Selected Aviation Security Legislation in the Aftermath of the September 11 Attack

Order Code RL31150
CRS Report for Congress
Received through the CRS Web
Selected Aviation Security Legislation in the
Aftermath of the September 11 Attack
Updated December 14, 2001
name redacted
Economic Analyst, Transportation
Resources, Science, and Industry Division
Congressional Research Service ˜ The Library of Congress

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Selected Aviation Security Legislation in the Aftermath
of the September 11 attack.
Summary
The September 11, 2001 hijacking of four airliners, and the enormous loss of
life from the use of these airplanes as weapons, has focused congressional concerns
on aviation security. During the debate in Congress the overarching issue was the
degree of federal involvement needed both to make commercial air travel safer and
to restore the public’s confidence in the security of our Nation’s airway and airports.
On October 11, 2001, the Senate passed, after multiple amendments, the
Aviation Security Act of 2001, S. 1447 (introduced by Senator Hollings). The bill
provided for the federalization of most aspects of airport security. The responsibility
for much of the law enforcement aspect of airport security would have been shifted
from the Department of Transportation (DOT) to the Department of Justice (DOJ).
Front-line screening of passengers and baggage would be carried out by federal agents
under the authority of the Attorney General. DOT would have continued to
administer the Federal Air Marshals (FAM) program but under DOJ guidelines.
On November 1, 2001, the House passed a bill that was significantly different
from Senate-passed S. 1447. The Airport Security Federalization Act of 2001 (S.
1447 amended by the text of H.R. 3150, introduced by Representative Young),
included provisions to shift the responsibility for the security of all modes of
transportation to a new administration, the Transportation Security Administration
(TSA), within DOT. The bill called for the oversight of all airport screeners by
uniformed federal agents but would have allowed for the use of contract employees
as front-line security screeners.
On November 19, 2001, President Bush signed the Aviation and Transportation
Security Act (ATSA) (P.L. 107-71; H. Rept. 107-296). ATSA, includes elements of
both the House and Senate bills as well as new provisions added to facilitate the final
compromise that was agreed to in conference. On the contentious issue of whether
screeners should be federal agents or contractor personnel, ATSA provides that,
within one year, federal employees shall be hired to take over airport security
screening services at all but five U.S. commercial airports. Two years later, however,
airports may opt-out of the federal screener system and switch to contractor
screeners. The Act also establishes a new Transportation Security Administration
(TSA) headed by an Under Secretary of Transportation for Security. Within three
months of enactment, the responsibilities for aviation security would be transferred
from the Federal Aviation Administration (FAA) to the TSA. Also included in the
Act are provisions: requiring that, within 60 days, airports provide for the screening
or bag-matching of all checked baggage; allowing pilots to carry firearms; requiring
the electronic transmission of passenger manifests on international flights prior to
landing in the U.S.; requiring background checks, including national security checks,
of persons who have access to secure areas at airports; and requiring that all federal
security screeners be U.S. citizens.

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Contents
Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Airport Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Security in the Aircraft . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
The Federal Role in Aviation Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Federalizing Airport Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Strengthening and Enforcing the Regulation of Airport Security . . . . . . . . . 3
Aviation Security: a Legislative Overview of S. 1447 . . . . . . . . . . . . . . . . . . . . . 3
The House and Senate-Passed Bills . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Airport Security Provisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Federal Air Marshal and Cockpit Security Provisions . . . . . . . . . . . . . 4
Funding Provisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Other Provisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Conference Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Federalization of Airport Security Screeners . . . . . . . . . . . . . . . . . . . . 5
What Federal Agency Should Have Security Responsibility . . . . . . . . 6
The Aviation and Transportation Security Act (ATSA) . . . . . . . . . . . . . . . . . . . 6
Airport Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Funding and Liability Provisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Federal Air Marshals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Cockpit and Cabin Security Measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Guns and Less-Than-Lethal Weaponry for Flight Crews . . . . . . . . . . . . . . . 8
Passenger Manifests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Carry on Baggage and Unusual Cargo Provisions . . . . . . . . . . . . . . . . . . . . 9
List of Tables
Table 1: Side-by-Side Comparison of Selected Provisions From Aviation Security
Legislation in the 107th Congress . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

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Selected Aviation Security Legislation in the
Aftermath of the September 11 attack.
The September 11, 2001 hijacking of four airliners, and the enormous loss of
life from the use of these airplanes as weapons, has focused congressional concerns
on aviation security. During the debate in Congress following the attack the
overarching issue was the degree of federal involvement needed to both make
commercial air travel safer and to restore the public’s confidence in the security of our
Nation’s airway and airports. On November 19, 2001, President Bush signed the
Aviation and Transportation Security Act (ATSA) (P.L. 107-71).
After a brief background discussion, this report discusses different policy
approaches to the federal role in aviation security. The report provides an overview
of the bills that passed in the House and Senate. It then discusses the conference
agreement compromise and highlights the provisions of ATSA. Finally, a side-by-side
presentation of selected provisions from the House, Senate and enacted bills are
displayed in Table 1.
Background
Airport Security
Airport security efforts are generally directed toward preventing access to
aircraft or secure areas of airports by terrorists and others who pose as passengers,
infiltrate as employees, or slip into restricted zones at an airport to plant explosives
or hijack an aircraft. To counter these efforts, airlines screen passengers and baggage.
Airports and airlines also require employee background checks.1 They have also
tightened secure area access requirements. During the past two years, however,
General Accounting Office (GAO) and Department of Transportation (DOT)
Inspector General (IG) investigations have criticized security measures at major
airports. In its report, Long-Standing Problems Impair Airport Screeners’
Performance (GAO/RCED-00-75; June 28, 2000), GAO found that screeners’
performance in detecting dangerous objects was not satisfactory.
A DOT IG’s March 23, 2001, Aviation Security memorandum to the FAA
administrator stated that baggage screeners were screening fewer bags per day than
the recently installed explosive detection systems could screen per hour. The IG also
found that airport operators and airlines frequently were not complying with the
background check requirements for employees with access to secure areas of their
airports. The IG found that, while the FAA had made significant progress in
1See also CRS Report RL31151. Aviation Security Technologies and Procedures: Screening
Passengers and Baggage, by (name redacted).

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CRS-2
deploying existing advanced security technologies, it had failed to integrate the
various security assets into a seamless security system.
Security in the Aircraft
Since the late 1980s, the focus of security efforts was on intercepting explosives
in the airport. The September 11 terrorist attacks have changed this. Following the
attack there was renewed interest in expanding the Federal Air Marshal (FAM)
program in the belief that an armed federal agent might have thwarted the hijackers.
Supporters of expanding the FAM program argued that an expanded program would
also have a deterrent effect on would-be hijackers. The security of the cockpit has
also became an issue. Supporters of stronger cockpit doors, locks, and latches argued
that if the cockpits had been more secure the September 11 terrorists might not have
been able to seize the controls.2
The Federal Role in Aviation Security
A history of less-than-satisfactory investigative reports on airport security and
long delays in the regulatory implementation of security improvements included in
legislation, led to statements of frustration by Members in both houses of Congress.
This past failure to improve the current system, combined with the totally unforeseen
scope of the September 11 attack by policy makers, led to a consensus for a deeper
federal involvement in aviation security.
Federalizing Airport Security
For many proponents, federalizing airport security simply meant making airport
security a federal law enforcement or national security function. Federal agents would
screen passengers and baggage and, in some proposals, would also patrol both the
secure and public areas of airports. FAA estimated that this would require 28,000 full
time equivalent employees at a cost of roughly $1.8 billion per year.3 This
federalizing option had the advantage of conceptual simplicity. Having federal law
enforcement agents providing the security at U.S. airports was also, according to
proponents, the best way to restore public confidence in the aviation system. During
the post-September 11 aviation security debate in Congress, they argued that it is
doubtful that merely imposing federal oversight and supervision on the already failed
U.S. system of contractor airport security screeners would achieve the scope of
change needed to assure the public of the effectiveness of U.S. airport security.
Critics, however, warned that this option would create a bureaucracy that could
become as ineffective as the current system and at a much higher cost. Critics also
argued that the change to a totally federal workforce is an enormous undertaking and
that imposing strict federal control over contractors could be accomplished more
2The Bush Administration has set aside $500 million of emergency appropriations to help pay
for the retrofitting of cockpit doors. Most airlines on their own initiative have begun
reinforcing the cockpit doors and locks in their aircraft.
3Since the passage of ATSA, the estimates of the costs for all its provisions (i.e. airport
security, air marshals, and equipment) have been as high as $5 billion.

