TSA's Adjudication
Resources are
Inadequate to Meet TSA
PreCheck Enrollment
Goals
December 5, 2017
OIG-18-27
OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
Washington, DC 20528 / www.oig.dhs.gov
December 5, 2017
MEMORANDUM FOR: The Honorable David P. Pekoske
Administrator
Transportation Security Administration
FROM: John V. Kelly
Acting Inspector General
SUBJECT: TSA’s Adjudication Resources are Inadequate to Meet
TSA PreCheck Enrollment Goals
For your action is our final report, TSA’s Adjudication Resources are Inadequate
to Meet TSA PreCheck Enrollment Goals. We incorporated the formal comments
provided by your office.
The report contains two recommendations aimed at enhancing the efficiency of
the TSA PreCheck Application Program adjudication process. Your office
concurred with the two recommendations. Based on information provided in
your response to the draft report, we consider recommendations 1 and 2
resolved and open. Once your office has fully implemented the
recommendations, please submit a formal closeout letter to us within 30 days
so that we may close the recommendations. The memorandum should be
accompanied by evidence of completion of agreed-upon corrective actions.
Please send your response or closure request to
Consistent with our responsibility under the Inspector General Act, we will
provide copies of our report to congressional committees with oversight and
appropriation responsibility over the Department of Homeland Security. We will
post the report on our website for public dissemination.
Please call me with any questions, or your staff may contact
Jennifer L. Costello, Assistant Inspector General for Inspections and
Evaluations or Angela Garvin, Deputy Assistant Inspector General for
Inspections and Evaluations, at (202) 254-4100.
www.oig.dhs.gov
DHS OIG HIGHLIGHTS
TSA’s Adjudication Resources are
Inadequate to Meet TSA PreCheck Enrollment Goals
December 5, 2017
Why We
Did This
Inspection
The Transportation
Security Administration
(TSA) intended to expand
TSA PreCheck to 25
million
air travelers at a
rate of more than 5
million enrollments per
year. We evaluated
whether the current
TSA
PreCheck Application
Program adjudication
process will allow TSA to
meet its enrollment goals.
What We
Recommend
We are making two
recommendations to
improve the efficiency of
TSA PreCheck
Application Program
adjudication.
For Further Information:
Contact our Office of Public Affairs at
(202) 254-4100, or email us at
DHS-OIG.OfficePublicAffairs@oig.dhs.gov
What We Found
In 2015 and 2016, TSA significantly ramped up its TSA
PreCheck marketing campaign. In addition, TSA and its
enrollment services contractor expanded the number of
enrollment centers, increased staff, and extended hours of
operation. However, TSA did not allocate additional
resources or staff to the Adjudication Center tasked with
manually processing about 26 percent of TSA PreCheck
Application Program applications. To make matters worse, in
June 2016, TSA PreCheck applications surged, leaving the
Adjudication Center overwhelmed with applications to
manually process. As the application queue grew, TSA
brought on detailees from other Federal agencies to assist
with adjudications part time, but they did not have a
significant impact. Further, the Adjudication Center relies on
a manual caseload assignment and reporting process, which
is inefficient for the volume of TSA PreCheck applications
needing adjudication. In summary, TSA developed a strategy
to meet its ambitious goal of expanding TSA PreCheck to 25
million air travelers by the end of 2019 that focused on the
front-end application phase of enrollment, but did not
adequately plan for the anticipated influx of applications to
the Adjudication Center at the back end.
TSA Response
TSA concurred with all of our recommendations and
described corrective actions it has taken and plans to take.
We consider recommendations 1 and 2 resolved and open.
www.oig.dhs.gov OIG-18-27
OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
Background
The Aviation and Transportation Security Act of 2001
1
authorizes the
Transportation Security Administration (TSA) to establish requirements to
implement trusted passenger programs and use available technologies to
expedite security screening of participating passengers. According to TSA, TSA
Pre9
®
(TSA PreCheck)
2
allows airport security to focus on high-risk and
unknown populations at security checkpoints.
