receive the explosive odors from TSA to allow enough time to 
pretrain the first two shipments of canines. 

TSA officials said that despite initial growing pains there has been an 
even progression in the quality of the dogs from the private kennel. 
TSA trainers are still pretraining the canines for about 30 days before 
they enter classes. However, officials said that they are satisfied 
with the canines that they have purchased and that they will likely 
continue buying canines from the kennel. 

Table 1: Number of Canines Purchased through Contract with Private 
Kennel through June 2008: 

Delivery date: December 24, 2007; 
Number of canines stipulated in contract: 14; 
Number of canines delivered for selection: 16; 
Number of canines selected/purchased: 6. 

Delivery date: January 18, 2008; 
Number of canines stipulated in contract: 14; 
Number of canines delivered for selection: 20; 
Number of canines selected/purchased: 9. 

Delivery date: March 3, 2008; 
Number of canines stipulated in contract: 14; 
Number of canines delivered for selection: 20; 
Number of canines selected/purchased: 14. 

Delivery date: April 7, 2008; 
Number of canines stipulated in contract: 18; 
Number of canines delivered for selection: 16; 
Number of canines selected/purchased: 10. 

Delivery date: May 12, 2008; 
Number of canines stipulated in contract: 28; 
Number of canines delivered for selection: 27; 
Number of canines selected/purchased: 15. 

Delivery date: June 16, 2008; 
Number of canines stipulated in contract: 28; 
Number of canines delivered for selection: 27; 
Number of canines selected/purchased: 10[A]. 

Delivery date: Total; 
Number of canines stipulated in contract: 116; 
Number of canines delivered for selection: 126; 
Number of canines selected/purchased: 64. 

Source: GAO analysis of TSA data. 

Note: The kennel is to provide additional canines to let TSA select the 
best qualified canines after reviewing performance and medical tests. 
For example, although only 12 canines are needed for a training class, 
the contract states that the kennel provide 14 canines, which allows 
TSA the option of purchasing the best qualified 12 of the 14. 

[A] According to officials, vehicle difficulties that occurred in 
supplying this delivery resulted in canines being exposed to heat 
conditions that affected their suitability for NEDCTP. As a result, 
they purchased fewer canines than expected. 

[End of table] 

Implementation: Canine Handlers Have Been Secured and Scheduled for 
Training in 2008; Efforts to Secure Volunteer Handlers for 2009 Are 
Ongoing: 

To deploy 170 additional canine teams as required by the Iraq 
Supplemental, TSA has hired 85 Transportation Security Inspector-Cargo 
explosives detection canine handlers that are to be deployed with 
canine partners in the Proprietary Canine Program and has identified 
LEAs to fill the additional 85 positions in NEDCTP. These handlers are 
scheduled to complete training and be deployed by December 2008. 

TSA has extended 12 invitations thus far to LEAs for participation in 
NEDCTP in 2009, and officials said that they expect about 10 of these 
LEAs to accept the invitation. However, TSA will likely need to extend 
additional invitations to meet planned needs. 

According to TSA officials, recruiting LEAs to participate in NEDCTP 
has not historically been a problem. However, with the expansion of the 
program, TSA officials identified a potential need for incentives to 
encourage more LEAs to participate. 

Implementation: Half of the Total 2008 Planned Training Classes Are 
Completed or in Process: 

NEDCTP has conducted, or is in the process of conducting, 9 of the 17 
planned classes for calendar year 2008. (See table 2.) 

* In these nine classes, 104 out of 108 (planned) canine teams have 
been trained and deployed or are in training. 

* Of the 24 graduating teams from the two January training classes, 9 
teams have been certified, 12 have been or need to be scheduled for 14-
day training missions, and TSA plans to reschedule 3 for another 14-day 
training mission. 

TSA plans to conduct 15 training classes in 2009. 

* NEDCTPï¿½s planned training schedule for 2009 is similar to the 
training schedule for 2008; for example, NEDCTP plans to conduct two 
classes simultaneously with staggered start dates that are similar to 
those dates in 2008. 

* TSA has allocated training spots for teams in specific modes of 
transportation. 

* TSA has not yet determined a training schedule for 2010. 