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easily. Finally, critics argued that to quickly improve the performance of airport
security screeners, managers must have more freedom to dismiss and discipline
employees than would be likely under any system that utilized federal employees.
Strengthening and Enforcing the Regulation of Airport
Security
Under this option the federal presence and oversight would increase but private
companies would continue to provide the security employees. They would, however,
work under stricter, background checks, training, and supervision. This was seen by
proponents as less expensive than hiring the estimated 28,000 federal agents that
would be needed for the 100% federal employee option. They also argued that this
option would also give federal security managers more freedom to hire and fire based
on merit and performance than they could if employees were protected by U.S. civil
service law. Opponents of this solution generally argued that in the U.S., profit-
driven contract airport security services have performed poorly over many years and
it is doubtful that they will ever achieve the level of security that could be provided
by using federal agents.
Aviation Security: a Legislative Overview of S. 1447
The House and Senate passed significantly different aviation security bills. The
Senate bill, the Aviation Security Act of 2001, S. 1447 (introduced by Senator
Hollings)4, passed with multiple amendments, by a 100-0 vote on October 11, 2001.
On November 1, 2001, the House passed the Airport Security Federalization Act of
2001 (S. 1447 as amended by the text of H.R. 3150, introduced by Representative
Young). During the House debate the bill was strongly supported by the House
Majority leadership and President Bush. The major issues of whether to make
security screeners federal employees and whether to shift airport security
responsibility to a different agency, along with many other differences had to be
resolved in conference.
This section provides a brief comparative overview of the House and Senate
passed versions of S. 1447. It then discusses the major provisions of The Aviation
and Transportation Security Act (ASTA) (P.L. 107-71) as enacted. All three versions
of the bill would have increased the federal role in assuring aviation security. The
degree of federal involvement provided for in the bills, however, varied significantly.
Table 1, at the end of this report sets forth, in side-by-side format, selected provisions
from the House, Senate, and enacted versions of S. 1447.
The House and Senate-Passed Bills
Airport Security Provisions. As passed by the Senate, S. 1447 would have
federalized the responsibilities for much of airport security. Most of the law
4In the House, H.R. 2951, contains identical language to S. 1447 as introduced. H.R. 3165
is identical to the Senate-passed version of S. 1447.

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enforcement aspects of airport security would have been carried out by the
Department of Justice (DOJ). Front-line screeners of passengers and baggage would
have been federal employees under the authority of the Attorney General. The bill
also would have required the screening of all airline, airport, and concessionaire
personnel before they may enter restricted secure areas at an airport. New
background checks would have been required for existing employees who have not
undergone such checks within the last five years. The Senate bill included
significantly more provisions concerning perimeter and secure area access at airports
than the House bill.
The House bill (S. 1447 as amended by the text of H.R. 3150) provided for the
creation of a new administration, the Transportation Security Administration (TSA),
within the DOT. Under the House bill, a new Under Secretary for Transportation
Security would head the TSA, and would be responsible for transportation security
of all modes of transportation, including aviation. This bill did not specify whether,
airport security screeners must be federal or contractor employees. It merely
prescribed that the screening must be carried out by “persons and procedures
acceptable to the Under Secretary.” Most supporters of the bill, however, voiced
support for contract screener personnel under uniformed federal supervision. The
bill was less directive, than the Senate version, concerning access to secured areas.
It required the Under Secretary to consult with FAA and then to implement methods
to impose standards for the screening of persons or vehicles having access to secure
areas of an airport.
Federal Air Marshal and Cockpit Security Provisions. The Senate-
passed bill, would have kept the FAM program in DOT but directed that the Secretary
administer the program under guidelines prescribed by the Attorney General. The
House bill would have shifted the responsibility for the FAM program from FAA to
the TSA. Both bills called for a major expansion of the FAM program.
Both bills contained cockpit security provisions. The Senate-passed bill limited
access to authorized flight deck personnel, required strengthening of cockpit doors
and locks, and required that cockpit doors be locked during flight and restricts
possession of cockpit door keys to the flight deck crew assigned to the flight. The
House bill also required the strengthening of cockpit doors and restricted the opening
of cockpit doors during flight but, in addition, required cabin video monitors be
installed as well as switches that would allow cabin crew to secretly warn flight crews
when there are security breaches in the cabin.
The House and Senate bills both included provisions that allowed pilots, after
successfully completing a training program, to carry a firearm on an aircraft.
Funding Provisions.
Security Fees. The Senate-passed bill provided that air carriers pay a $2.50
charge for each boarding passenger to offset the costs of providing aviation security
services to air carriers. The revenues were only be used to for the costs of providing
aviation security services.

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The House bill provided for a fee, of up to $2.50 for each one-way trip, on
airline passengers to pay for the costs of screening passengers and property.
Allowable costs were to be limited to salaries and benefits of screening personnel,
supervisors, trainers and for the acquisition, operation, and maintenance of their
equipment. In addition, the Under Secretary could impose a fee on air carriers to pay
the difference between the costs and the revenues collected from the passenger fee.
The passenger fee revenues were to be treated as offsets.
Authorization. The Senate-passed bill authorized such sums as may be
necessary for security funding for FY2002-FY2004. It also authorized such sums as
necessary for FY2002 to compensate airports for FAA mandates imposed after
September 11, 2001. In addition, the bill expanded the eligibility for Airport
Improvement Program funds and use of existing passenger facility charges to include
funding for a broader range airport security costs.
The House-passed bill authorized $500 million for fortifying cockpit doors,
installing video monitors and continuous transponders. The bill authorized $1.5
billion for the direct costs of FAA security related mandates following September 11.
This bill also expanded AIP eligibility for FY2002 for small hub and nonhub airports
to include staffing and training costs and reimbursement of law enforcement
personnel.
Other Provisions. There are a number of other provisions of note. Both bills
included language requiring the development of programs of training for flight crews
for dealing with hijacking attempts. Both bills also included provisions requiring
criminal history and background checks for students seeking flight training on certain
classes of aircraft. The House bill included a provision that significantly limited the
scope of liability for damages arising out of the crashes of September 11. The House
version also included a provision requiring the Under Secretary for Transportation
Security to deputize all airport screening personnel as federal transportation security
agents.
Conference Issues
Although both the House and Senate bills included many similar provisions there
were only two issues of major conflict during conference: the issue of federalization
of airport security screeners and the issue of which agency should oversee aviation
security.
Federalization of Airport Security Screeners. At issue was whether
requiring the hiring of federal agents as passenger and baggage screeners would
reassure the traveling public of the safety of air travel more than providing federal
supervisory personnel to manage contractor employees. This issue was the most
difficult to resolve. The compromise provided that, within one year of enactment, all
screeners would be federal personnel. Up to five airports, participating in a pilot
program, would be exceptions and would operate with security contractor personnel.
Three years after enactment airports could opt-out of the federal screener system and
contract with private companies for screener services.

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What Federal Agency Should Have Security Responsibility. Both
bills provided for a shift in aviation security responsibilities from the FAA but they
differed over which department should take over. The underlying issue was whether
aviation security is primarily an aviation issue that can be best managed by a new
administration within DOT (the House bill) or is primarily a law enforcement issue
that can be best managed by the Attorney General (the Senate bill). The conference
agreement included the House proposal for a new Transportation Security
Administration within DOT but outside of FAA.
The Aviation and Transportation Security Act
(ATSA)
On November 19, 2001, President Bush signed the Aviation and Transportation
Security Act (ATSA) (P.L. 107-71). ATSA shifts much of the responsibility for
aviation security from the airports and airlines to the federal government. The Act
establishes a new Transportation Security Administration (TSA) headed by an Under
Secretary of Transportation for Security. Within three months of enactment, the
responsibilities for aviation security would be transferred from the Federal Aviation
Administration (FAA) to the TSA. The Under Secretary shall assume the rights and
responsibilities of air carriers under their existing security screening contracts and may
also make agreements with air carriers to transfer to the United States Government,
at no cost, the ownership of equipment, property, and supplies associated with such
security screening. The new Administration will be responsible for the security of all
modes of transportation but, clearly, most of its personnel and efforts will be directed
toward security at airports and of aircraft. The following discussion analyzes ATSA’s
provisions for airport security, funding, air marshals, cockpit security, and other
measures.
Airport Security
ATSA provides for federal oversight of airport security and requires that security
screening personnel be federal employees. Although these screeners would be entitled
to most standard federal employee benefits, they can be dismissed at will and are
prohibited from striking. The law provides for a one-year transition to a security
force staffed by federal employees. Two years later, airports choosing to leave the
federalized screening system can elect to return to a system utilizing some private
security contractors. The law also provides that five airports can volunteer for a pilot
program using private contractors.
ATSA includes additional airport security provisions:
! within 60 days, all airports must have in place a system to screen all checked
baggage, using explosive detection systems (EDS), alternatives to EDS, such
as manual search or bomb sniffing dogs, or a bag match system;
! all checked baggage must be screened by EDS by December 31, 2002;
! the Under Secretary can issue security rules immediately without notice and
comment, DOT or OMB review, or cost-benefit analysis (subject to review by
a Transportation Security Oversight Board);