In October 2011, TSA piloted TSA PreCheck to expedite airport security
screening for passengers it considered low risk, such as frequent flyers and
members of U.S. Customs and Border Protection’s Trusted Traveler Programs.
After the pilot, Congress directed TSA to (1) certify by the end of December
2013 that 25 percent of air passengers were eligible for expedited screening
without lowering security standards and (2) outline a strategy to increase the
number of eligible air passengers to 50 percent by the end of December 2014.
TSA PreCheck Application Program Enrollment and Adjudication
In December 2013, TSA established the TSA PreCheck Application Program. To
apply, an applicant must be a U.S. citizen or lawful permanent resident.
Applicants may pre-enroll online or visit one of 392 enrollment centers
nationwide to provide biographic information and immigration status, as well
as answer questions regarding criminal history. All applicants must visit an
enrollment center to provide identity documents and fingerprints.
TSA has contracted out TSA PreCheck Application Program enrollment services
to a contractor that currently operates the nationwide network of enrollment
centers. The contractor is responsible for the associated enrollment system,
equipment, personnel and associated training, the website, and the customer
service call center. The contractor transmits applicant enrollment information
to TSA’s Screening Gateway system to begin the security threat assessment.
The security threat assessment for the TSA PreCheck Application Program
comprises automated intelligence-related checks, as well as checks of
citizenship status and criminal history records. According to TSA data, at the
time of this report, the system for the TSA PreCheck Application Program
automatically approved about 74 percent of applicants because TSA did not
receive disqualifying information. TSA received potentially disqualifying
information for the remaining 26 percent of applications. Applications with
potentially disqualifying information move to a “Ready to Adjudicate” queue for
manual review and adjudication at the Adjudication Center.
1
Pub. L. 107-71, § 109(a)(3)
2
TSA uses TSA Pre9
®
when referring to this program, which we refer to as TSA PreCheck in
this report.
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
Adjudicators review all “Ready to Adjudicate” applications, comparing the
applicant’s information to submitted identity documents and returned criminal
and immigration records. Additional research may be required to determine
whether the results returned are disqualifying according to TSA PreCheck
Application Program enrollment criteria. TSA’s Office of Intelligence and
Analysis operates the Adjudication Center which, as of January 2017, had 29
positions dedicated to TSA PreCheck Application Program adjudication.
There are three levels of adjudicators — initial, mid-level, and senior. Mid-level
or senior adjudicators review all initial adjudicators’ cases. Adjudicators must
pass an assessment to gain self-approval rights — the authority to approve
their own cases without second-level review when results contain no
disqualifying information. Designated branch managers or senior adjudicators
adjudicate all applications with potential matches to intelligence-related
database records. Senior adjudicators approve Preliminary Determination of
Ineligibility letters issued to applicants.
As of January 29, 2017, about 12.8 million travelers were eligible for TSA
PreCheck, of which about 4.3 million enrolled through the TSA PreCheck
Application Program. TSA has determined 15 other populations to be low risk
and therefore eligible for TSA PreCheck, such as the aforementioned members
of the Trusted Traveler Programs.
Results of Inspection
In a November 2015 memo to the Department of Homeland Security Office of
Inspector General (OIG), the then-TSA Administrator detailed TSA’s plan to
expand TSA PreCheck to 25 million air travelers at a rate of more than 5
million enrollments per year. In 2015 and 2016, TSA significantly ramped up
its TSA PreCheck marketing campaign. In addition, TSA and its enrollment
services contractor expanded the number of enrollment centers, increased
staff, and extended hours of operation. However, TSA did not allocate
additional resources or staff to the TSA Adjudication Center, which had
multiple vacancies and was tasked with manually processing about 26 percent
of TSA PreCheck Application Program applications. To make matters worse, in
June 2016, TSA PreCheck applications surged, leaving the Adjudication Center
overwhelmed with applications to process. As the application queue grew, TSA
brought on detailees from other Federal agencies to assist with adjudications
part time, but they did not have a significant impact. Further, the Adjudication
Center relies on a manual caseload assignment and reporting process, which is
inefficient for the volume of TSA PreCheck applications needing adjudication.