Table 2: Number of Teams Planned for and Trained/in Training under 
NEDCTPï¿½s Doubled Capacity Training Schedule, 2008: 

Class dates (number of classes): January 7 - March 14 (2); 
Proprietary, Plan: 12; 
Proprietary, Actual: 12; 
NEDCTP, Plan: 12; 
NEDCTP, Actual: 12; 
Total students, Plan: 24; 
Total students, Actual: 24. 

Class dates (number of classes): February 4 - April 11 (1); 
Proprietary, Plan: 6; 
Proprietary, Actual: 6; 
NEDCTP, Plan: 6; 
NEDCTP, Actual: 4; 
Total students, Plan: 12; 
Total students, Actual: 10. 

Class dates (number of classes): March 17 - May 23 (2); 
Proprietary, Plan: 12; 
Proprietary, Actual: 11; 
NEDCTP, Plan: 12; 
NEDCTP, Actual: 12; 
Total students, Plan: 24; 
Total students, Actual: 23. 

Class dates (number of classes): April 21 - June 27 (2); 
Proprietary, Plan: 12; 
Proprietary, Actual: 11; 
NEDCTP, Plan: 12; 
NEDCTP, Actual: 12; 
Total students, Plan: 24; 
Total students, Actual: 23. 

Class dates (number of classes): May 27 - August 1[A] 92); 
Proprietary, Plan: 12; 
Proprietary, Actual: 12; 
NEDCTP, Plan: 12; 
NEDCTP, Actual: 12; 
Total students, Plan: 24; 
Total students, Actual: 24. 

Total teams: 
Proprietary, Plan: 54; 
Proprietary, Actual: 52; 
NEDCTP, Plan: 54; 
NEDCTP, Actual: 52; 
Total students, Plan: 108; 
Total students, Actual: 104. 

Source: GAO analysis of TSA data. 

Note: TSAï¿½s plan for 2008 includes 17 training classes, each with 12 
teams, for a total of 204 planned teams. 

[A] This training course is ongoing; the table indicates the actual 
number of teams that enrolled in the course. 

[End of table] 

Implementation: Hiring Instructors to Support Training and Deployment 
Is Ongoing, but Training Focus and Remaining Vacancies Could Affect 
Certifications: 

NEDCTP is in the process of hiring additional instructors to support 
training and deployments. Of 44 authorized instructor positions, 35 are 
filled or pending and 9 are vacant. 

While they are making progress filling these positions, officials said 
that these instructors needed to be on board earlier in the year 
because of their dual purpose of training and certifying. Given that 
training additional teams to support statutorily required increases was 
their priority for 2008, officials said that they are not on pace to 
simultaneously complete the planned training and certifications of 
deployed teams by the end of the year. 

* NEDCTP has completed, or has scheduled for June 2008, 100 of the 398 
certifications for deployed teams that are to be completed this year. 

* Officials said that they need to devise a plan to address training 
and certification needs but currently do not have the resources to 
complete both. 

Implementation: TSA Has Identified Need for Additional Oversight and 
Training Support for Deployed Teams: 

Despite filling three of the four newly authorized field canine 
coordinator vacancies, officials said that NEDCTP may also need 
additional field positions to provide oversight and sustain operations 
for additional teams. The 2006 TSA human capital study identified the 
need for additional resources to ensure quality and consistency of 
canine handlers concomitant with program growth. 

In implementing its plan to train and deploy canine teams, TSA 
officials identified the potential need for on-site training support at 
some locations with Proprietary Canine Program teams. Options include 
providing incentives for NEDCTP LEAs to provide on-site training to 
Proprietary Canine Program teams or authorizing new positions for 
instructors to visit locations in need of additional training. 

[End of section] 

Agency Views: 

We provided a draft of the briefing slides to TSA for review and 
comment, and TSA provided technical comments, which we incorporated as 
appropriate. 