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! the federal government will assume existing screening contracts within 90
days; [contracts may be extended for 180 days and then an additional 90 days
beyond the initial 90 day period];
! within one year, all screening personnel will be federal employees who (among
other requirements) must: be United States citizens; have at least a high school
diploma or equivalent; be able to speak, read, and write English; successfully
undergo a background check including employment, criminal and national
security risk checks; and have the necessary physical ability and dexterity to
perform the duties of the screener position;
! members, former members of the armed forces and armed forces retirees are
to be given a preference in the hiring of security screeners;
! screening companies participating in the security screening pilot program or
contracted by airports taking advantage of ATSA’s opt-out provisions, must
be U.S. controlled companies;
! all individuals, goods, property, vehicles, and other equipment seeking access
to secure areas at an airport, must be screened and inspected before entry;
! at no fewer than 20 airports the Administrator is to establish pilot programs
to test and evaluate new and emerging technology for providing access control
for closed or secure area of airports;
! the Airport Improvement Program and Passenger Facility Charge Program
eligibility for security funding is expanded;
! within 30 days the Under Secretary is to transmit a report on airspace and
other security measures that can be deployed to improve general aviation
security.
Funding and Liability Provisions
ASTA authorizes such sums as may be necessary for aviation security for
FY2002, FY2003, FY2004, and FY2005. To pay the costs of the new and expanded
aviation security programs ASTA authorizes a passenger fee of $2.50 per
enplanement (capped at $5 per one-way ticket). Additional funds may be
appropriated or come from a fee imposed on air carriers. In addition, the Act
authorizes a total of $1.5 billion for FY2002 and FY2003 to reimburse airport
operators and on-airport service providers for the cost of post-September 11 FAA
security mandates. ASTA also authorizes $500 million for air carriers to defray the
costs of security enhancements to aircraft such as fortifying cockpit doors or installing
video surveillance cameras.
The liability limitations of the Air Transportation Safety and System Stabilization
Act (P.L. 107-42) are extended to aircraft manufacturers, airports, New York City,
and World Trade Center owners (airport security firms are excluded from the
limitations).
Federal Air Marshals
ATSA provides for the transfer of a greatly expanded Federal Air Marshals
program to the TSA. Air Marshals may be deployed on every passenger flight but
must be deployed on every flight determined to present high security risks. Carriers

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are required to provide a free seat for an Air Marshal on any flight designated by the
Secretary. A seat on a space-available basis, at no cost, is to be provided for an off-
duty Air Marshal returning home after completing his or her assigned flight. The
Under Secretary for Transportation Security is to provide for the appropriate training,
supervision and equipping of Federal Air Marshals. The Under Secretary is also to
establish procedures to ensure that Federal Air Marshals are made aware of any armed
or unarmed law enforcement personnel on an aircraft. The age requirement is waived
for retired law enforcement, retired military, or furloughed air carrier crew members
who otherwise meets the background and fitness requirements for Federal Air
Marshals.
Cockpit and Cabin Security Measures
ATSA requires the strengthening of the cockpit door and locks on any passenger
aircraft that has a rigid door in a bulkhead between the flight deck (cockpit) and
passenger area. Access to the cockpit is limited to authorized persons. Cockpit doors
are to remain locked during flight except when needed for the entrance and exit of
authorized persons. The Act prohibits possession of the cockpit door key by anyone
not assigned to the flight deck.
The Under Secretary is to develop and implement methods to: use video
monitors or other devices to alert pilots in the cockpit to activity in the cabin; ensure
continuous operation of an aircraft transponder in the event of an emergency; provide
ways that cabin crew can discreetly notify pilots of a security breach occurring in the
cabin, including the installation of switches or other devices.
The FAA is directed to develop a mandatary program of instruction for flight and
cabin crews in dealing with hijack situations.
Guns and Less-Than-Lethal Weaponry for Flight Crews
ATSA authorizes the pilot of a passenger aircraft to carry a firearm into the
cockpit subject to the approval of the Under Secretary for Transportation Security
and the air carrier. The firearm must be approved by the Under Secretary and the
pilot must have had proper training in the use of the firearm.
Within 90 days of enactment, ATSA requires the National Institute of Justice
(NIJ) to assess the range of less-than-lethal weaponry available for use by a cockpit
crew member to temporarily incapacitate an individual who presents a clear and
present danger to the safety of the aircraft, passengers, or people on the ground. If,
after receiving the recommendations of the NIJ study and the approval of the
Attorney General and the Secretary of State, the Secretary of Transportation
determines that it is appropriate and necessary and would effectively help avoid air
piracy, the Secretary may authorize members of the flight deck crew on any aircraft
to carry a less-than-lethal weapon. The Secretary shall prescribe the rules for the
training and proper use of the weapon and also the guidelines setting forth the
situations under which the weapons may be used.

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Passenger Manifests
ATSA requires that within 60 days of enactment, each air carrier operating a
flight in foreign air transportation, shall provide to the Commissioner of Customs, by
electronic transmission, prior to landing, in the manner, time, and form prescribed by
the Customs Service, a passenger and crew manifest. The manifest is to contain for
each passenger or crew the following: 1) full name; 2) date of birth and citizenship;
3) passport number and country of issuance; 4) the United States visa number or
resident alien card number; and 5) such other information as the Under Secretary in
consultation with the Commissioner of Customs, determines is reasonably necessary
to ensure aviation safety. This information may be provided to other federal agencies,
upon request, for the purpose fo protecting national security.
Carry on Baggage and Unusual Cargo Provisions
ATSA includes a provision that set forth that it is the sense of the Congress that
the FAA should maintain its current restriction on carry-on baggage of one bag and
one personal item (a backpack is to be considered a personal item). The Act also
includes sense of the House of Representatives provisions that the Under Secretary
should develop security procedures to allow musicians to transport their musical
instruments in the cabin notwithstanding carry-on baggage restrictions but subject to
reasonable security procedures, terms, and conditions, including imposing additional
charges. The other sense of the House is that air carriers that contract to carry United
States Postal Service mail should transport any animal that the Postal Service allows
to be shipped through the mail.
As an enhanced security measure, the Under Secretary for Transportation
Security may, in consultation with the Food and Drug Administration, may develop
alternative security procedures under which a medical product (including human
tissues such as stem cells) would not be subject to an inspection (such as opening and
handling or x-ray) that would irreversibly damage the product.
Table 1, sets forth selected provisions of the House, Senate, and enacted
versions of S. 1447.

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Table 1: Side-by-Side Comparison of Selected Provisions From Aviation Security Legislation in the 107th Congress
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Federalization
In carrying out the program, the Department of
A new administration, the Transportation Security
Creates the TSA as in the House bill. Keeps the
Justice (DOJ) would take over passenger and
Administration (TSA) will be created and headed by responsibility for aviation security in DOT but out of
(Many provisions could be
property screening. The supervision of screening
a new Under Secretary for Transportation Security. FAA..
seen as “federalizing”
and the actual screening of passengers and property
The Under Secretary will be responsible for aviation (Sec. 101)
provisions, see also Airport
will be done by federal DOJ employees. (Sec. 108)
security (which would be transferred from FAA) and
Perimeter Access Provisions, The Federal Air Marshal program (FAM) would be
also the security of other modes of transportation.
However, in requiring that airport security screeners
Federal Air Marshals, and
administered by the Secretary of DOT but under
(Sec. 2) Airport Security Screening would be
be federal employees ATSA draws from the Senate
Security Screening entries)
guidelines prescribed by the Attorney General. It
supervised by uniformed federal agents, but the
bill.
would be expanded substantially and would continue Under Secretary would have the option of
(Sec. 110)
to be staffed by federal agents. (Sec. 105)
contracting for the actual screeners. (Sec. 3) The
FAM program would also be under the authority of
the Under Secretary. (Sec. 104)
Airport Perimeter Access
DOT, in consultation with the airport operator and
__
Similar to Senate version.
Security: deployment of armed law enforcement authorities, may order the
(Sec. 106)
personnel
deployment of such personnel as necessary to
counter the risk of criminal violence, the risk of
aircraft piracy at the airport, the risk to air carrier
operations at the airport, or to meet national security
needs. (Sec. 106)
Airport security plan for small FAA shall develop a plan to provide technical
__
Similar to Senate version.
and medium size airports
support to small and medium airports to enhance
(Sec. 106)
security operations including screening operations,
and to provide financial assistance to those airports
to defray the costs of enhancing security. (Sec. 106)
Airport security for small and
Directs FAA in consultation with local and state law Similar to S. 1447, except that the eligibility for the If an airport, after consultation with the appropriate
medium airports: threat
enforcement authorities to re-examine the safety
restriction waiver is not limited to small community state and local law enforcement authorities,
assessment and removal of
requirements for small community airports to reflect airports.
determines that sufficient safeguards are in place to
certain restrictions
a reasonable threat to those individual small
(Sec. 121)
sufficiently protect public safety, and so certifies in
community airports including the parking of
writing to the Under Secretary then the restrictions
passenger vehicles within 300 feet of the airport
shall not apply after 15days for nonhub airports, 30
terminal building. (Sec. 106)
days for small hub airport, 60 days for medium hub
airport, and 120 days for a large hub airport; unless,
the Under Secretary notifies the airport that the
safeguards in place are not adequate and the
restriction must be continued. (Sec. 106)

