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CONCEPT OF OPERATIONS FOR THE NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)SECURITY ANNEX Version 2.0 1 JOINT PLANNING AND DEVELOPMENT OFFICE ANNEX:LAYERED,ADAPTIVE SECURITY OPERATIONAL CONCEPT FOR NEXTGEN PREFACE The Joint Planning and Development Office(JPDO)is developing a concept of operations(ConOps)for the Next Generation Air Transportation System(NextGen).The final version of the ConOps will provide an overall and integrated view of NextGen operations in the 2025 timeframe,including key transformations from todays operations.The overall document also identifies key research and policy issues that need resolution to achieve national goals for air transportation.The development of the ConOps is an iterative and evolutionary process that will progress using input and feedback from the aviation community.This document provides the aviation community with a preview of the NextGen ConOps and receive their comments for improvements.Details of the JPDO comment and review process can be found at the Tech Hanger at www.jpdo.aero.The full version of this document will include accepted comments for the NextGen concepts related to the following;Airport operations and mission support Air traffic management planning and mission support services Flight operations planning and mission support services Layered adaptive security services Network-enabled infrastructure services Shared situational awareness services Safety management services Environmental management services Compliance,regulation,and harmonization services.Often,this document presents“aggressive”concepts that have not been validated but are envisioned as attainable goals to maximize benefits and flexibility for NextGen users of 2025 and beyond.Many potential futures are possible,and much will depend on the insights gained by the evolution and increasing specificity of the ConOps.Comments to refine these research issues are requested.The attached document,which is the full version of Chapter 6 in the initial NextGen ConOps plan,describes the entire concept of layered adaptive security at the same high level as other chapters.CONCEPT OF OPERATIONS FOR THE NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)SECURITY ANNEX VERSION 2.0 i JOINT PLANNING AND DEVELOPMENT OFFICE TABLE OF CONTENTS PREFACE.1 1 INTRODUCTION.1 1.1 OVERVIEW.1 1.2 NEXTGEN SECURITY MANAGEMENT AND COLLABORATIVE FRAMEWORK.2 1.3 NEXTGEN SECURITY OPERATIONAL IMPROVEMENTS SUMMARY.3 2 INTEGRATED RISK MANAGEMENT.5 2.1 RISK MANAGEMENT PROCESS.6 2.2 SECURITY RISK MANAGEMENT.6 2.2.1 IRMSecure People.7 2.2.2 IRMSecure Airports.7 2.2.3 IRMSecure Checked Baggage.8 2.2.4 IRMSecure Cargo/Mail.8 2.2.5 IRMSecure Airspace.9 2.2.6 IRMSecure Aircraft.10 2.3 NEI-ENABLED INTEGRATED RISK MANAGEMENT COLLABORATION ENVIRONMENT.11 2.4 RISK MANAGEMENT STRATEGY MONITORING AND FOLLOW-UP.12 3 SECURE PEOPLE.13 3.1 INTEGRATED RISK MANAGEMENT.13 3.2 AUTHENTICATION AND CREDENTIALING.13 3.2.1 Credentialing.14 3.2.2 Passenger Authentication.14 3.2.3 Aviation Industry Worker Authentication.15 3.3 CHECKPOINT PERSON SCREENING.15 3.4 CHECK POINT BAGGAGE SCREENING.16 3.5 CONTINUOUS SURVEILLANCE AT CHECKPOINT/ACCESS SITES.17 3.6 GLOBAL HARMONIZATION.18 4 SECURE AIRPORTS.19 4.1 IRMSECURE AIRPORT.19 4.2 AIRPORT FACILITIES.20 4.2.1 Commercial(Passenger/Cargo)Airports.20 4.2.2 Remote Terminal Security Screening.20 4.2.3 General Aviation Airports.20 4.2.4 Commercial Spaceports.21 4.3 AIRSIDE.21 4.3.1 AOA/SIDA.21 4.3.2 Terminal Perimeter.21 4.3.3 Terminal Airspace Security.22 4.4 LANDSIDE.22 4.4.1 Airport Public and Commercial Roadways and Parking Lots.22 4.4.2 Terminal Departures Curb.22 4.4.3 Terminal Entry Portal.23 4.4.4 Airline Ticketing Kiosk/Counter.23 4.4.5 Security Checkpoint.23 OPERATIONAL CONCEPT FOR THE SECURITY ANNEX NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)JOINT PLANNING AND DEVELOPMENT OFFICE II VERSION 2.0 4.4.6 Sterile Concourse.23 4.4.7 International Arrival/Customs.23 4.4.8 Airport Concessions,Food,and Beverage Security.24 4.5 AIRPORT SECURITY CONTROL CENTER.24 4.6 EMERGENCY RESPONSE AND RECOVERY.24 5 SECURE CHECKED BAGGAGE.25 5.1 INTEGRATED RISK MANAGEMENT.25 5.2 CHECKED BAGGAGE SCREENING.26 5.2.1 Screening.26 5.2.2 Alarm Resolution Screening.26 5.2.3 Threat Object Disposal.27 5.3 CHECKED BAGGAGE SCREENING INSTALLATIONS.27 5.3.1 In-Line Baggage Screening.27 5.3.2 Nonintegrated and Standalone Baggage Screening.28 5.3.3 Deployable Baggage Screening Operations.28 5.4 GLOBAL HARMONIZATION.28 6 SECURE CARGO AND MAIL.29 6.1 INTEGRATED RISK MANAGEMENT.30 6.2 SHIPPER CREDENTIALING.30 6.3 SCREENING AND INSPECTION.31 6.4 ALARM RESOLUTION.31 6.5 SURFACE TRANSPORTATION SECURITY OF SCREENED CARGO.32 6.6 HARDENED DOORS AND BARRIERS ON ALL CARGO AIRCRAFT.32 6.7 SECURITY TRAINING FOR ALL CARGO FLIGHT CREW AND STAFF.32 6.8 STORAGE SECURITY.32 6.9 CARGO TRACKING AND INTEGRITY.32 6.10 GLOBAL HARMONIZATION.32 7 SECURE AIRSPACE.34 7.1 INTEGRATED RISK MANAGEMENT.34 7.2 VERIFIED AIRSPACE ACCESS.34 