In summary, TSA developed a strategy to meet its ambitious goal of expanding
TSA PreCheck to 25 million air travelers by the end of 2019 that focused on the
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
front-end application phase of enrollment, but did not adequately plan for the
anticipated influx of applications to the Adjudication Center at the back end.
TSA Focused on Increasing the Number of TSA PreCheck Application
Program Applications
TSA intended to expand TSA PreCheck to 25 million air travelers by the end of
2019. Plans to reach this goal included “changes to [TSA’s] existing enrollment
process, increasing marketing and communications efforts, and expanding the
number of contractors providing enrollment services….” For example, multiple
airlines and hotel loyalty programs offer their members the opportunity to
redeem their miles or points to pay the TSA PreCheck application fee.
TSA’s fiscal year 2015 outreach efforts primarily targeted business travelers,
and its marketing campaign ran in seven markets (U.S. geographic areas)
chosen based on top travel by volume, population, and geographic distribution
across the country. In FY 2016, TSA expanded its focus to include leisure
travelers, and its marketing campaign ran in 19 markets with the longest
security wait times as determined by TSA. The marketing campaigns ran from
May 2015 through November 2015 and from May 2016 through November
2016, respectively, to complement the timing of partner marketing efforts,
travel purchasing, and actual travel.
In FY 2014, TSA allocated $273,000 to its marketing contractor for TSA
PreCheck. The allocation increased to $1.35 million in FY 2015 and to $2.1
million in FY 2016. In FY 2016, TSA expanded its paid digital media campaign
with Google and added social media as part of its TSA PreCheck marketing
strategy. TSA also planned to expand the number of enrollment service
providers to four by the second quarter of FY 2017, but TSA withdrew its
Request for Proposals in October 2016.
Beginning in mid-May 2016, within weeks, TSA experienced a near 100 percent
increase in enrollments. According to TSA, the summer 2016 increases in
enrollment were related to the summer surge of travelers and security wait
time increases due to adjustments in airport security screening. To handle the
influx of travelers wanting to enroll in the TSA PreCheck Application Program,
TSA expanded enrollment services. In high-demand areas, TSA and its
enrollment services contractor quickly added capacity by opening about 15 new
enrollment centers, increasing enrollment center hours of operation, and
adding workstations and staff to existing enrollment centers. In June 2016,
TSA also launched a summer enrollment tour, using a mobile enrollment
capability to offer temporary enrollment events in TSA’s top markets. To
support the tour, 39 TSA government detailees served as TSA PreCheck
Application Program enrollment greeters.
www.oig.dhs.gov 4 OIG-18-27
350,000
Application numbers
Jan-15
Feb-15
Mar-15
Apr-15
May-15
Jun-15
Jul-15
Aug-15
Sep-15
Oct-15
Nov-15
Dec-15
Jan-16
Feb-16
Mar-16
Apr-16
May-16
Jun-16
Jul-16
Aug-16
Sep-16
Oct-16
Nov-16
Dec-16
Jan-17
300,000
250,000
200,000
150,000
100,000
50,000
0
77,290
4,685
Applications received
Pending Adjudication
305,777
68,233
141,673
8,082
OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
TSA Did Not Adequately Plan for Handling the Influx of TSA PreCheck
Application Program Applications at the Adjudication Center
In the summer of 2016, TSA PreCheck Application Program applications
increased significantly, but the Adjudication Center was not equipped to
handle the influx. As shown in figure 1, the number of applications pending
adjudication more than quadrupled from April 2016 to July 2016.
Figure 1: TSA PreCheck Application Program Volume, January 2015 –
January 2017
Source: OIG analysis of TSA data
Although the Adjudication Center had 27 positions dedicated to the TSA
PreCheck Application Program, 12 were vacant when TSA’s marketing
campaign began in May 2016. Despite efforts to fill these vacancies, the
Adjudication Center has experienced high attrition. According to Adjudication
Center officials, adjudicators left for other Federal Government jobs and
because they were dissatisfied with the type of work they were performing.