---

CRS-11
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Airport/transportation security Within 60 days of enactment, the Attorney General
__
__
performance study
and the Secretary of Transportation shall transmit a
report to the Congress containing their joint
recommendations on additional measures for the
federal government to address transportation
security functions.
(Sec. 112)
Airport Perimeter Access
DOT shall require all air carriers and airports to
__
Similar to Senate version.
Security: Awareness Programs develop security awareness programs for airport
(Sec. 106)
employees, ground crews, and others employed at
such airports. (Sec. 106)
Airport Perimeter Access
FAA shall establish pilot programs in no fewer than __
Similar to Senate version.
Security: pilot program to
20 airports to test and evaluate new and emerging
(Sec. 106)
evaluate emerging
technology for providing access control and other
technologies
security protections for closed or secured area of the
airports. Such technology may include biometric or
other technology. (Sec. 106)
Airport security personnel:
The Attorney General shall require any potential
The Under Secretary shall require more thorough
The Under Secretary shall require that individuals to
background checks
airport security screener to undergo a background
background checks of airport security screeners and
be hired as security screeners must undergo and
check (including a criminal history record check and persons that have access to aircraft or to secured
employment and criminal background check. In
a national security risk assessment). Also requires
areas of an airport including a review of immigration addition, the Under Secretary is to establish
background checks for currently employed security
records, law enforcement databases, and records of
procedures to ensure that no individual who presents
screeners. (Sec. 109)
other government and international agencies to
a threat to national security is employed as a security
determine whether the person may be a threat to
screener. (Sec. 111)
FAA shall require employment investigations and
civil aviation. (Sec. 106)
criminal background checks of existing employees
Current employees: requires background checks
that are security screeners or have access to aircraft
Airport operators, air carriers, or certified screening (including criminal history and review of available
or secured areas at an airport regularly serving a
companies may implement these requirements in
law enforcement data bases and records of other
certificated air carrier, within 9 months unless such
advance of the effective date if their security
governmental and international agencies) for any
individuals have has such investigations and checks programs conform to section 44936 as amended by
individual who currently has unescorted access to an
within 5 years of enactment. (Sec. 201)
H.R. 3150. (Sec. 107)
aircraft or secure area of an airport or screens
passengers or property. (Sec. 138)
*Current employees: requires background checks
(including criminal history and review of available
law enforcement data bases and records of other
governmental and international agencies) for any
individual who currently has unescorted access to an
aircraft or secure area of an airport or screens
passengers or property unless the individual
underwent such a check before the individual began
his/her current employment.* (Sec. 107)

---

CRS-12
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Airport Perimeter Access
DOT shall require airports to maximize the use of
__
Similar to Senate version.
Security: chemical and
technology and equipment that is designed to detect
(Sec. 120)
biological weapon detection.
potential chemical or biological weapons.
(Sec. 106)
Airport Perimeter Access
DOT, in deploying security personnel, shall consider __
Similar to Senate version.
Security: security of aircraft
the physical needs of air traffic control facilities,
(Sec. 106)
and ground access
parked aircraft, aircraft servicing equipment, aircraft
supplies (including fuel), automobile parking
facilities within airport perimeters or adjacent to
secured facilities, and access and transition areas at
airports served by other means of ground or water
transportation. (Sec. 106)
Airport Perimeter Access
DOT, after coordination with the ASCC, shall
The Under Secretary, after consultation with FAA,
The Under Secretary, as soon as practicable after
Security: Screening of Airport
consider whether airport and air carrier personnel
shall develop and implement methods to impose
enactment, shall require the screening or inspection
and Air Carrier Personnel
with access to secure areas should be screened to
standards for the screening or inspection of persons
of all individuals, goods, property, vehicles and
prevent individuals who present a risk to aviation
and vehicles having access to secure areas of an
other equipment before entry into a secured area of
security or national security from gaining access to
airport. (Sec. 106)
an airport. Is to establish procedures to ensure the
such areas.
safety and integrity of: all persons providing
(Sec. 106)
services; of all supplies; and all persons providing
such supplies. Requires vendors to develop security
programs. (Sec. 106)
Airport Perimeter Access
On an ongoing basis, FAA is to assess and test for
The Under Secretary after consultation with FAA
Similar to Senate version.
Security: Improvement of
compliance with access control requirements, report shall provide for the use of electronic technology
(Sec. 106)
Secured-Access Control
annually findings of the assessments, and assess the that positively verifies the identity of each employee
effectiveness of penalties in ensuring compliance
and law enforcement officer who enters a secure
with security procedures and take any other
area of an airport. (Sec. 106)
appropriate enforcement actions when
noncompliance is found. FAA shall also work with
airport operators to strengthen access control points
in secured areas (including air traffic control
operations, maintenance areas, crew lounges,
baggage handling areas, and catering delivery areas)
to ensure the security of passengers and aircraft and
consider the deployment of biometric or similar
technologies that identify individuals based on
unique personal characteristics.(Sec.106)

---

CRS-13
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Airport Perimeter Access
DOT may enter into a memorandum of
__
Similar to Senate version.
Security: deployment of federal understanding with the Attorney General or other
(Sec. 106)
law enforcement personnel
federal law enforcement agency to deploy federal
law enforcement personnel at an airport in order to
meet aviation safety and security concerns. (Sec.
106)
Anti-hijacking training
DOT shall develop and implement a mandatory
In consultation with FAA the Under Secretary shall
Not later than 60 days of enactment, the
program of training for flight and cabin crews in
develop and implement methods to update training
Administrator of FAA, in consultation with the
dealing with attempts to commit aircraft piracy.
procedures used by the FAA, law enforcement
Under Secretary for Transportation Security and
DOT shall develop the training in consultation with agencies, air carriers, and flight crews during
appropriate experts, shall develop detailed
federal law enforcement agencies with expertise in
hijackings to include measures relating to suicidal
guidanced for flight and cabin crewmembers for
terrorism, self-defense, hijacker psychology and
hijackers and other extremely dangerous events not
potential threat conditions. Within 60 days later, air
current threat conditions. FAA shall review
currently described in the training procedures.
carriers must develop their training program based
procedures by which cabin crews can notify flight
(Sec. 106)
on the guidance developed by the FAA. FAA shall
deck crew of security breaches. (Sec.107)
review the plans within 30 days. Within 180 days
after approval the air carriers are to have trained all
flight and cabin crew members. (Sec. 107)
Attorney General of the United The Attorney General: 1) is responsible for the day- The Under Secretary’s duties include to: 1) manage
The Under Secretary of Transportation for Security
States: responsibilities
to-day federal security screening operations for
and provide, on a day-to-day basis, operational
shall head the Transportation Security
passenger air transportation [including employment
guidance to the field security resources of the TSA,
Administration (TSA). The Under Secretary’s
Under Secretary of
standards and training]; 2) shall work in conjunction including security managers; 2) supervise all airport duties are a blend of the House and Senate versions.
Transportation Security:
with the FAA Administrator with respect to any
security and screening services using federal
(Sec. 101)
responsibilities
actions or activities that may affect aviation safety or uniformed personnel; 3) to assess and distribute
air carrier operations; 3) is responsible for hiring
intelligence related to transportation security; 4)
and training personnel to provide security screening assess threats to transportation; 5) develop policies,
at all United States airports involved in passenger
strategies for dealing with transportation security
air transportation in consultation with DOT, DOD,
threats; 6) make plans related to transportation
and other appropriate federal agencies; 4) shall
security, including countermeasures with other parts
actively cooperate and coordinate with the Secretary of the federal government; 7) serve as the primary
of DOT, the Secretary of DOD, and heads of other
liaison for transportation security to the intelligence
appropriate federal agencies with responsibilities for and law enforcement communities; 8) enforce
national security and criminal justice enforcement
regulations; 9) identify and undertake R&D
activities, related to aviation security, through the
activities necessary to enhance transportation
ASCC.
security; 10) inspect, maintain, and test security
(Sec. 102)
facilities, equipment and systems; 11) oversee
implementation of security measures; 12) ensure
security of cargo transportation; 13) perform
background checks of screening and other critical
personnel; 14) develop standards for hiring and
retention of security screening personnel; 15) train
and test security screening personnel. (Sec. 101)

---

CRS-14
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Aviation Security Coordination Establishes the Aviation Security Coordination
Establishes the Transportation Security Oversight
Similar to the House version.
Council (ASCC) and the
Council (ASCC), chaired by the Secretary of DOT or Board (TSOB), chaired by the Secretary of DOT.
(Sec. 102)
the Secretary’s designee.(Sec. 103)
(Sec. 112)
Transportation Security
Oversight Board (TSOB):
Establishment
Aviation Security Coordination The ASCC membership shall be: the Secretary of
The TSOB membership shall be: the Secretary of
Similar to the House version, except that the
Council/ Transportation
DOT or the Secretary’s designee, the Attorney
DOT or the Secretary’s designee, the Attorney
Director of the CIA or the Director’s designee is
General or the Attorney General’s designee, the
General or the Attorney General’s designee, the
included and the National Security Council and the
Security Oversight Board:
Secretary of Defense or the Secretary’s designee, the Secretary of Defense or the Secretary’s designee, the Office of Homeland Security both get a membership.
Secretary of the Treasury or the Secretary’s
Secretary of the Treasury or the Secretary’s
(Sec. 102)
membership
designee, the Director of the Central Intelligence
designee, one member appointed by the President to
Agency or the Director’s designee, and any other
represent the National Security Council or the Office
federal agency determined by the Secretary of DOT
of Homeland Security. (Sec. 112)
in consultation with the Attorney General.
(Sec. 103)
Aviation Security Coordination The Council shall work with the intelligence
The Board shall: review and ratify or disapprove any The Board shall: review and ratify or disapprove any
Council/ Transportation
community to coordinate intelligence, security, and
regulation or security directive issued by the Under
regulation or security directive issued by the Under
Security Oversight Board:
criminal enforcement activities affecting the safety
Secretary of Transportation for Security within 30
Secretary of Transportation for Security within 30
function and duties
and security of aviation at all U.S. airports and air
days after issuance; share intelligence information
days after issuance; facilitate the coordination of
navigation facilities involved in interstate or
with the Under Secretary; review plans for
intelligence, security, and law enforcement activities
intrastate air transportation. The Secretary of DOT, transportation security; review performance
affecting transportation; facilitate the sharing of such
working through the Council shall enter into
standards for airport security screeners; review
information among federal agencies and with
memoranda of understanding with other federal
screener compensation; review security equipment
carriers and other transportation providers as
agencies to share or otherwise cross-check data on
procurement; review selection performance and
appropriate; explore the technical feasibility of
such individuals identified on federal agencies
compensation of senior executives in the TSA;
developing a common database of individuals who
databases and may utilize other available data bases review budget requests of the Under Secretary; and
may pose a threat to transportation or national
and evaluate and assess technologies in development make recommendations regarding the above.
security; review plans for transportation security;
or use at federal departments, agencies, etc, that
make recommendations to the Under Secretary
might be useful in improving the safety and security The Under Secretary shall establish a Transportation regarding matters reviewed. (Sec. 102)
of aviation in the U.S. (Sec. 103)
Security Advisory Council (TSAC) to provide advice
and counsel to the Under Secretary on issues
concerning the administration of the TSA. (Sec. 112)
Background checks for aliens
Prohibits the sale, lease, or charter of any aircraft to __
__
engaged purchase or leasing of an alien without the certification of the completion
aircraft
of a background investigation of the alien by the
Attorney General. (Sec. 131)

