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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2007. Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/23150.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2007. Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/23150.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2007. Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/23150.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2007. Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/23150.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2007. Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/23150.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2007. Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/23150.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2007. Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/23150.
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TRANSPORTATION RESEARCH BOARD WASHINGTON, D.C. 2007 www.TRB.org T R A N S I T C O O P E R A T I V E R E S E A R C H P R O G R A M TCRP REPORT 86 Research sponsored by the Federal Transit Administration in cooperation with the Transit Development Corporation Subject Areas Planning and Administration • Public Transit • Transportation Law • Security Public Transportation Security Volume 13 Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers COUNTERMEASURES ASSESSMENT AND SECURITY EXPERTS, LLC Camden, NJ WAITE & ASSOCIATES Reno, NV NAKANISHI RESEARCH AND CONSULTING, LLC New York, NY

TRANSIT COOPERATIVE RESEARCH PROGRAM The nation’s growth and the need to meet mobility, environmental, and energy objectives place demands on public transit systems. Current systems, some of which are old and in need of upgrading, must expand service area, increase service frequency, and improve efficiency to serve these demands. Research is necessary to solve operating problems, to adapt appropriate new technologies from other industries, and to intro- duce innovations into the transit industry. The Transit Cooperative Research Program (TCRP) serves as one of the principal means by which the transit industry can develop innovative near-term solutions to meet demands placed on it. The need for TCRP was originally identified in TRB Special Report 213—Research for Public Transit: New Directions, published in 1987 and based on a study sponsored by the Urban Mass Transportation Administration—now the Federal Transit Administration (FTA). A report by the American Public Transportation Association (APTA), Transportation 2000, also recognized the need for local, problem- solving research. TCRP, modeled after the longstanding and success- ful National Cooperative Highway Research Program, undertakes research and other technical activities in response to the needs of tran- sit service providers. The scope of TCRP includes a variety of transit research fields including planning, service configuration, equipment, facilities, operations, human resources, maintenance, policy, and administrative practices. TCRP was established under FTA sponsorship in July 1992. Pro- posed by the U.S. Department of Transportation, TCRP was autho- rized as part of the Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA). On May 13, 1992, a memorandum agreement out- lining TCRP operating procedures was executed by the three cooper- ating organizations: FTA, the National Academies, acting through the Transportation Research Board (TRB); and the Transit Development Corporation, Inc. (TDC), a nonprofit educational and research orga- nization established by APTA. TDC is responsible for forming the independent governing board, designated as the TCRP Oversight and Project Selection (TOPS) Committee. Research problem statements for TCRP are solicited periodically but may be submitted to TRB by anyone at any time. It is the responsibility of the TOPS Committee to formulate the research program by identi- fying the highest priority projects. As part of the evaluation, the TOPS Committee defines funding levels and expected products. Once selected, each project is assigned to an expert panel, appointed by the Transportation Research Board. The panels prepare project state- ments (requests for proposals), select contractors, and provide techni- cal guidance and counsel throughout the life of the project. The process for developing research problem statements and selecting research agencies has been used by TRB in managing cooperative research pro- grams since 1962. As in other TRB activities, TCRP project panels serve voluntarily without compensation. Because research cannot have the desired impact if products fail to reach the intended audience, special emphasis is placed on dissemi- nating TCRP results to the intended end users of the research: tran- sit agencies, service providers, and suppliers. TRB provides a series of research reports, syntheses of transit practice, and other support- ing material developed by TCRP research. APTA will arrange for workshops, training aids, field visits, and other activities to ensure that results are implemented by urban and rural transit industry practitioners. The TCRP provides a forum where transit agencies can cooperatively address common operational problems. The TCRP results support and complement other ongoing transit research and training programs. TCRP REPORT 86: VOLUME 13 Project J-10J ISSN 1073-4872 ISBN: 978-0-309-09899-1 Library of Congress Control Number 2007906106 © 2007 Transportation Research Board COPYRIGHT PERMISSION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA, FMCSA, FTA, or Transit Development Corporation endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. NOTICE The project that is the subject of this report was a part of the Transit Cooperative Research Program conducted by the Transportation Research Board with the approval of the Governing Board of the National Research Council. Such approval reflects the Governing Board’s judgment that the project concerned is appropriate with respect to both the purposes and resources of the National Research Council. The members of the technical advisory panel selected to monitor this project and to review this report were chosen for recognized scholarly competence and with due consideration for the balance of disciplines appropriate to the project. The opinions and conclusions expressed or implied are those of the research agency that performed the research, and while they have been accepted as appropriate by the technical panel, they are not necessarily those of the Transportation Research Board, the National Research Council, the Transit Development Corporation, or the Federal Transit Administration of the U.S. Department of Transportation. Each report is reviewed and accepted for publication by the technical panel according to procedures established and monitored by the Transportation Research Board Executive Committee and the Governing Board of the National Research Council. The Transportation Research Board of the National Academies, the National Research Council, the Transit Development Corporation, and the Federal Transit Administration (sponsor of the Transit Cooperative Research Program) do not endorse products or manufacturers. Trade or manufacturers’ names appear herein solely because they are considered essential to the clarity and completeness of the project reporting. Published reports of the TRANSIT COOPERATIVE RESEARCH PROGRAM are available from: Transportation Research Board Business Office 500 Fifth Street, NW Washington, DC 20001 and can be ordered through the Internet at http://www.national-academies.org/trb/bookstore Printed in the United States of America