Therefore, the Adjudication Center could not fill vacancies quickly enough, and
an attempt to address the application queue with detailees was not wholly
successful. Both the queue and the number of workdays it took to begin
adjudicating applications grew. TSA must ensure that the Adjudication Center
has enough experienced staff to handle application volume because manual
review and adjudication are vital to guaranteeing only low-risk travelers are
approved for the TSA PreCheck Application Program.
TSA’s performance measures for TSA PreCheck Application Program
adjudicators split production goals into cases involving checks with the
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
National Crime Information Center (NCIC)
3
and Systematic Alien Verification
for Entitlement (SAVE)
4
and cases involving checks with the Integrated
Automated Fingerprint Identification System (IAFIS).
5
Adjudication Center
officials consider IAFIS checks to be more complex and time consuming than
NCIC/SAVE checks, hence the different production goals. We determined that,
based on these production goals, if adjudicators received only NCIC/SAVE
cases, then a fully staffed Adjudication Center of 27 adjudicators would have
been able to keep pace with the number of applications pending adjudication in
the summer 2016. But, based on production goals, if they received only IAFIS
cases, even if fully staffed, the Adjudication Center would not have been able to
keep pace with the number of applications pending adjudication. Because the
Adjudication Center cannot predict the mix of cases requiring NCIC, SAVE, and
IAFIS checks TSA cannot be certain whether 27 adjudicators would have been
sufficient to handle the workload in the summer of 2016.
Assuming 26 percent of TSA PreCheck Application Program applications
require manual review and adjudication, if TSA realized its estimated annual
growth of 5 million enrollments, the Adjudication Center would receive about
112,500 applications for manual review and adjudication each month. In
comparison, in July 2016, the Adjudication Center had about 68,200
applications pending adjudication. TSA’s Office of Intelligence and Analysis has
proposed adding 21 TSA PreCheck Application Program adjudicator billets, but
as of January 2017, only 2 billets have been added for a total of 29. Further,
depending on the mix of cases and required checks, based on production goals,
TSA cannot be certain that 21 more adjudicators would be enough to keep pace
with the estimated number of TSA PreCheck Application Program applications
needing manual review and adjudication with this annual growth in
enrollments.
Because TSA could not quickly fill the many vacancies at the Adjudication
Center, it sought to increase TSA PreCheck Application Program adjudication
staffing using detailees. First, the TSA PreCheck Application Program borrowed
staff from within TSA, including adjudicators from other programs in the
Adjudication Center. For example, employees responsible for adjudicating
Transportation Worker Identification Credential
6
applications helped with TSA
PreCheck Application Program applications during their overtime hours. Then
3
Adjudicators review NCIC results for open wants and warrants, and other information, based
on an applicant’s biographic information.
4
Adjudicators review SAVE results to verify an applicant’s citizenship/immigration eligibility
information.
5
Adjudicators review Federal Bureau of Investigation rap sheets in their entirety via IAFIS,
based on an applicant’s biometric information (fingerprints).
6
Transportation Worker Identification Credential is a common identification credential for all
personnel requiring unescorted access to secure areas of Maritime Transportation Security Act-
regulated facilities and vessels, and all mariners holding United States Coast Guard-issued
credentials.
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
on May 28, 2016, TSA requested surge support of 40 adjudicators from DHS
for 6 months and shortly thereafter received about 30 detailees from U.S.
Citizenship and Immigration Services for part-time adjudication starting in
June 2016. Finally, in October 2016, TSA entered an agreement with the
Department of Veterans Affairs for about 30 detailees to support TSA PreCheck
Application Program adjudication part time for 1 year with an option for annual
renewal.
Overall, the detailees brought on in 2016 had little impact on the queue of
applications pending adjudication due to several factors. First, cases assigned
to new adjudicators and detailees initially must all be reviewed, so all TSA
PreCheck Application Program senior adjudicators shifted their efforts to
reviewing detailees’ cases. Second, detailees may also perform collateral duties
for their home agency, which takes away from time available to adjudicate
applications. Even though the Adjudication Center added more than 40
detailees during the summer 2016 surge, the number of “effective” full-time
equivalents (FTE) increased only slightly. TSA considers adjudicating
applications at least 30 hours a week effective. So, in August 2016, for
example, the TSA PreCheck Application Program had 32 detailees, but the
number of effective FTEs only increased by 5. Finally, one Adjudication Center
official considered only about 7 percent of the detailees to be proficient in
application processing.