---

CRS-15
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Baggage and freight: property
__
*Property security program: 1) final deadline for
Requires that a system must be in operation to
security program
screening–no later than December 31, 2003, a
screen all checked baggage at all airports within 60
system must be in operation to screen all checked
days of enactment. All commercial service airports
baggage at all airports in the United States; 2) the
in the United States are to have sufficient explosive
Under Secretary shall ensure that explosive
detection equipment to screen all checked baggage
detection equipment installed at airports to screen
no later than December 31, 2002. The Under
checked baggage is used to the maximum extent
Secretary is to assure that all deployed systems are
possible; 3) the Under Secretary shall install
fully utilized. If the equipment is not available all
additional explosive detection equipment at airports checked baggage must be screened by an alternative
as soon as possible to ensure that all checked
means.
baggage is screened before being placed in an
aircraft; 4) interim bag match programs–until
Where EDS is not available baggage must be
enough detection equipment is installed to screen all screened by one or more of the following: bag match
baggage the Under Secretary shall require air
program; manual search; dog sniffing; other means
carriers to implement bag-match programs to ensure approved by the Under Secretary.
that no baggage is stowed unless the passenger
(Sec. 110)
checking the baggage is on the aircraft.* (Sec. 106)
Cabin and secure area access:
__
*The Under Secretary shall establish a uniform
Similar to House version.
identification system for armed
system of identification for all state and local law
(Sec. 109)
state and local law
enforcement personnel for use in obtaining
enforcement personnel
permission to carry weapons in aircraft cabins and in
obtaining access to a secured area of an airport.*
(Sec. 106)
Carry-on baggage: medical
__
*The Under Secretary shall, in consultation with the Similar to House version.
products
Commissioner of Food and Drugs, develop security
(Sec 109)
procedures under which a medical product to be
transported on a flight of an air carrier would not be
subject to manual or x-ray inspection if conducting
such an inspection would irreversibly damage the
product.* (Sec. 106)
Carry-on baggage
__
The Under Secretary shall develop and implement a Similar to House version.
property security program to ensure the security of
(Sec. 110)
all property carried on passenger aircraft by;
mandating that such property is screened; or
ensuring that no checked baggage is carried on the
aircraft unless the passenger who checks the
baggage is aboard the aircraft; or other methods.
The Under Secretary shall ensure that baggage
screening equipment is used to the maximum extent.
(Sec. 106)

---

CRS-16
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Chemical and Biological
DOT shall require airports to maximize the use of
__
Similar to Senate version.
Weapon Detection
technology and equipment that is designed to detect
(Sec. 120)
potential chemical or biological weapons.
(Sec. 106)
Cockpit (flight deck) security:
FAA is authorized to permit, a pilot, co-pilot, or
DOT shall not take any action to prevent a pilot of
A pilot of a passenger aircraft can be authorized to
arming flight deck crew with
flight engineer, who has successfully passed a
an air carrier from taking a firearm into the cockpit, carry a firearm into the cockpit, if the Under
firearms
voluntary training program and is not otherwise
if it is the policy of the air carrier to permit pilots to Secretary approves, the air carrier approves, the
prohibited by law from possessing a firearm, to
be armed and the pilot has successfully completed a firearm is approved by the Under Secretary, and the
possess or carry a firearm approved by the FAA for
training program for the carriage of firearms aboard pilot has received proper training for the use of the
the protection of the aircraft. (Sec. 125)
aircraft that is acceptable to the Under Secretary.
firearm.
(Sec. 106)
(Sec. 129)
Cockpit (flight deck) security:
Calls for a National Institute of Justice Study to
The Under Secretary in consultation with FAA shall Calls for a National Institute of Justice Study to
arming flight deck crew with
assess the range of less-than-lethal weapons for use
develop procedures and authorize equipment for
assess the range of less-than-lethal weapons for use
less-than-lethal weaponry
by flight crews. (Sec. 122)
pilots and other member of the flight crew to use to
by flight crews. If, after reviewing the
defend an aircraft against acts of criminal violence
recommendations of the study and with the approval
or aircraft piracy. (Sec. 106)
of the Attorney General and the Secretary of State,
the Secretary determines it is appropriate and
necessary and would serve the public interest in
avoiding air piracy, the Secretary may authorize
members of the flight deck crew to carry a less-than-
lethal weapon.
(Sec. 126)
Cockpit (flight deck) security
1) Limits cockpit access to authorized personnel; 2)
The Under Secretary shall develop and implement
Combines the Senate and House provisions.
measures
requires strengthening of cockpit door and locks to
methods to restrict the opening of a cockpit door
(Sec. 104)
prevent their being opened from the cabin side; 3)
during flight and to fortify cockpit doors to deny
cockpit doors must be kept locked during flight
access from the cabin to the cockpit; to use video
except for passage of the flight crew in and out; 4)
monitors or other devices to alert pilots in the
prohibits possession of cockpit door key by any crew cockpit to activity in the cabin; to ensure continuous
member who is not assigned to the flight deck; 5)
operation of an aircraft transponder in the event of
take such other action, including modification of
an emergency; and to provide for the installation of
safety and security procedures, to ensure the safety
switches in an aircraft cabin to enable flight
and security of the aircraft. (Sec. 104)
attendants to discreetly notify pilots of a security
breach in the cabin. (Sec. 106)
Department of Justice for
Within 120 days of enactment, the Attorney General __
__
Aviation Security: report on
will report to the appropriate congressional
new responsibilities
committees on the new responsibilities fo the
Department of Justice for aviation security under the
Act.

---

CRS-17
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Deputy Secretary of
The Deputy Secretary shall, during a national
__
Similar to the Senate version.
Transportation for Aviation
emergency: 1)coordinate domestic transportation,
(Sec. 101)
Security: National Emergency
including aviation, rail, and other surface
Responsibilities
transportation, and maritime transportation
(including port security); 2) coordinate the
transportation-related responsibilities of other
departments and agencies of the federal government
(excepting DOD); 3) establish uniform national
standards and practices for transportation during a
national emergency; 4) coordinate and provide
notice [to all levels of government] about threats to
transportation; 5) carry out other duties as
prescribed by the Secretary of DOT.
The authority of the Deputy Secretary shall not
supercede the authority of any other department or
agency of the federal government. The Deputy will
report to Congress on an annual basis. (Sec. 102)
Deputy Secretary of
Provides that until the President appoints the Deputy Transfer of FAA authority to the Under Secretary to Same as House version.
Transportation for Aviation
Administrator, his/her functions will be carried out
take place within three months. (Sec. 101)
(Sec. 101)
Security of Under Secretary for by the Assistant Administrator for Aviation Security.
Transportation Security:
(Sec. 102)
transition
Deputy Secretary of
Creates a new position within the DOT: Deputy
Creates the Transportation Security Administration
Same as House version.
Transportation for
Secretary for Transportation Security. Appointed by (TSA) to be headed by the Under Secretary of
(Sec. 101)
Transportation Security or
the President. The Deputy Secretary shall carry out Transportation for Security. The Under Secretary is
Under Secretary of
duties and powers prescribed by the Secretary
to be appointed by the President and is to be
Transportation for Security
relating to security of all modes of transportation.
responsible for security in all modes of
(Sec. 102)
transportation.
(Sec. 101)