CRP STAFF FOR TCRP REPORT 86, VOLUME 13 Christopher W. Jenks, Director, Cooperative Research Programs Crawford F. Jencks, Deputy Director, Cooperative Research Programs S. A. Parker, Senior Program Officer Eileen P. Delaney, Director of Publications Ellen M. Chafee, Assistant Editor TCRP PROJECT J-10J PANEL Field of Special Projects William J. Fleming, Massachusetts Bay Transportation Authority Police, (Chair) Leonard E. Diamond, Somerville, NJ Dorothy W. Dugger, San Francisco Bay Area Rapid Transit District Ben Gomez, Dallas Area Rapid Transit Michael E. Libonati, Temple University, Philadelphia, PA Eugene Morabito, Honeywell Technical Solutions, Inc. Erhart M. Olson, Washington Metropolitan Area Transportation Authority Robin M. Reitzes, San Francisco City Attorney’s Office Richard Winston, Chicago Transit Authority Anthony B. Tisdale, FTA Liaison Representative Greg Hull, APTA Liaison Representative Chas King, Department of Homeland Security Liaison Representative Vincent P. Pearce, U.S. Department of Transportation Liaison Representative Robert D. Phillips, Transportation Security Administration Liaison Representative C O O P E R A T I V E R E S E A R C H P R O G R A M S AUTHOR ACKNOWLEDGMENTS The research reported herein was performed under TCRP Project J-10J by Countermeasures Assess- ment and Security Experts (CASE™), LLC, Camden, New Jersey. CASE™ was the contractor for this study, with Waite & Associates and Nakanishi Research and Consulting, LLC, serving as subcontractors. Ernest “Ron” Frazier, Sr., Attorney, President of CASE™, was the Principal Investigator. Jocelyn K. Waite, Attorney, Principal of Waite & Associates, Reno, Nevada, was the Associate Investigator. Yuko J. Nakanishi, Ph.D, President of Nakanishi Research and Consulting, LLC, New York, New York, was the Assistant Investigator.