7.3 SECURITY RESTRICTED AIRSPACES.35 7.4 AIRSPACE VIOLATION DETECTION,ALERTING,AND MONITORING.36 7.5 INTEGRATED MANAGEMENT OF AIRSPACE SECURITY.37 7.5.1 Noncooperative Surveillance.37 7.5.2 Countermeasures.37 7.5.3 Joint Exercises.38 7.6 COUNTER PROJECTILES.38 7.6.1 Airport AOA/Terminal Airspace.38 7.6.2 Aircraft/Flight Object.39 8 SECURE AIRCRAFT.40 8.1 INTEGRATED RISK MANAGEMENT.40 8.2 AUTHORIZED CONTROL OF THE AIRCRAFT.40 8.2.1 Cockpit Systems.40 8.2.2 Onboard Personnel.40 8.3 AIRCRAFT MONITORING/SURVEILLANCE.41 CONCEPT OF OPERATIONS FOR THE NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)SECURITY ANNEX VERSION 2.0 iii JOINT PLANNING AND DEVELOPMENT OFFICE 8.3.1 Cockpit,Cabin,and Cargo Hold Surveillance.41 8.3.2 Continuous Air Monitoring.41 8.4 AIRCRAFT HARDENING AND DEFENSIVE SYSTEMS.42 8.5 SAFETY INTEGRATION.42 LIST OF TABLES Table C-1.Significant Security Transformations.3 CONCEPT OF OPERATIONS FOR THE NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)SECURITY ANNEX LAYERED,ADAPTIVE SECURITY SERVICES(ENTERPRISE OPERATIONS)1 INTRODUCTION 1.1 OVERVIEW This concept of operations(ConOps)for the Next Generation Air Transportation System(NextGen)1 has incorporated an effective security system without unduly limiting mobility or making arbitrary intrusions on the civil liberties of all users by embedding layered,adaptive security measures throughout the air transportation system,from reservation to destination.This NextGen Security concept addresses the following:1)Integrated Risk Management,2)Secure People,3)Secure Airports,4)Secure Checked Baggage,5)Secure Cargo/Mail,6)Secure Airspace,and 7)Secure Aircraft.The security system has particularly strong interrelations with NextGen Shared Situational Awareness,airports,and global harmonization capabilities along with some aspects of Agile ATM.Cyber security is addressed in the Net-Centric Infrastructure(NEI)Services,Chapter 4,and Shared Situational Awareness(SSA)Services,Chapter 5.Non-cooperative surveillance is addressed in Chapter 5.Layered,adaptive security is defined as a risk-informed security system that depends on multiple technologies,policies,or procedures adaptively scaled and arranged to defeat a given threat.This adaptability further permits the use of increased variability in system operations that creates additional uncertainty for the terrorist.Adversaries cannot defeat one particular security measure and system and thereby achieve a“break-through,”which permits them to operate freely with no further barriers to their activities.Furthermore,the security system has the adaptability to scale its systems and procedures to the risk level of a threat in a given situation rather than being bound to an inflexible“one size fits all”approach.Given the limited resources of government and private industry,it is critical that mitigation measures be developed based on threat and vulnerability,as well as the potential consequences to individuals,transportation assets,and the economy.The NextGen approach better matches system costs with the risk assessment and the capacity demands at various airport and screening locations.To achieve the requisite adaptability while maintaining effective security standards,the NextGen security system must have a sound method of prioritizing risks and assessing the proportional effectiveness of different ways of countering them.The Secure-Integrated Risk Management process performs this essential function that then directs the deployment of equipment,personnel,and procedures and policies to defeat the evolving threat.The remaining capabilities 1 The term“NextGen”in this document applies solely to the JPDO Enterprise Architecture and ConOps for 2025.No other program is referenced or intended by this term.VERSION 2.0 1 JOINT PLANNING AND DEVELOPMENT OFFICE OPERATIONAL CONCEPT FOR THE SECURITY ANNEX NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)JOINT PLANNING AND DEVELOPMENT OFFICE 2 VERSION 2.0 described at a high level in this chapter must be the consequence of integrated risk management(IRM)assessments.1.2 NEXTGEN SECURITY MANAGEMENT AND COLLABORATIVE FRAMEWORK In the NextGen,the security system is better integrated with other National Airspace System(NAS)functions,and through advanced networking functionality,linked to external aviation industry stakeholders and non-Federal government entities.To maintain effective security management across major stakeholders,a collaborative framework is composed of the following key functions and processes identified below.National Aviation Security Policy.NextGen security policy embraces a broad view of threats,including direct attack,exploitation,and transfer;recognizes interdependencies and uncertainty;nurtures virtual or extended enterprises supported by connectivity of diverse,informed stakeholder partnerships;employs layered security using physical,process,and institutional layers;accounts for systemic vulnerabilities that are created by the networked nature of the aviation system;and creates resilience