We also provided a draft of the applicable sections of appendix I, 
which contains information on the DHS components that employ explosives 
detection canine teams, to the U.S. Coast Guard, U.S. Customs and 
Border Protection, the U.S. Federal Protective Service, the U.S. Secret 
Service, and DHSï¿½s Office for Bombing Prevention. We also provided a 
draft of appendix II, which contains information about DHSï¿½s 
contributions to developing explosives detection canine standards, to 
U.S. Customs and Border Protection and DHSï¿½s Office of Bombing 
Prevention. Each of these components provided technical comments, which 
we incorporated as appropriate. 

GAO Contacts: 

Should you or your staff have any questions on the matters discussed in 
this briefing, please contact Cathleen Berrick at (202) 512-3404 or 
[email protected]. 

[End of section] 

Appendixes: 

Appendix I: Overview of DHSï¿½s Explosives Detection Canine Programs: 

* U.S. Customs and Border Protection (CBP): Office of Field Operations 
Canine Enforcement Program; 

* U.S. Coast Guard: Canine Substance Detection Program; 

* U.S. Secret Service: Special Operations Division Canine Explosives 
Detection Unit; 

* Federal Protective Service (FPS): Explosive Detection Dog Program. 

Appendix II: DHS Efforts to Establish Industrywide Standards for 
Explosives Detection Canines: 

Appendix III: Information about TSAï¿½s NEDCTP Organization and Budget: 

[End of section] 

Appendix I: 

CBP: Office of Field Operations Canine Enforcement Program: 

Establishment and Mission: 

* The U.S. Customs Service established a narcotics detection canine 
program in 1970, and the U.S. Border Patrol established a canine 
program in 1986. 

* The programï¿½s initial explosives detection canine teams were trained 
in 2002. 

* The programï¿½s mission is to prevent terrorists and their weapons from 
entering the United States and to assist other law enforcement 
agencies. 

Number of Teams and Deployment: 

* CBPï¿½s Office of Field Operations has several dozen explosives 
detection canine teams that are deployed to numerous ports of entry 
throughout the United States.[Footnote 17] 

Uses of Teams: 

* Together, CBPï¿½s Office of Field Operations and Office of Border 
Patrol programs have over 1,200 canines trained in various 
disciplinesï¿½explosives, narcotics, concealed humans, and currency 
detection and search and rescue. 

* Explosives detection teams screen for explosives on tractors, 
trailers, rail, ferries, and passenger cruise ships; at airports on 
aircraft and in air cargo; on passengers; and in luggage and occupied 
buildings. 

Training and Certification: 

* Canine handlers have been CBP officers for a minimum of 3 years. 

* CBP uses internally developed standards to train explosives detection 
teams at CBPï¿½s canine training center in Front Royal, Virginia. 

* CBP also trains and certifies U.S. Coast Guard teams. 

* Teams undergo certification evaluations every 6 months. 

Sources of Canines[Footnote 18]: 

* CBP has a breeding program on-site at its training center. 

* CBP also procures canines from private vendors for its program and 
for the U.S. Coast Guard. 

U.S. Coast Guard: Canine Substance Detection Program: 

Establishment and Mission: 

* The first U.S. Coast Guard canine explosive detection teams were 
fielded in 2003, as part of the implementation of the Maritime 
Transportation Security Act of 2002,[Footnote 19] to detect explosive 
substances in support of homeland security and law enforcement. 

Number of Teams and Deployment: 

* The U.S. Coast Guardï¿½s explosives detection canine teams [Footnote 
20] are deployed to several ports around the nation as part of Maritime 
Safety and Security Teams and the Maritime Security Response Team. 

Uses of Teams: 

* Teams conduct searches at port facilities and on board vessels 
entering port. 

* Teams participate in interagency partnerships, provide assistance to 
state and local law enforcement agencies, and provide immediate 
response to interagency needs through Adaptive Force Packages 
(combinations of discrete operational capabilities designed to meet 
discrete mission requirements). 

U.S. Secret Service: Special Operations Division,Canine Explosives 
Detection Unit: 

Establishment and Mission: 

* The U.S. Secret Service established a canine unit in 1976 to provide 
a safe and secure environment for individuals and locations protected 
by the U.S. Secret Service. 

Deployment: 

* Its explosives detection canine teams[Footnote 21] are based in 
Washington, D.C., and are deployed to other locations as needed. 