---

CRS-18
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Deputy Secretary for
The Deputy Administrator shall: coordinate and
The Under Secretary shall be responsible for
Similar to House version.
Transportation Security or
direct, as appropriate, the functions and
security in carrying out 49 U.S.C. chapter 449
(Sec. 101)
responsibilities of the Secretary of Transportation
relating to aviation security and security
Under Secretary of
and the Administrator of FAA under 49 U.S.C.
responsibilities currently exercised by the modal
Transportation for Security:
chapter 449 [Security]; work in conjunction with the Administrations of the DOT. Duties under chapter
Administrator of the FAA with respect to any actions 449 are to be assumed not later than 3 months after
administrative authority
or activities that may affect aviation safety or air
enactment. Upon request by the Under Secretary, an
carrier operations; and coordinate with the Attorney air carrier may enter into agreement with the Under
General and the Secretary of Defense and other
Secretary to transfer any contract the carrier has
federal agencies whose responsibilities for national
entered into with respect to carrying out any
security and criminal justice enforcement activities
screening or security function. In addition, the
are related to aviation security, through the Aviation Under Secretary has the administrative authority
Security Coordination Council. (Sec. 102)
over facilities, personnel, funds transfers, and
acquisition at the same level as head of other DOT
Administrations. (Sec. 101)
Duties: to Review Security
The Deputy is to review and develop ways to
The Under Secretary shall conduct research and
The TSA assumes the security research and
Technology
strengthen and enhance the ability to detect
development activities appropriate to develop,
development activities currently carried out by the
nonexplosive weapons, such as biological, chemical, modify, test and evaluate means of protecting
FAA.
or similar substances; and to evaluate such
passengers and property against act of criminal
(Sec. 101)
additional measures to enhance physical inspection
violence and aircraft piracy.
of passengers, luggage, and cargo.
(Sec. 101)
(Sec. 102)
Encouraging airline employees Exempts airline employees from civil liability for
__
Similar to Senate version.
to report suspicious activities
any truthful disclosure of suspicious activities to law
(Sec. 125)
enforcement officials.
(Sec. 121)
Enhanced security for aircraft
Requires FAA, within 90 days of enactment, to
__
__
implement programs to provide security screening
for all aircraft larger than 12,500 pounds not yet
operating under security procedures prescribed by
the FAA. Within one year FAA shall implement a
similar program for all aircraft under 12,500 pounds.
(Sec. 131)

---

CRS-19
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Federal Air Marshals:
DOT may appoint retired law enforcement officers
*The Under Secretary is to provide, in choosing
Similar to Senate version.
appointment of retired law
or retired military as a federal air marshal,
among applicants for a position as a federal air
(Sec. 105)
enforcement officers and
regardless of age, or discharged or furloughed from a marshal, a preference for the hiring of a pilot of an
furloughed airline flight crew
commercial airline cockpit crew position, if the
air carrier whose employment with the air carrier
personnel
individuals otherwise meets the background and
was terminated as a result of a reduction in the
fitness qualifications required of federal air
workforce of the air carrier if the pilot is otherwise
marshals.
qualified for the position.* (Sec. 105)
(Sec. 105)
Federal Air Marshals: Interim
DOT may, after consultation with the heads of other *Provides that the U.S. may use, in consultation and Similar to House measure.
Measures
federal agencies and departments, use personnel
concurrence of the heads of federal agencies and
(Sec. 105)
from those agencies and departments, to provide air departments, personnel from those agencies and
marshal service on domestic or international flights. departments, on a non-reimbursable basis, to
(Sec. 105)
provide air marshal service.*
(Sec. 105)
Federal Air Marshals: training, Within 30 days of enactment DOT will: 1) provide
The Under Secretary shall; 1) provide for
The Under Secretary shall: 1)provide for appropriate
supervision, and flight
for deployment of federal air marshals on air
appropriate background and fitness checks for
training, supervision and equipping of federal air
assignments.
transportation flights; 2) provide background and
candidates for appointment as federal air marshals;
marshals; 2) require air carriers to provide seating
fitness checks for air marshal candidates; 3) provide 2) provide for appropriate training, supervision, and for an air marshal at no cost, regardless of seat
for appropriate air marshal training, supervision, and equipment of federal air marshals at the FAA’s
availability; 3) require that, on a space-available
equipping; 4) require air carriers to provide seating
facility in New Jersey; and 3) require air carriers to
basis, a seat be provided to off-duty federal air
for air marshals without regard to seat availability.
provide seating for a federal air marshal at no cost
marshals returning home.
(Sec. 105)
and regardless of availability. 4) *requires that, on a (Sec. 105)
space available basis, a seat be provided to off-duty
federal air marshals returning home.* (Sec. 105)
Federal Air Marshals:
DOT may place federal air marshals on every
The Under Secretary shall provide for deployment of Similar to Senate version.
deployment priority
scheduled commercial passenger flight and shall
federal air marshals on selected passenger flights of (Sec. 105)
place them on every such flight determined by DOT air carriers. (Sec. 105)
to present high security risk. In making this
determination, nonstop long-haul flights, such as
those targeted on September 11, 2001, should be a
priority. (Sec. 105)

---

CRS-20
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Federal Air Marshals: Attorney The Attorney General shall prescribe guidelines for
The Under Secretary of Transportation for Security, Similar to House version.
General responsibilities
the training and deployment of individuals
under the authority provided the Secretary of
(Sec. 105)
authorized, with the approval of the Attorney
Transportation is to administer the deployment of
General, to carry firearms and make arrests under 49 federal air marshals. (Sec. 105)
U.S.C. 44903 (d).
The Secretary of DOT shall administer the air
marshal program under that section in accordance
with the guidelines prescribed by the Attorney
General. (Sec. 105)
Federal Air Marshals:
__
The Under Secretary shall enter into agreements
Similar to House version.
assistance from armed law
with federal, state, and local agencies under which
(Sec. 105)
enforcement personnel
appropriately-trained law enforcement personnel
from such agencies, when traveling on a flight, will
carry a firearm and be prepared to assist federal air
marshals. (Sec. 106)
Flight school student
Requires INS status, criminal history, and national
The Under Secretary shall provide for background
Requires INS status, criminal history, and national
background checks
security risk background checks by the Attorney
checks of individuals seeking instruction (including
security risk background checks by the Attorney
General for any aliens or others specified by DOT,
training through the use of flight simulators) in
General for any aliens or others specified by DOT,
before they can receive training in the operation of
flying aircraft that has a minimum certificated
before they can receive training (including training
any jet aircraft. Flight schools must submit records
takeoff weight of more than 12,500 pounds. (Sec.
in a simulator) in the operation of any aircraft
of aliens receiving training for jet aircraft. DOT to
106)
having a maximum certificated take-off weight of
work with ICAO to improve international aviation
12,500 pounds or more. DOT is to work with ICAO
security through screening programs for candidate
to improve international aviation security through
flight students.
screening programs for candidate flight students.
(Sec. 111)
(Sec. 113)
Flights to the U.S.: passenger
__
Within 60 days the Under Secretary shall require all Identical to House version.
manifests
international flights into the U.S. to transmit
(Sec. 117)
electronically a passenger and crew manifest
including: full name; date of birth and citizenship;
gender; passport number and country of issuance;
U.S. visa number or resident alien card number;
passenger name record; and other information
determined by the Under Secretary. (Sec. 111)

---

CRS-21
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Funding: Flexibility for
Expands the Airport Improvement Program (AIP)
Expands AIP eligibility to include: the staffing and
Blend of House and Senate versions.
aviation security (AIP and
eligibility to permit AIP formula or discretionary
training costs or reimbursement for law enforcement (Sec. 119)
PFCs)
funds for FY2002 be used to defray expenses
personnel at non-hub or small hub airports; in
imposed after Sept. 11th by law or regulation. For
FY2002, any non-primary airport’s activities, if that
FY2002 non-capital expenses, such as hiring,
airport is located within the confines of enhanced
training , providing appropriate personnel are also
class B airspace, as defined by Notice to Airmen
made eligible. The federal share for aviation
FDC 1/0618 issued by the FAA; in FY2002,
security related costs is 100%. Passenger facility
payments for debt service on indebtedness incurred
charge (PFC) requests for security purposes shall
*by a sponsor or at a privately owned or operated
receive expedited processing and approval. (Sec.
airport passenger terminal financed by indebtedness
119)
incurred by the sponsor*, to carry out a project if the
Secretary determines that such payments are
necessary to prevent default. The federal share for
these specific costs (but not all capital costs) is
100%. (Sec. 113)
Funding: Authorization
Authorizes such sums as may be necessary for
Authorizes such sums as may be necessary for the
Authorizes such sums as may be necessary for fiscal
aviation security funding for fiscal years 2002, 2003, operations of the TSA. Authorizes $500 million to
years 2002,2003,2004,2005 for security activities.
and 2004.
fortify cockpit doors, install video monitors, and
Also authorizes $500 million for FY2002 to fortify
(Sec. 118)
continuous transponders. Authorizes, for FY2002
cockpit doors, provide for cabin video monitoring, to
*and FY2003*, $1.5 billion to reimburse airport
ensure continuous transponder use, and other
Employment authorization: the Attorney General is
operators for direct costs incurred to comply with
technologies. (Sec. 118)
authorized to employ, appoint, and fix the
new additional or revised security requirements
compensation of such a number of individuals as
imposed on airport operators by the FAA on or after In addition, ATSA authorizes for FY2002 and
may be necessary to carry out 49 U.S.C. 44901,
Sept. 11, 2001. *Requires airport operators to
FY2003, $1.5 billion to reimburse airport operators
Screening of Passengers and Property, and 49 U.S.C. provide DOT with assurances that they will meet
and vendors of on-airfield services for the direct
44903 [Air Transportation Security], for such a
with airport tenants to discuss rent adjustments to
costs incurred to comply with new, additional or
number of individuals as the Attorney General
account for losses in revenue incurred by the tenants revised security requirements imposed on such
determines to be necessary to carry out the
on and after September 11. Operators must provide operators by the FAA. (Sec. 121)
passenger security screening functions under 49
DOT with an itemized list of costs incurred by the
U.S.C. 44901. (Sec. 109)
operator to comply with the security requirements
and include costs relating to landing fees,
automobile parking revenues, rental cars, restaurants
and gift shops.* (Sec. 109)