in the system to mitigate potential incident consequence.The NextGen has achieved integration with the overarching Homeland Security Presidential Directives and their subsidiary documents.Aviation Security Stakeholder Involvement.NextGen Stakeholder Involvement fosters industry,federal,and local partnerships with clearly defined roles and responsibilities for prevention,protection,response and mitigation,and recovery operations at strategic,operational,and tactical levels.Collaborative decision-making contributes to a positive security culture.Rapid decision-making based on shared situational awareness is achieved through advanced communication and information sharing systems.Integrated Risk Management.NextGen IRM includes prognostic tools,models,and simulations at the strategic,operational,and tactical level to support all stakeholder decisionmakers and managers in the grafting of cost-effective“best practices”into the design,acquisition,deployment,and operation of aviation security system assets and infrastructures.Knowledge bases concerning threats,vulnerabilities,and practices are tailored to user profiles that proactively determine need/authorization to know.Aviation Security Implementation.NextGen Implementation capabilities encompass a robust set of strategic,tactical,and operational capabilities and services focused on prevention,protection,response and mitigation,and recovery initiatives that are undertaken by various stakeholder organizations.Aviation Security Assurance.NextGen Assurance capabilities include various certification programs administered by federal,industry,and local stakeholders,surveillance and evaluation activities administered and performed by various stakeholders,enforcement inspections performed by federal stakeholders and local stakeholders,and incident investigations performed and administered by various stakeholders.CONCEPT OF OPERATIONS FOR THE NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)SECURITY ANNEX VERSION 2.0 3 JOINT PLANNING AND DEVELOPMENT OFFICE 1.3 NEXTGEN SECURITY OPERATIONAL IMPROVEMENTS SUMMARY Table C-1 lists the major operational improvements that the NextGen Security system provides compared with the NAS of 2006.Table C-1.Significant Security Transformations Significant Transformation 2006 Current Capability 2025 NextGen Capability Integrated Risk Management Static facility or passenger risk assessments Dynamic risk assessment management process produces real-time risk profiles for aviation facilities and flight object.Checkpoint Operations Responsibilities US Government(USG)/TSA responsible for policy development and execution Government,airport operator,or third-party decentralized while observing common standards developed by USG Credentialing/Authentication Badges,background checks(mainly manual based)Biometric credentials with 1-second authentication at access or screening checkpoints Baggage Screening Technology Large footprint baggage screening devicesmost not integrated with baggage systemonly detect explosives.Separate boxes for chemical,biological,radiological,nuclear,and explosives(CBRNE)sensors CBRNE detection systems incorporating sensor fusion,with a range of sizes and throughput capacity from high throughput in-line systems to smaller units for remote screening,local airports.Some are small,lightweight,and portable devices that can screen bags from standoff distances.Passenger Screening Metal detector-based,relatively large explosive trace detection(ETD)air sampling equipment/portals Sensor arrays deployable throughout terminal enabling rapid movement of passengers through virtually invisible screening pointsfast and efficientcentralized monitoring center reduces security footprint at checkpoint.Advanced behavior profile recognition(BPR)procedures.Biological threat and disease detection and assessment.Chemical,Biological,Radiological,Nuclear,Explosives(CBRNE)Detection Only deployed at a few high-threat locations(typically not airports)Deployable for all airport screening operations,link by network-enabled infrastructure(NEI)to airport operations,law enforcement and national network Security System Deployability Expensive slow installation Rapid deployable units for low-capacity,temporary and intermittent screening locations integrated with other airport customer service functions OPERATIONAL CONCEPT FOR THE SECURITY ANNEX NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)JOINT PLANNING AND DEVELOPMENT OFFICE 4 VERSION 2.0 Table C-2.Significant Security Transformations(continued)Significant Transformation 2006 Current Capability 2025 NextGen Capability Screening Checkpoint Location In airport terminals between public area and“sterile”area Remote Terminal Security Screening(RTSS)enabling all or portion of security screening to be conducted off-airport.Man Portable Air Defense System(MANPADS)(e.g.,shoulder-fired missiles,lasers,electromagnetic pulse EMP)Detection and Defeat Perimeter and adjacent jurisdiction observation by law enforcement officers(LEO)Onboard