This thirteenth volume of TCRP Report 86: Public Transportation Security will assist public transportation agency senior staff, policy board staff, law enforcement, and security service providers in assessing the advantages and disadvantages of establishing a passenger security inspection program. The objective of Volume 13: Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers is to provide guidance that a public transporta- tion agency may use when considering whether, where, when, and how to introduce a passen- ger security inspection program into its operations. The report is a useful ready reference guide that identifies (1) the most promising types of screening technologies and methods cur- rently in use or being tested, (2) the operational considerations for the deployment of these technologies in land-based systems, (3) the legal precedent that either applies or that should be contemplated in connection with passenger screening activities, and (4) a passenger secu- rity inspection policy decision-making model. Detailed appendixes to this report are pub- lished as TCRP Web-Only Document 38 and may be found on the TRB website at http://www. TRB.org/SecurityPubs. Countermeasures Assessment and Security Experts, LLC, prepared this volume of TCRP Report 86 under TCRP Project J-10J. Emergencies arising from terrorist threats highlight the need for transportation managers to minimize the vulnerability of travelers, employees, and physical assets through incident prevention, preparedness, mitigation, response, and recovery. Managers seek to reduce the chances that transportation vehicles and facilities will be targets or instruments of terrorist attacks and to be prepared to respond to and recover from such possibilities. By being pre- pared to respond to terrorism, each transportation agency is simultaneously prepared to respond to natural disasters such as hurricanes, floods, and wildfires, as well as human- caused events such as hazardous materials spills and other incidents. This is the thirteenth volume of TCRP Report 86: Public Transportation Security, a series in which relevant information is assembled into single, concise volumes—each pertaining to a specific security problem and closely related issues. These volumes focus on the con- cerns that transportation agencies are addressing when developing programs in response to the terrorist attacks of September 11, 2001, and the anthrax attacks that followed. Future volumes of the reports will be issued as they are completed. To develop this volume in a comprehensive manner and to ensure inclusion of signifi- cant knowledge, available information was assembled from numerous sources, including a number of state departments of transportation. A topic panel of experts in the subject area was established to guide the researchers in organizing and evaluating the collected data and to review the final document. F O R E W O R D By S. A. Parker Staff Officer Transportation Research Board

This volume was prepared to meet an urgent need for information in this area. It records practices that were acceptable within the limitations of the knowledge available at the time of its preparation. Work in this area is proceeding swiftly, and readers are encouraged to be on the lookout for the most up-to-date information. Volumes issued under TCRP Report 86: Public Transportation Security may be found on the TRB website at http://www.TRB.org/SecurityPubs.

C O N T E N T S 1 Summary 10 Chapter 1 Introduction 11 Modal Perspective 12 Federal and State Mandates and Initiatives 12 Security Practices 13 Security Inspection Technologies 15 Chapter 2 Passenger Security Inspection (PSI) Methods 16 PSIs Using Manual or Visual Inspection Methods 16 PSI Technologies 18 PSI Using Canines 19 Behavioral Assessment 21 Legal Implications of PSIs 26 Chapter 3 Transit Agency Interviews 27 Perception of Terrorist Risk 28 Inspection Policy and Protocol 31 Legal Issues Related to PSIs 31 Impact of PSI Programs on Agency Image and Customer Satisfaction 31 Training 32 Agencies Not Planning to Conduct PSIs 33 Security Measures 34 Size of Security Force 34 Collaboration with Local Law Enforcement, Emergency Responders, and the Community 35 Ferry Systems 40 Chapter 4 PSI Decision-Making Model 40 Introduction 41 Decision-Making Model 42 Overview of Phase 1—Risk Assessment 45 Overview of Phase 2—Policy/Protocol Development 46 Overview of Phase 3—Assessment of PSI Methods 46 Phase 1—Risk Assessment 56 Phase 2—Policy/Protocol Development 61 Phase 3—Assessment of PSI Methods 67 Appendixes

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TRB’s Transit Cooperative Research Program (TCRP) Report 86, Public Transportation Security Public Transportation Security Volume 13: Public Transportation Passenger Security Inspections: A Guide for Policy Decision Makers suggests guidance that a public transportation agency may use when considering whether, where, when, and how to introduce a passenger security inspection program into its operations. The report identifies promising types of screening technologies and methods currently in use or being tested, and the operational considerations for the deployment of these technologies in land-based systems. The report also examines the legal precedent that either applies or that should be contemplated in connection with passenger screening activities, and includes a passenger security inspection policy decision-making model. Detailed appendixes to TCRP Report 86 Vol. 13 were published as TCRP Web-Only Document 38.

The TCRP Report 86: Public Transportation Security series assembles relevant information into single, concise volumes, each pertaining to a specific security problem and closely related issues. These volumes focus on the concerns that transit agencies are addressing when developing programs in response to the terrorist attacks of September 11, 2001, and the anthrax attacks that followed. Future volumes of the report will be issued as they are completed.

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