---

CRS-22
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Funding: Security fee
DOT is to collect a user fee from commercial air
Within 60 days of enactment, the Under Secretary is The Under Secretary shall impose a fee on
carriers to offset the Department’s costs of
to impose a fee on airline passengers on flights
passengers on flights originating in the U.S. The fee
providing aviation security services to air carriers.
originating at airports in the U.S. to pay for the costs is not to exceed $2.50 per enplanement or $5 for
Commercial air carriers are to pay $2.50 for each
of screening passengers and property. The revenues each one-way trip. The revenues are to be treated as
passenger enplanement. The amounts collected may are to be treated as offsetting collections. The costs off-setting receipts. The fee is to pay for the costs of
be used solely for the costs associated with
are limited to salaries and benefits of screening
Salary, benefits, retirement, etc. for screening
providing aviation security services and may be used personnel, supervisors, trainers and for the
personnel, their supervisiors and managers and
only to the extent provided in advance in an
acquisition, operation and maintenance of their
federal law enforcement personnel at airports; for
appropriation law. Effective 180 days after
equipment. The fee may not exceed $2.50 on a 1-
training costs; for background check costs; for the
enactment. (Sec.118)
way trip. In addition to the fee, the Under Secretary Federal Air Marshals program; and for security
may impose a fee on air carriers to pay for any
research. If the passenger fee is insufficient a fee
difference between the costs and the amount
may be imposed on air carriers but they are not to
collected under the passenger fee. Air carriers are
pay more than their costs for security screening in
not to pay more than they payed for screening
calendar year 2000.
activities in 2000. (Sec. 108)
(Sec. 116)
Funding: amending the Air
--
*The President may set aside a portion of the
Similar to House version.
Transportation Stabilization
amount payable to air carriers under section
(Sec. 125)
Act (P.L. 107-42) to
101(a)(2) of the Transportation Safety and System
compensate air ambulance
Stabilization Act (P.L. 107-42), to provide
services
compensation to air carriers providing air ambulance
services. The $4.5 billion provided in the Act will
be reduced by the amount set aside.* (Sec. 114)
General Aviation and Air
DOT shall submit to the Congress within three
__
Similar to Senate version.
Charter Security Report
month after the date of enactment a report on how to
improve security with respect to general aviation and
air charter operations in the U.S. (Sec. 15)

---

CRS-23
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Liability limitation for
__
*Amends the Air Transportation Safety and System
Similar to House version, however, ATSA does not
damages arising out of the
Stabilization Act (P.L. 107-42) to prohibit any
protect airport security contractors from liability.
crashes of September 11
federal court or agency or state court or agency from (Sec. 201)
enforcing a federal or state law holding any person,
or any state or political subdivision thereof, liable
for any damages arising out of the hijacking and
subsequent crashes of Sept. 11, 2001. If any party to
action is determined to be liable–total damages
ordered by the court may not exceed the amount of
insurance minus any payments made pursuant to a
court approved settlement, which such party is
determined to have obtained prior to September 11,
and which is determined to cover liability for any
damages arising out of the hijacking and subsequent
crashes of Sept. 11. The party shall not be liable for
interest prior to judgement or for punitive damages.
The court shall reduce damages awarded to a
plaintiff by the amount of collateral source
compensation that the plaintiff has received or is
entitled to receive. Attorney fees are subject to the
discretion of the court but are not to exceed 20%.
Exempts from these provisions the hijackers or
conspirators.* (Sec. 201)
Limitation on liability for acts __
An individual shall not be liable in any action in a
Similar to House version.
to thwart criminal violence or
federal or state court arising out of the acts of the
(Sec. 144)
aircraft piracy
individual in attempting to thwart an act of criminal
violence or piracy on an aircraft if that individual in
good faith believed that such an act was occurring or
was about to occur. (Sec. 110)
Mail and freight waivers
During a national emergency, the Secretary of DOT
The Under Secretary may grant a waiver similar to
Similar to Senate version.
in consultation with the ASCC may grant a full or
S. 1447, except that the waiver is limited to flights
(Sec. 127)
partial waiver of restrictions on the carriage by
to or from a community that is not accessible by
aircraft of freight, mail, emergency medical supplies, road, or is more than 200 miles from a hub airport
personnel, or patients on aircraft. (Sec. 123)
and there does not have to be a national emergency.
The waiver is subject to review and limitation by the
TSOB. (Sec. 120)

---

CRS-24
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
National air space restrictions
Within 30 days of enactment the President shall
Rescinds any Notice to Airmen FDC 1/0618 issued
Upon the request of an operator of an aircraft
submit to certain congressional committees a report
by the FAA, or any other regulation, order, or
affected by the restrictions imposed under notice to
describing any remaining restrictions that are a
directive that restricts U.S. registered aircraft in
Airmen FDC 1/0618 or any other notice issued after
result of the Sept. 11th attacks and a justification for enhanced class B airspace, on the 10th day following 9/11 that restricted registered aircraft from operating
such restriction remaining place.
enactment.
in class B air space, such restrictions shall cease to
(Sec. 129)
(Sec. 119)
be in effect 30 days after the request unless DOT
publishes a notice in the Federal Register before the
30th day reimposing the restriction and explaining
why. (Sec. 146)
Penalties for Interference With An individual within the airport jurisdiction of the
__
Senate provision.
Security Personnel
U.S. who, by assaulting or intimidating a federal,
(Sec. 114)
airport, or air carrier employee who has security
duties within the airport interferes with the
performance of the duties of the employee, shall be
fined under title 18, imprisoned for not more than 10
years, or both. If a dangerous weapon is used, the
individual may be imprisoned for any term of years
or for life. (Sec. 16)
Screening passengers and
Amends the Wendell H. Ford Aviation Investment
*The Under Secretary shall deputize, for
__
property:
and Reform Act to permit the deputizing of state and enforcement of such federal laws as the Under
Deputizing state and local Law local law enforcement officers to function as airport Secretary determines appropriate, all airport
enforcement personnel
security screeners. (Sec. 108)
screening personnel as federal transportation
security agents and shall ensure that such agents
Deputizing current contractor
operate under common standards and common
personnel
uniform, insignia, and badges. The authority to
arrest an individual may be exercised only by
supervisory personnel who are sworn, full-time law
enforcement officers.* (Sec. 102)
Security Screening by private
__
__
The Under Secretary shall establish a pilot program
companies
of up to 5 airports using private screening
companies.
(Sec. 108)
Screening passengers and
Allows small nonhub commercial airports to use
__
__
property at small community
state or local law enforcement personnel. Screening
airports
services must be at the same level as at checkpoints
staffed by federal screeners. The Attorney General
in consultation with DOT may modify the
requirements under certain circumstances. (Sec.
108)

---

CRS-25
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Screening passengers and
The Attorney General shall provide for the screening __
Similar to Senate provision.
property: employee screening
of all persons, including airport, air carrier, foreign
(Sec. 106)
air carrier, and airport concessionaire employees,
before they are allowed into sterile or secure areas of
the airport, as determined by the Attorney General.
The use of available nonintrusive and other
inspection and detection technology is to be
maximized. (Sec. 108)
Screening passengers and
DOT shall explore the feasibility of establishing and The Under Secretary, in consultation with air
The Under Secretary is to work with the TSOB to
property: cross-checking
implementing a system for cross-checking data on
carriers and other government agencies, establish
explore the feasibility of developing a common
security-related databases and individuals identified on all federal agency security- policies and procedures requiring air carriers to use
database of individuals who may pose a threat to
other shared-data systems
related data bases. (Sec. 103)
information from government agencies to identify
transportation or security. (Sec. 102)
individuals on passenger lists who may be a threat to
civil aviation and , if an individual is identified, to
notify appropriate law enforcement agencies and
prohibit the individual from boarding an aircraft.
(Sec. 106)
Screening Passengers and
The Attorney General shall require manual searches The Under Secretary shall require a manual process Similar to House version.
Property: Manual process
at explosive detection system screening locations in
at explosive detection system screening locations in
(Sec. 110)
airports where explosive detection equipment is
airports where explosive detection equipment is
underutilized. This is to augment the Computer
underutilized. This is to augment the Computer
Assisted Passenger Pre-screening System (CAPPS)
Assisted Passenger Pre-screening System (CAPPS)
selections to assure that the minimum number of
selections to assure that the minimum number of
bags, prescribed by the Attorney General, is
bags, prescribed by the Under Secretary, is searched.
searched. In setting the number of bags to be
(Sec. 103)
searched, the Attorney General is to seek to
maximize the use of the explosive detection
equipment. (Sec. 108)

