Cargo containers could be used to transport unlawful cargo, including weapons of mass destruction, illicit arms, stowaways, and illegal narcotics into the United States. Within the Department of Homeland Security (DHS), U.S. Customs and Border Protection (CBP) is responsible for container security. To enhance container security, CBP has partnered with DHS's Science and Technology (S&T) Directorate to develop performance standards--requirements that must be met by products to ensure they will function as intended--for container security technologies. After successful completion of testing, S&T plans to deliver performance standards to DHS's Office of Policy Development and CBP. As requested, this report addresses (1) the extent to which DHS has made progress in conducting research and development and defining performance standards for the technologies, and (2) the remaining steps and challenges, if any, DHS could face in implementing the technologies. GAO, among other things, reviewed master test plans for S&T's four ongoing container security technology projects, and interviewed DHS officials.

DHS has conducted research and development for four container security technology projects, but has not yet developed performance standards for them. From 2004 through 2009, S&T spent approximately $60 million and made varying levels of progress in the research and development of its four container security technology projects. These projects include the Advanced Container Security Device (ACSD), to detect intrusion on all six sides of a container; the Container Security Device (CSD), to detect the opening or removal of container doors; the Hybrid Composite Container, a lightweight container with an embedded sensor grid to detect intrusion on all six sides of the container; and the Marine Asset Tag Tracking System (MATTS), to track containers. The ACSD and Hybrid Composite Container technologies have not yet completed laboratory testing, but the CSD and MATTS are proceeding to testing in an operational environment, which will determine if the technologies can operate in the global supply chain--the flow of goods from manufacturers to retailers. S&T's master plans for conducting operational environment testing, however, do not reflect all of the operational scenarios the Office of Policy Development and CBP are considering for implementation. According to DHS guidance, before S&T can provide performance standards to the Office of Policy Development and CBP, the technologies are to have been proven to work in their final form and under expected operational conditions. Until the container security technologies are tested and evaluated consistent with all of the operational scenarios DHS identified for potential implementation, S&T cannot provide reasonable assurance that the technologies will effectively function as the Office of Policy Development and CBP intend to implement them. If S&T determines that the container security technologies are mature enough to provide performance standards for these technologies to the Office of Policy Development and CBP, key steps and challenges remain before implementation can occur. These key steps involve (1) obtaining support from the trade industry and international partners, (2) developing a concept of operations (CONOPS) detailing how the technologies are to be deployed, and (3) certifying the technologies for use. The Office of Policy Development and CBP plan to take these steps if and when S&T provides performance standards. GAO recommends that DHS test and evaluate the container security technologies consistent with all the operational scenarios DHS identified for potential implementation. DHS concurred with our recommendation.

Status Legend:

Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.

• In Process
• Open
• Closed - implemented
• Closed - not implemented

Recommendations for Executive Action

Recommendation: To ensure that the container security technologies being developed will function in their intended operational environments, the Secretary of Homeland Security should instruct the Assistant Secretary of the Office of Policy, the Commissioner of U.S. Customs and Border Protection, and the Under Secretary of the Science and Technology Directorate, to test and evaluate the container security technologies consistent with all of the operational scenarios DHS identified for potential implementation, before S&T provides performance standards to the Office of Policy Development and CBP.

Agency Affected: Department of Homeland Security

Status: Open

Comments: In fiscal year 2010, we reviewed and reported on the efforts of the Department of Homeland Security's (DHS) Science and Technology (S&T) Directorate to develop performance standards for container security technologies and provide the standards to the Office of Policy Development and Customs and Border Protection (CBP) for implementation in the supply chain. We reported, among other things, that before S&T can provide performance standards to the Office of Policy Development and CBP, the technologies are to have been proven to work in their final form and under expected operational conditions. According to DHS, S&T and CBP are considering implementing a pilot to test the technologies in additional cargo routes and the results of the pilot are to be used to validate the performance standards. DHS added that it will not implement any technology without prior testing in the operational scenario. To fully address this recommendation, S&T and CBP need to complete the proposed pilot testing.