TESTIMONY OF THE
AMERICAN PUBLIC TRANSPORTATION ASSOCIATION
BEFORE THE
SUBCOMMITTEE ON HOMELAND SECURITY
OF THE
SENATE COMMITTEE ON APPROPRIATIONS
*******
April 16, 2003
SUBMITTED BY
American Public Transportation Association
1666 K Street, N.W.
Washington, DC 20006
Tel: (202) 496-4800
Fax: (202) 496-4324
APTA is a nonprofit international association of over 1,500 public and private member organizations including transit systems and commuter rail operators; planning, design, construction and finance firms; product and service providers; academic institutions; transit associations and state departments of transportation. APTA members serve the public interest by providing safe, efficient and economical transit services and products. Over ninety percent of persons using public transportation in the United States and Canada are served by APTA members.
Mr. Chairman, thank you for this opportunity to submit written testimony on the security and safety needs of public transportation systems. We appreciate the subcommittee’s interest in transportation security, and we look forward to working with the subcommittee as it develops the FY 2004 appropriations bill for the Department of Homeland Security.
ABOUT APTA
The American Public Transportation Association (APTA) is a nonprofit international association of over 1500 public and private member organizations including transit systems and commuter rail operators; planning, design, construction, and finance firms; product and service providers; academic institutions; transit associations and state departments of transportation. APTA members serve the public interest by providing safe, efficient, and economical transit services and products. Over ninety percent of persons using public transportation in the United States and Canada are served by APTA member systems.
PUBLIC TRANSPORTATION AND SECURITY
Mr. Chairman, we do not need to emphasize the critical importance of keeping our nation’s surface transportation infrastructure secure in this time of heightened national security. In that connection, APTA is honored to play a critical role in public transportation security. We work closely with a number of Administration security agencies, and administer an industry audit program that oversees a system safety and security management plan for transit systems around the country. Our safety audit program for commuter rail, bus, and rail transit operations has been in place for many years, and contains security planning and emergency preparedness elements. Separately, in connection with Presidential Decision Directive Number 63, we are pleased to have been designated a Public Transportation Sector Coordinator by the Department of Transportation, and as my testimony notes below, we are establishing a Transit Information Sharing Analysis Center that provides a secure two-way reporting and analysis structure for the transmission of critical alerts and advisories to transit agencies around the country.
Since the events of 9/11, state and local public transit agencies, like all state and local entities, have spent significant sums on police overtime, enhanced planning and training exercises, and capital improvements related to security. In response to an APTA survey, transit agencies around the country have identified some $6 billion in transit security needs. These include both one-time capital investments and recurring operating expenses related to security. It is important to note that these costs are above and beyond the capital infrastructure needs we have identified under the TEA 21 reauthorization effort. Mr. Chairman, my testimony summarizes these security needs in greater detail below in the "Security Investment Needs" section.
We also note that Congress just concluded the conference agreement on the FY 2003 supplemental appropriations bill (H.R. 1559) that funds a number of homeland security programs, including some $2.2 billion for formula and discretionary grants to enhance the capability of State and local jurisdictions to prepare and respond to terrorist attacks. This measure includes funding for overtime expenses related to increased security by State and local entities. Transit agencies, as local public bodies, are expected to be eligible recipients for such funding, which will be administered by the Homeland Security Department’s Office of Domestic Preparedness.
BACKGROUND
Mr. Chairman, prior to and following September 11, 2001—the date of the most devastating terrorist attack in U.S. history—APTA has been heavily involved in addressing the safety and security issues of our country. American public transportation agencies have also taken significant measures to enhance their security and emergency preparedness efforts to adjust to society’s new state of concern. Although agencies were largely secure at the time of the World Trade Center and Pentagon attacks and already had emergency response plans in place, the September 11 incidents energized and prioritized security efforts throughout the industry.
Transit agencies have had a good safety record and have been working for many years to enhance their system security and employee security training, partly responding to government standards, APTA guidelines, and attacks on transit agencies abroad. For example, the 1995 sarin gas attack in the Tokyo subway system caused U.S. transit properties managing tunnels and underground transit stations to go on high alert. The San Francisco Bay Area Rapid Transit District, for instance, responded to the possible threat of chemical weapons attacks by sending a police team to Fort McClellan, Alabama, in 1996 to learn response tactics from U.S. Army chemical weapons experts.