---

CRS-26
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Screening passengers and
The Dept. of Justice under the Attorney General, in
The Transportation Security Administration (TSA),
Blend of both versions. Federal employees must do
property: the agency
consultation with the Secretary of DOT, shall be
under the Under Secretary of Transportation for
the screening after one year.
responsible and its role
responsible for the screening of all passengers and
Security assumes the responsibility for the screening (Sec. 110)
property, including the U.S. mail, cargo, carry-on
of passengers and property on passenger aircraft
and checked baggage, carried aboard or in the cabin that, on date of enactment, was performed by an
of a commercial aircraft.
employee or agent of an air carrier, intrastate air
carrier or foreign air carrier. *The Under Secretary
The screening must: 1) be done prior to boarding
may perform any additional screening that the Under
and 2) be carried out by federal government
Secretary deems necessary.* The Under Secretary
personnel (except at small community airports).
shall prescribe regulations requiring screening of all
DOT is to maximize the use of available
passengers and property that will be carried in a
nonintrusive and other inspection and detection
cabin of an aircraft.
technology approved by the FAA.(Sec. 108)
The screening must: 1) be done prior to boarding; 2)
be done by persons and procedures acceptable to the
Under Secretary; 3) be supervised by uniformed
federal personnel of the TSA who shall have the
power to order the dismissal of nay individual
performing such screening. (Sec. 102)
Screening program: opting-out __
__
If two years after the federalization of the airport
of the federal screening system
security screening is certified. Airports may apply to
opt out of the use of federal screeners in favor of
hiring private screeners. (Sec. 108)
Screening Passengers and
__
*Requires that any private security firm retained to
Similar to House version.
property: security firm
provide airport security services be owned and
(Sec. 108)
ownership
controlled by a citizen of the United States, to the
extent that the President determines that there are
firms owned and controlled by such citizens.* (Sec.
104)

---

CRS-27
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Security Screening Personnel:
Within 30 days of enactment the Attorney General
The Under Secretary shall prescribe employment
Blend of Senate and House versions.
Hiring Qualifications and
will develop a plan for training of federal airport
standards for persons who screen passengers and
(Sec. 111)
Employment Standards
security screening personnel, which shall, at a
property, which shall include: a requirement that all
minimum, require an individual to 1) get a
personnel who screen passengers and property be
satisfactory score on the screening exam; 2) have
citizens of the United States; a preference for hiring
been a national of the U.S. for at least 5 consecutive retired armed forces personnel. Until the final rule
years; 3) have passed a drug test; 4) have at least a
is issued the bill specifies an number of
high school diploma; 5) have a variety of physical
requirements including: 1) a high school diploma,
abilities needed to properly operate the equipment
GED, or their equivalent; 2) a variety of physical
and perform searches; 6) be able to adequately read, abilities needed to properly operate the equipment
write, and speak English. 7) pass a rigorous
and perform searches; *the ability to demonstrate
background check. 8) pass an annual proficiency
daily a fitness for duty without any impairment due
review. (Sec 109)
to illegal drugs, sleep deprivation, medication or
alcohol*; and 3) an adequate command of English.
(Sec. 104)
Security screening personnel:
The Attorney General, notwithstanding any other
The uniformed federal personnel of the TSA who
Similar to Senate version. The report language
suspension and removal
provision of law, may employ, appoint, discipline,
shall supervise all screening of passengers and
asserts that it is the expectation of the conferees that
terminate, and fix the compensation, terms, and
property at airports shall have the power to order the employees shall receive the standard health, workers
conditions of employment of federal service for such dismissal of any individual performing such
compensation, and retirement benefits received by
a number of individuals as the Attorney General
screening. (Sec. 104)
federal employees.
determines to be necessary to carry out passenger
(Sec. 111)
screening functions. (Sec. 109)
Security screening personnel:
Applies the prohibition against strikes by federal
Individuals that screen passengers or property, or
strike prohibition
workers to security screeners. (Sec. 109)
both, at an airport may not participate in a strike or
assert the right to strike, against the person
(including a governmental entity) employing such an
individual. (Sec. 104)
Security screening personnel:
The Attorney General shall establish, within 30 days Per 49 U.S.C. 44935, as amended by the Act, the
Similar to Senate version.
qualification standards
of enactment, qualification standards for individuals Under Secretary is to prescribe standards, within 6
(Sec. 111)
to be hired by the United States as airport security
months of enactment, for the employment of
screening personnel, who must: 1) have a
security screeners. (Sec. 104)
satisfactory or better score on a federal security
screening personnel selection exam; 2) be a U.S.
citizen; 3) meet the employment history verification
and criminal history record check requirements of 14
C.F.R. 107.31; and 4) pass a drug test. (Sec. 109)

---

CRS-28
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Security screening personnel:
The Attorney General is authorized to employ,
__
__
authorization of employment
appoint, and fix the compensation of such a number
of individuals as may be necessary to carry out 49
U.S.C. 44901, Screening of Passengers and
Property, and 49 U.S.C. 44903 [Air Transportation
Security], for such a number of individuals as the
Attorney General determines to be necessary to carry
out the passenger security screening functions under
49 U.S.C. 44901. (Sec. 109)
Security Screening Personnel:
The Attorney General, within 60 days of enactment, Within 6 months of enactment, the Under Secretary
Similar to Senate version.
Training
is to develop a plan for the training of security
shall issue a final rule on the certification of
(Sec. 111)
screening personnel. The plan shall, at a minimum, screening companies. The Secretary shall require 1)
require: 40 hours of classroom instruction; 60 hours
all screeners, screener supervisors, and screener
of on the job instruction; successful completion of an instructors to have satisfactorily completed all
on-the-job examination (training must be equipment initial, recurrent, and appropriate specialized
specific). DOT will require training in the most up- training necessary to ensure compliance with the
to-date equipment. DOT must make periodic
requirements of section 44935 [Employment
assessments of dual-use items (e.g. box cutters) and Standards and Training]. 2) during on-the-job
inform screening personnel.
training, may perform security functions if the
(Sec. 109)
individual is closely supervised and does not make
independent judgments; 3) individuals that fail an
operational test may not perform screening until the
individual has successfully completed remedial
training. (Sec. 104)
Security screening personnel:
The Attorney General must by rule require all
The Under Secretary shall develop standards and
Similar to Senate version.
testing
federal screeners to be tested for proficiency not less procedures, *and performance goals*, for the
(Sec. 111)
than once each year. In addition the Attorney
issuance, renewal, and revocation of a certificate of
General shall also provide for the operational
qualification for airport security screeners. Also
testing of such personnel.
shall provide for the use of threat image projection
(Sec. 109)
or similar devices to test screeners and establish
procedures to revoke screener certification for
screeners that fail to maintain a required level of
proficiency. (Sec. 106)
Security personnel: alcohol and __
The authority of FAA to test airport security
Similar to House version.
drug testing
screening personnel are transferred to the Under
(Sec. 111)
Secretary. Requires testing of these employees by
their employers instead of by air carriers. Applies to
FAA safety-sensitive employees and TSA employees
whose duties include responsibility for security-
sensitive functions. (Sec. 115)

---

CRS-29
Topic
Aviation Security Act of 2001
Airport Security Federalization Act of 2001
Aviation and Transportation Security Act
(S. 1447--Hollings)
(S. 1447 as amended by H.R. 3150--Young)
(P.L. 107-71)
Passed Senate
Passed House Nov. 1, 2001
Enacted Nov. 19,2001
Oct. 11, 2001
(*...* denotes provisions from manager’s
amendment of Nov. 1, 2001)
Security technologies
Within 6 months the Deputy Secretary for Aviation
__
__
deployment: deployment of
Security shall assess: the effectiveness of biometric
emerging technologies
system currently in use; the effectiveness of
increased surveillance at access points; the
effectiveness of card or key pad-based access
systems; emergency exit systems; the elimination of
the “piggy-backing” phenomenon. The Deputy shall
commence deployment of short-term upgrades to
CAPPS and the distribution of “watch list”
information.
(Sec. 211)
Security technologies
Authorizes an additional $50 million annually for
__
Similar to Senate version.
deployment: research and
FY2002 through FY2006 for research in security
(Sec. 137)
development
technologies. Also authorizes $20 million for the
FAA to issue research grants in conjunction with the
Defense Advanced Research Projects Agency for
research in longer term improvements to airport
security including weapons detection, secure
information networking, biometric, and other
technologies for preventing acts of terrorism in
aviation. (Sec. 221)
Ticket provision: honoring
__
*Provides that air carriers must honor other air
Same as House version.
other air carrier tickets on war
carriers’ tickets on a route where an air carrier has
(Sec. 145)
or terrorism impacted routes
had to suspend, interrupt or discontinue air
passenger service because of an act of war or
terrorism.* (Sec. 122)
Voluntary provision of
DOT is to carry out a program to permit qualified
__
Similar to Senate version.
emergency services during
law enforcement officers, firefighters, and
(Sec. 131)
commercial flights
emergency medical technicians to provide
emergency services on commercial air flights during
emergencies. Exempts volunteers from liability.
(Sec. 130)

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