The lack of experienced staff combined with application volume contributed to
the Adjudication Center’s inability to meet its monthly goal of adjudicating all
“Ready-to-Adjudicate” applications within 5 workdays. TSA data shows that the
Adjudication Center’s average number of workdays to begin adjudication rose
significantly following TSA’s summer 2016 efforts to increase TSA PreCheck
Application Program enrollment. As shown in figure 2, even with the detailees,
from June to September 2016, TSA PreCheck Application Program applications
were pending manual review and adjudication for an average of 20 to 50
workdays.
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
Figure 2: Average Number of Workdays to Begin Manual Review and
Adjudication, October 2015 – January 2017
60
50
40
30
20
10
Workdays
0
Average Number of Workdays to
Begin Manual Review and
Adjudication
Adjudication Goal
Source: OIG analysis of TSA Ad
judication Center data
Manual review and adjudication are vital to guaranteeing only low risk
travelers are approved for the TSA PreCheck Application Program; therefore,
TSA must ensure that the Adjudication Center has sufficient, experienced staff
to handle application volume.
Adjudication Center Needs an Automated TSA PreCheck Application
Program Caseload Assignment and Reporting Process
The TSA PreCheck Application Program adjudication caseload assignment and
reporting process is manual, reducing available adjudication time and making
accurate reporting of Adjudication Center metrics and performance difficult.
Specifically, the Screening Gateway vetting system used by adjudicators, is a
stand-alone application that does not allow the Adjudication Center to
automatically assign TSA PreCheck Application Program cases to adjudicators.
Instead, according to TSA managers at the Adjudication Center, every day, they
must manually extract thousands of case numbers from the vetting system and
enter them into Microsoft Excel spreadsheets, which they email to
adjudicators. In turn, adjudicators open the Excel spreadsheets and manually
copy each case number back into the Screening Gateway to view the
corresponding vetting results and begin adjudicating the application.
Adjudicators are responsible for tracking their daily case production on
spreadsheets. Data from the spreadsheets is used to generate the Adjudication
Center’s activity and performance reports for TSA, Congress, and other entities,
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
and help identify adjudicator performance levels. Although these spreadsheets
are important to accurately report metrics and performance, the Adjudication
Center relies on adjudicators to self-report start and end times for each case,
without an automated way to verify the data.
The current process is not suitable for a program receiving and adjudicating
thousands of applications a day. As TSA PreCheck Application Program
enrollment increases, so will the number of applications requiring manual
review and adjudication. From January 2015 to April 2017, the Adjudication
Center manually adjudicated nearly 1 million applications. Automating the
caseload assignment and reporting process through technology solutions would
help the Adjudication Center withstand TSA PreCheck Application Program
expansion and improve application processing effectiveness and efficiency.
Recommendations
We recommend that the TSA Assistant Administrator for the Office of
Intelligence and Analysis:
Recommendation 1: Align Adjudication Center resources with TSA’s plans to
increase TSA PreCheck enrollments.
Recommendation 2: Automate the TSA PreCheck Application Program
caseload assignment and reporting process to enhance the efficiency and
effectiveness of adjudications.
Management Comments and OIG Analysis
TSA concurred with our recommendations and is taking steps to address them.
Appendix A contains a copy of TSA’s management comments in their entirety.
We also received and incorporated technical comments as appropriate. We
consider recommendations 1 and 2 to be resolved and open. A summary of
TSA’s responses and our analysis follows.
TSA Response to Recommendation 1: TSA concurred with the
recommendation. In the past year, TSA has concertedly moved away from a
standalone enrollment goal, such as 25 million. It is now focused on increasing
TSA PreCheck screening lane utilization, targeting more frequent travelers for
marketing and potential enrollment to enhance security effectiveness of airport
screening. From 2018 to 2020, TSA projects an average of 2 million new
enrollments per year in the TSA PreCheck Application Program.