In the months following September 11, transit agencies of all sizes worked to identify where they might be vulnerable to attacks and increased their security expenses for both operations and capital costs. The agencies subsequently upgraded and strengthened their emergency response and security plans and procedures, taking steps to protect transit infrastructure and patrons and increase transit security presence while giving riders a sense of security.
Transit industry services are, by design and necessity, an open infrastructure. Over 9 billion transit trips are taken annually on all modes of transit service. This is more than sixteen times the level on domestic air travel trips and emphasizes the challenges for enhancing security within our transit environments.
After September 11, many transit organizations worked to prevent unauthorized entry into transit facilities. The need for employees and passengers to stay alert and report suspicious occurrences became a key goal of many agencies. These efforts are paying off. Many transit agencies report being more secure than prior to September 11, but suggest that many improvements are still in the planning stages.
Since the attacks, APTA and the Federal Transit Administration have emphasized the need for effective transit security and emergency preparedness. FTA has sent security resources toolkits to transit agencies; completed security-vulnerability assessments of the nation’s largest transit systems; and provided technical support and grants of up to $50,000 to fund agency emergency drills.
FTA continues to provide emergency preparedness and security forums nationwide. In emphasizing the importance of enhancing transit security, FTA Administrator Jennifer L. Dorn noted that thousands of lives were spared on September 11 in New York City and Washington "because of the quick action of first responders and transit workers."
APTA has launched many additional efforts to further transit industry security and preparedness, collaborating with FTA in developing emergency preparedness forums, and sponsoring and organizing security-related conferences and workshops. Moreover, APTA developed a list of critical safety and security needs faced by the transit industry, which it has provided to the Department of Transportation and the U.S. Congress.
PUBLIC TRANSPORTATION INFORMATION SHARING ANALYSIS CENTER (ISAC)
Presidential Decision Directive #63 authorizes and encourages national critical infrastructures to develop and maintain ISACs as a means of strengthening security and protection against cyber and operations attacks. APTA is pleased to have been designated a public transportation Sector Coordinator by the U.S. Department of Transportation, and in that capacity has received a $1.2 million grant from the Federal Transit Administration to establish a transit ISAC. APTA recently formalized an agreement with a private company to implement the ISAC and make it available to public transit systems around the country.
This ISAC for public transit provides a secure two-way reporting and analysis structure for the transmission of critical alerts and advisories as well as the collection, analysis and dissemination of security information from transit agencies. The public transit ISAC also provides a critical linkage between the transit industry, the U.S. Department of Transportation, the Transportation Security Administration, and the Office of Homeland Security.
ONGOING TRANSIT SECURITY PROGRAMS
Mr. Chairman, while transit agencies have moved to a heightened level of security alert, the leadership of APTA has been actively working with its strategic partners to develop a practical plan to address our industry’s security and emergency preparedness needs. Shortly after the September 11 events, the APTA Executive Committee established a Security Task Force under the leadership of Washington Metro’s CEO, Richard A. White. The APTA Security Task Force has established a security strategic plan that prioritizes direction for our initiatives. Among those initiatives, the Task Force serves as the steering group for determining security projects that are being implemented through over $2 million in Transit Cooperative Research funding through the Transportation Research Board.
Through this funding, four transit security workshop forums were held for the larger transit systems with potentially greater risk exposure. These workshops were held in confidential settings to enable sharing of security practices and applying methodologies to various scenarios. The outcomes from these workshops were made available in a controlled and confidential format to other transit agencies unable to attend the workshops. The workshops were held in New York, San Francisco, Atlanta, and Chicago.
In partnerships with the Transportation Research Board, the APTA Security Task Force has also established two TCRP Panels that identified and initiated specific projects developed to address Preparedness/Detection/Response to Incidents and Prevention and Mitigation. The Security Task Force emphasized the importance for the research projects to be operationally practical.