aircraft leveraged safety modifications,supplemented by ground-based and procedural systems Commercial Spaceport Licensing with no commercial passenger service Passenger screening and bilateral agreements for international reentry of hypersonic vehicles Security Relevant Information Disparate,stand-alone systems;no easy transfer of data.Network-centric information access with“smart”applications proficient in data-mining and pre-analysis of large amounts of data.Decision support applications assist the security operations center and other security analysts.Cargo Screening Technology Small percentage of cargo being screened for explosive threats Most cargo undergoes paper-based documentation(known shipper)All air cargo items not packed in sterile area and securely conveyed to aircraft are screened for CBRNE.CONCEPT OF OPERATIONS FOR THE NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)SECURITY ANNEX VERSION 2.0 5 JOINT PLANNING AND DEVELOPMENT OFFICE 2 INTEGRATED RISK MANAGEMENT Risk management is the ongoing process of understanding the threats,consequences,and vulnerabilities that can be exploited by an adversary to determine which actions can provide the greatest total risk reduction for the least impact on limited resources.Risk management is continuous;it is conducted from the strategic to the tactical levels.In this section,the strategic aspects of the IRM process are described.The following sections briefly mention the relevant tactical aspects of IRM for that particular threat vector.The NextGen layered,adaptive securitys IRM capability is an overall federated risk assessment and risk mitigation framework for guiding multiple security service enterprises to assist in making decisions,allocating resources,and taking actions under conditions of uncertainty.This framework is a planning methodology that outlines the process for setting security goals through a)prevention,b)protection,c)response and mitigation,and d)recovery.It derives its importance from the following needs:Understand the spectrum of threats that could be mounted against the NextGen.Identify the vulnerabilities that can be exploited by an adversary.Evaluate and prioritize assets and activities to be protected from attack.Determine which protective actions can provide the greatest total risk reduction for the least impact on limited resources.Provide the most focused and adaptive security measures to reduce the impact of security systems and procedures on air transportation.IRM is characterized by a specific and consistent terminology to describe its various aspects.Threats are the likelihood of a terrorist attack on a particular asset.Vulnerabilities are weaknesses in the design,implementation,or operation of an asset or system that can be exploited by an adversary or disrupted by a natural disaster.Consequences are the result of an attack on infrastructure assets reflecting level,duration and nature.Risks are measures of potential harm that encompasses threat,vulnerability,and consequence.The assessment of risks provides a prioritized list of vulnerabilities and potential mitigation strategies.The terrorist has freedom to choose targets and modes of attack;therefore,the NextGen Security system must develop(but not necessarily universally deploy)operationally feasible mitigations to as many potential threats as possible.Because of limited resources,mitigation requiring substantial investment(e.g.,system cost or infrastructure intensive)is applied(deployed)in the order of risk level.For example,external attacks on aircraft may be an issue at some airports requiring mitigation.This does not mean that General Aviation airports will have or need such systems.Another way to stretch resources is through technical advances in sensor design and fusion and in cost efficiencies typical of information processing system upgrades.With the development of low-cost CBRNE sensors for low-volume operations,it is possible to conduct screening in 2025 at sites that would have been economically infeasible in 2006 for a given risk profile(thus permitting many more airports to provide commercial service).This does not mean that all noncommercial operations need to screen passengers or cargo for flights posing below threshold risk levels.Many flight operations occur far from major metropolitan areas or national security restricted areas.However,flight operations to sensitive areas need to make adjustments to reduce their risk profile.OPERATIONAL CONCEPT FOR THE SECURITY ANNEX NEXT GENERATION AIR TRANSPORTATION SYSTEM(NEXTGEN)JOINT PLANNING AND DEVELOPMENT OFFICE 6 VERSION 2.0 In summary,it is essential to remember that the security system responses and procedures throughout the NextGen are applied based on the risk profile of each flight object and airport facility.Facilities or flights that do not adopt particular security processes may still operate in the NextGen but may need to observe some restrictions depending on the given risk profile
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