TSA has established a TSA PreCheck Taskforce to better consolidate and
coordinate communications and operational planning activities, including
Adjudication Center resource management. TSA has also implemented
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
technical solutions, such as enhanced filtering of criminal history responses, to
reduce manual adjudication workload to about 21 percent of applications
received. In October 2017, TSA approved the addition of 21 fee-funded FTEs for
the Adjudication Center to support projected enrollment growth, evolving
security requirements, and future surge potential. TSA is confident this will
address the projected 35,000 applicants needing manual review and
adjudication per month while achieving its goal of responding to applicants
within 30 days. TSA’s estimated completion date is June 2018.
OIG Analysis: We consider TSA’s planned actions responsive to
recommendation 1. We consider the recommendation resolved and open. We
will close this recommendation when TSA meets its FTE hiring goals and can
provide evidence as to how the staff increases, along with Taskforce activities,
have enhanced Adjudication Center operations and surge planning.
TSA Response to Recommendation 2: TSA concurred with the
recommendation. TSA plans to migrate the TSA PreCheck Application Program
to the Technology Infrastructure Modernization (TIM) system, which offers the
ability to automate the adjudication caseload assignment and reporting
processes, thereby increasing the efficiency and effectiveness of adjudications.
The estimated completion date for transition of June 2018 depends on the TIM
Acquisition Program’s progress, according to existing work plans and timelines
and scheduled activities, in completing migration of TSA PreCheck Application
Program adjudication functions to TIM.
OIG Analysis: We consider TSA’s planned actions responsive to
recommendation 2. We consider the recommendation resolved and open. We
will close this recommendation when TSA provides evidence that it has
migrated the TSA PreCheck Application Program to TIM and automated
caseload assignment and reporting processes.
Objective, Scope, and Methodology
DHS OIG was established by the Homeland Security Act of 2002 (Public Law
107−296) by amendment to the Inspector General Act of 1978.
We evaluated whether the TSA PreCheck Application Program adjudication
process will allow TSA to meet its enrollment goals.
To achieve our objective, we reviewed and assessed TSA PreCheck Application
Program enrollment data and determined whether TSA’s adjudication of
applications has kept pace with application submissions. We also interviewed
officials from TSA’s Office of Intelligence and Analysis, Security Threat
Assessment Operations Division, and TSA’s enrollment services contractor. We
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
did not examine the quality of TSA PreCheck Application Program
adjudications.
We conducted this review between July 2016 and January 2017 under the
authority of the Inspector General Act of 1978, as amended, and according to
the Quality Standards for Inspection and Evaluation issued by the Council of
the Inspectors General on Integrity and Efficiency.
The Office of Inspections and Evaluations major contributors to this report are
Angela Garvin, Chief Inspector; Natalie Fussell Enclade, Policy Advisor; Amy
Burns, Supervisory Lead Inspector; Ayana Henry, Senior Inspector; Ian
Stumpf, Inspector; Punitha Cloud, Inspector; Kelly Herberger, Communications
and Policy Analyst; and Ryan Nelson, Independent Referencer.
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OFFICE OF INSPECTOR GENERAL
Department of Homeland Security
Appendix B
Report Distribution
Department of Homeland Security
Secretary
Deputy Secretary
Chief of Staff
Deputy Chiefs of Staff
General Counsel
Executive Secretary
Director, GAO/OIG Liaison Office
Assistant Secretary for Office of Policy
Assistant Secretary for Office of Public Affairs
Assistant Secretary for Office of Legislative Affairs
Transportation Security Administration, OIG Liaison Office
Office of Management and Budget
Chief, Homeland Security Branch
DHS OIG Budget Examiner
Congress
Congressional Oversight and Appropriations Committees
www.oig.dhs.gov 17 OIG-18-27
Additional Information and Copies
To view this and any of our other reports, please visit our website at:
www.oig.dhs.gov.
For further information or questions, please contact Office of Inspector General
Public Affairs at: [email protected].
Follow us on Twitter at: @dhsoig.
OIG Hotline
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on the red "Hotline" tab. If you cannot access our website, call our hotline at
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