In addition to the TCRP funded efforts, a generic Checklist For Transit Agency Review Of Emergency Response Planning And System Review has been developed by APTA as a resource tool and is available on the APTA web-site. Also through the direction of the Security Task Force, APTA has reached out to other organizations and international transportation associations to formally engage in sharing information on our respective security programs and directions and to continually work towards raising the bar of safety and security effectiveness.
Within this concept of partnership and outreach, APTA also continues in its ongoing collaboration with the Federal Transit Administration to help in guiding and developing FTA programs. Among these are regional Emergency Preparedness and Security Planning Workshops that are currently being delivered through the Volpe Center and have been provided in numerous regions throughout the U.S. The primary focus of such workshops has been to assist particularly smaller transit systems in building effective emergency response plans with first responders and their regional offices of emergency management. Also within this partnership, APTA has assisted the FTA and the National Transit Institute in the design of a new program "Security Awareness Training for Frontline Employees and Supervisors." This program is now being provided by NTI to transit agencies throughout the nation.
Collaborative efforts between APTA, FTA, Volpe Center, and the National Transit Institute are also underway to establish a joint web-site that will specifically gather and disseminate effective transit practices with initial emphasis on safety and security.
As you may be aware, APTA has long-established Safety Audit Programs for Commuter Rail, Bus, and Rail Transit Operations. Within the scope of these programs are specific elements pertaining to Emergency Response Planning and Training as well as Security Planning. In keeping with our industry’s increased emphasis on these areas, the APTA Safety Audit Programs have similarly been modified to place added attention to these critical elements.
APTA’s Committee on Public Safety, chaired by Paul Lennon, Managing Director-Intelligence and Counterterrorism, Los Angeles County, Metropolitan Transportation Authority, will continue to provide a most critical forum for transit security professionals to meet and share information, experiences and programs and to also provide valuable input to programs being developed by the FTA.
SECURITY INVESTMENT NEEDS
Mr. Chairman, APTA has conducted a nationwide survey of its transit system membership that sought information about the level of need for security and safety investments for the specific transit property. The survey was not intended to be an inclusive list of all needed security and safety projects. On the basis of the survey, APTA has identified areas of investment needs related to transit security. The areas and needs are--
For personnel, $500 million for ongoing cost of staffing for increased security planning, surveillance, patrols, and response to alert notifications.
For training, ongoing costs of $50 million for the development and delivery of internal security programs; participation in established security programs external to transit agencies; internal and inter-agency emergency preparedness drills; and for national and regional security workshops/symposiums through government, industry and partnered initiatives.
For a one-time cost of technical support, $100 million for security and emergency preparedness plan development/refinement; comprehensive security needs assessments; and infrastructure security plan development.
For a one time cost infrastructure and rolling stock security, $5.1 billion for communications, surveillance, detection systems and equipment for enhancing security of rolling-stock, stations, facilities, rights-of-way, bridges tunnels, electronic and other systems.
For emergency response support equipment, $100 million for personal protective and detection equipment for personnel; support vehicles and equipment for emergency response and recovery.
In support of national defense, a one-time cost of $50 million for development/refinement of evacuation plans; and mobilization of public transit systems for evacuation needs.
For aid for extraordinary expenditures not including New York City, or Washington, D.C., a one-time cost of $50 million for aid for extraordinary expenditures for transit agencies that have incurred significant expenses to date for costs associated with security and recovery initiatives that are in need of cost relief.
For research and development, ongoing costs of $50 million for research and development of systems that will enhance detection of security; and for threats in mass transit environments.
In sum, transit industry security investment needs result in capital and operational investment needs of some $6 billion.
We respectfully ask that as the Subcommittee takes up the FY04 Homeland Security Appropriations bill it consider these critical needs for federal investment in transit security. It is important to note that after September 11, 2001, the necessity has become apparent to appropriately fund a new state of heightened security to combat against potential threats to our nation’s public transportation system. As noted earlier, these security needs are distinct from the infrastructure needs we have identified in connection with the TEA 21 reauthorization.
CONCLUSION
Mr. Chairman, these are just some of the issues and federal investments that we believe can be made to improve safety and security of transit services. We again thank you and the Subcommittee for your commitment to investing in the nation’s transportation infrastructure and look forward to working with you on safety and security issues.
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