Uses of Teams: 

* Teams are responsible for providing explosives detection services for 
the White House Complex, Vice Presidentï¿½s Residence, and Foreign 
Missions Branch. Additionally, as needed, teams provide these services 
worldwide in support of the U.S. Secret Service protective mission. 

Training and Certification: 

* The U.S. Secret Service personnel train canine teams at the agencyï¿½s 
training facility in Maryland using internally developed training 
standards. 

Sources of Canines: 

* The U.S. Secret Service procures its canines from a private kennel. 

FPS: Explosive Detection Dog Program: 

Establishment and Mission: 

* FPS established its canine program in 2003 to provide an explosive 
detection capability in the protection of life and property and a 
strong visible and psychological deterrence against criminal and 
terrorist acts. 

Number of Teams and Deployment: 

* Over 50 canine teams[Footnote 22] are deployed nationwide with teams 
in each FPS region. 

Uses of Teams: 

* Teams are responsible for conducting routine explosive searches of 
office areas, vehicles, materials, packages, and persons housed in 
federally owned or leased facilities, and responding to bomb threats 
and unattended packages. 

Training and Source of Canines: 

* FPS canines have previously been procured through and teams trained 
in partnership with a public universityï¿½s canine training center, but 
the training contract has expired and FPS is examining options for 
future training providers. 

[End of appendix] 

Appendix II: 

Canine Standards: DHS Has Contributed to Progress in Developing 
Guidelines for Explosives Detection Canines: 

Although DHS explosives detection canine teams are generally trained 
and certified by DHS component agencies, DHS has contributed to 
industrywide efforts to develop explosives detection canine guidelines 
through the Scientific Working Group on Dog and Orthogonal Detector 
Guidelines (SWGDOG). 

* In 2003, SWGDOG was established to address the performance and 
reliability of canines used for various detection disciplines (e.g., 
explosives, narcotics). 

* The group has 55 members, including international,federal, state, and 
local law enforcement agencies; academic entities; and private sector 
stakeholders. 

In August 2007, SWGDOGï¿½s membership approved guidelines for explosives 
detection canines. These guidelines were publicly vetted and include 
best practices for training and certification, such as explosive 
substances to use in training and certification. 

DHS has contributed funding for SWGDOG, and DHS representatives 
contributed to developing the guidelines as members of an explosives 
detection canine subcommittee. ADHS representative is chair of the 
subcommittee. 

Canine Standards: While DHS Agenciesï¿½ Standards Meet the Guidelines, 
Standardized Terminology from Guidelines May Be Incorporated: 

According to TSA and CBP officials, these agenciesï¿½ training and 
certification standards meet or exceed SWGDOGï¿½s guidelines, and the 
agencies do not plan to make substantive changes to their standards as 
a result of SWGDOGï¿½s guidelines. 

Some DHS agencies may choose to adjust their standards to incorporate 
the standardized terminology in SWGDOGï¿½s guidelines, according to the 
Senior Advisor for National Canine Policy and Standards at DHSï¿½s Office 
for Bombing Prevention. 

Canine Standards: Some Efforts Are Under Way to Incorporate Newly 
Developed Guidelines: 

DHSï¿½s Office for Bombing Prevention is planning to use SWGDOGï¿½s 
guidelines as a baseline for developing canine training curriculum and 
standards consistent with Homeland Security Presidential Directive 19, 
according to the officeï¿½s Senior Advisor for National Canine Policy and 
Standards. 

Participants of TSAï¿½s Transit Security Grant Program and DHSï¿½s Homeland 
Security Grant Program are required to maintain data to document 
compliance with SWGDOGï¿½s guidelines for their explosives detection 
canine teams. 

[End of appendix] 

Appendix III: 

TSA NEDCTP: Organization Structure: 

[See PDF for image] 

Illustration of organizational tree, as follows: 

Top level: 
* Chief. 

Second level: 
* Deputy Chief. 

Third level: 
* Chief Canine Operations Branch, TSA Headquarters, Arlington, VA; 
- Area Canine Coordinators; 
- Field Canine Coordinators; 
- Cargo, Mass transit coordinators. 

* Canine Training and Evaluation Branch, Lackland Air Force Base, San 
Antonio, TX; 
- Instructor Supervisor; 
- Training Manager; 
- Trainer Supervisors; 
- Canine Breeding and Development Center. 

* Canine Explosives Branch, Atlantic City, NJ. 

Source: GO analysis of TSA data. 

[End of figure] 

TSA NEDCTP Budget Information: 

NEDCTP receives funding through three different TSA accounts: aviation, 
surface/rail, and air cargo. According to TSA, its fiscal year 2008 
canine budget was about $69 million. 

* Aviation teams: $36.3 million; 
* Surface/rail (mass transit) teams: $5.5 million; 
* Air cargo inspection program: $7.0 million; 
* Iraq Supplemental: $20.3 million. 

For fiscal year 2009, TSA requested the consolidation of these canine 
programs into one account. Officials said that consolidating the 
accounts would help TSA to deploy teams to multiple transportation 
modes and not restrict the number of teams capable of being deployed to 
a particular mode on the basis of funding. 

[End of appendix] 

[End of enclosure] 

Footnotes: 

[1] TSA trains its explosives detection canine teams to detect 
explosives but not radiological materials or chemical, nuclear, or 
biological weapons. 

[2] Pub. L. No. 110-53, ï¿½ 1307, 121 Stat. 266, 395-97 (2007) 
(authorizing appropriations of such sums as may be necessary to carry 
out section 1307 for fiscal years 2007 through 2011). 

[3] Orthogonal refers to independent detection methods, such as canines 
and electronic sensors. 

[4] Pub. L. No. 110-28, 121 Stat. 112, 140-41 (2007). 

[5] Explanatory Statement accompanying Pub. L. No. 110-161, Div. E, 121 
Stat. 1844, 2042 (2007), at 1046-47. 

[6] Teams can be used to support local needs (e.g., responding to bomb 
threats at other locations) during the other 20 percent of the time. 

[7] VIPR missions are targeted deployments of integrated TSA and other 
federal, state, or local assets to secure any mode of transportation. 
VIPR missions can occur in a variety of venues. 

[8] All handlers must attend the 10-week training. LEAs may obtain 
trained canines outside of TSA (about 4 percent have non-TSA procured 
and trained canines), but these teams must pass TSAï¿½s annual 
certification evaluation. 

[9] TSA considers a team to be deployed after it graduates from the 10-
week training course and returns to its airport/mass transit system. 
Certification occurs about 2-ï¿½ months after. 

[10] These totals assume that TSA will train and deploy replacements 
for attrition teams. 

[11] According to TSA officials, on June 3, 2008, they approved the 
consolidation of OSO Proprietary Canine Program teams under NEDCTP in 
the Office of Law Enforcement/Federal Air Marshal Service. 

[12] According to TSA officials, a handlerï¿½s duty cycle is typically an 
8-hour workday, of which canines spend up to 4 hours actively 
screening. 

[13] These canines are not pretrained to detect odors; TSA trainers 
pretrain the canines. 

[14] Field canine coordinators are NEDCTP personnel responsible for, 
among other things, coordinating with LEAs, overseeing deployed canine 
teams, and monitoring explosives provided to LEAs for training 
purposes. 

[15] TSAï¿½s Office of Human Capital study of NEDCTP conducted in 2006 
occurred prior to the enactment of 9/11 Commission Act, and therefore 
did not take into account resources needed to accommodate and sustain 
the mandated increase. 

[16] The remaining positions are an explosives specialist at NEDCTPï¿½s 
Explosives Branch and three management and program analysts at TSA 
headquarters to support canine air cargo operations. 

[17] CBP considers the number and deployment locations of its 
explosives detection canine teams to be sensitive information. 

[18] The DHS Inspector General released a report on CBPï¿½s canine 
program procurement in April 2008. 

[19] See Pub. L. No. 107-295, 116 Stat. 2064 (2002). 

[20] U.S. Coast Guard considers the number and deployment locations of 
its explosives detection canine teams to be sensitive information. 

[21] U.S. Secret Service considers the number of explosives detection 
canine teams to be sensitive information. 

[22] FPS considers the number and deployment locations of its 
explosives detection canine teams to be sensitive information. 

[End of section] 

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