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### Viewing cable 09MONTREAL115, RESULTS OF ICAO'S TWENTIETH AVIATION SECURITY PANEL MEETING

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
09MONTREAL115 | 2009-04-07 18:06 | 2011-04-28 00:12 | UNCLASSIFIED | Consulate Montreal

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    INFO  LOG-00   AF-00    AID-00   A-00     ACQ-00   CEA-01   CIAE-00
          COME-00  CTME-00  INL-00   DODE-00  DOEE-00  ITCE-00  WHA-00
          DS-00    EAP-00   DHSE-00  EXME-00  EUR-00   OIGO-00  E-00
          FBIE-00  UTED-00  VCI-00   FRB-00   H-00     TEDE-00  INR-00
          IO-00    LAB-01   L-00     MOFM-00  MOF-00   VCIE-00  NEA-00
          DCP-00   NSAE-00  ISN-00   NSCE-00  OIC-00   OIG-00   OMB-00
          NIMA-00  EPAU-00  MCC-00   PER-00   GIWI-00  SCT-00   ISNE-00
          DOHS-00  SP-00    SSO-00   SS-00    STR-00   TRSE-00  NCTC-00
          ASDS-00  FMP-00   CBP-00   BBG-00   EPAE-00  IIP-00   SCRS-00
          DSCC-00  PRM-00   DRL-00   G-00     SCA-00   CARC-00  SAS-00
          FA-00    SWCI-00    /002W
                      ------------------4F491D  071843Z /38

    R 071847Z APR 09
    FM AMCONSUL MONTREAL
    TO SECSTATE WASHDC 0207
    DEPT OF HOMELAND SECURITY WASHINGTON DC
    TSA HQ WASHINGTON DC
    INFO DEPT OF TRANSPORTATION WASHINGTON DC
    FAA NATIONAL HQ WASHINGTON DC
    USEU BRUSSELS 0015
    AMEMBASSY LONDON
    AMEMBASSY OTTAWA
    AMEMBASSY MEXICO
    AMEMBASSY DAKAR
    AMEMBASSY ROME
    AMEMBASSY CANBERRA
    AMEMBASSY NEW DELHI
    AMEMBASSY TOKYO
    AMEMBASSY BUENOS AIRES
    AMEMBASSY RIYADH
    AMEMBASSY SINGAPORE
    AMEMBASSY BERLIN
    AMEMBASSY BRASILIA
    AMEMBASSY DOHA
    AMCONSUL MONTREAL

` `

    UNCLAS MONTREAL 000115

    PASS TO ALL DHS/FAA REPRESENTATIVES
    DOT FOR OST

    E.O. 12958: N/A
    TAGS: EAIR ECON PREL PTER ICAO XX
    SUBJECT: RESULTS OF ICAO'S TWENTIETH AVIATION SECURITY PANEL MEETING

    ¶1.  Summary. Transportation Security Administration officials
    led the U.S. delegation to the International Civil Aviation
    Organization's (ICAO) Twentieth Aviation Security Panel of
    Experts (AVSECP) meeting and presented two U.S. working paper
    proposals and an information paper on the supply chain approach
    to air cargo security, introducing unpredictability into an
    aviation security regime, as well as a report from the first
    meeting of a U.S.-chaired New and Emerging Threats Working
    Group.   The U.S. delegation gained wide support among panel
    members for U.S. proposals, notably for the concepts of supply
    chain security and unpredictability as a supplemental tool in
    enhancing baseline security in the airport environment.    End
    Summary.

    BACKGROUND

    ¶2.  The AVSECP, an expert advisory body established by ICAO, is
    responsible for developing new aviation security Standards and
    Recommended Practices (SARPs), among other duties. The Panel
    submits recommendations the ICAO Council, which may adopt and
    incorporate the SARPs into Security Annex 17 to the Convention
    on International Civil Aviation (Chicago Convention) governing
    international aviation security. The Twentieth Meeting of the
    Aviation Security Panel (AVSECP/20) was held in Montreal from 30
    March - 3 April 2009. Cindy Farkus, the Transportation Security
    Administration's Assistant Administrator for the Office of
    Global Strategies, led the U.S. delegation.

    U.S. PROPOSALS

    ¶3.  The United States received universal support and positive
    feedback on its two working papers and one information paper.
    All will be referred to the ICAO Council for further
    consideration and approval.  The U.S. papers can be accessed on
    ICAO's secure website.

    ¶4.    Report of the New and Emerging Threats Working Group.
    This paper detailed the process, discussion, and outcomes of the
    first meeting of ICAO's New and Emerging Threats Working Group
    (NETWG) held from 6 to 8 January 2009 in Washington, D.C.,
    including experts from eight countries and ICAO staff.
    Discussions were focused on the use of risk assessment and
    management models for the process of analyzing the threats (both
    nature and likelihood) and civil aviation's vulnerabilities to
    those threats, i.e. the risk as a means of identifying gaps in
    the mitigating measures in Annex 17 -- Security. The group also
    discussed in detail a consolidated list of threats passed, on a
    restricted basis, to the working group by the G8 Roma-Lyon
    Transportation Security Subgroup. Through small, focused
    discussion groups, the NETWG reached consensus on four
    categories of threats: artfully concealed weapons; person-borne
    improvised explosive devices; vehicle-borne improvised
    explosives devices; and air cargo. In sum, the group made
    significant progress in identifying potential gaps in existing
    measures and providing recommendations for consideration by the
    panel.

    ¶5.  The NETWG report group was passed to the Amendment 12
    working group, which is tasked with identifying and proposing
    language for new Standards and Recommended Practices to be
    included in Amendment 12 to Annex 17 -- Security.  The panel
    agreed to allow a change in the name of the group in order to
    address the notion of `evolving' threats.  The next NETWG
    meeting is tentatively scheduled for the first week in June 2009
    and will be hosted by the co-chair, the United Kingdom.   The
    report generated positive comments regarding the importance of a
    proactive approach to threats rather than a reactive one and
    several states mentioned their concern over cyber-threats.  The
    UK will ask its own experts and those from a recently convened
    EC workshop on cyber-threats (nfi) to make a presentation during
    the next working group meeting.

    ¶6.  Air Cargo Supply Chain Management.  This paper outlined the
    elements and benefits of supply chain screening and "chain of
    custody" requirements for securing air cargo, which emphasizes
    effective security management of the entire air cargo supply
    chain. The supply chain approach to air cargo security has been
    implemented successfully in the Republic of Ireland and the
    United Kingdom (UK); is under consideration by Canada and the
    European Commission as a way of increasing air cargo security;
    and is similar to an initiative undertaken by the International
    Air Transport Association, referred to as "Secure Freight." The
    United States has developed a system, modeled after those in
    Ireland and the UK, referred to as the Certified Cargo Screening
    Program, to provide a mechanism by which industry may achieve
    100 percent screening without impeding the flow of commerce.
    Benefits include decreased air carrier delays and expedited
    supply chain flow; the ability to build bulk configurations that
    can be tendered without re-screening; the ability to ship
    certain cargo types without potential invasive screening later
    in the chain; and the ability to maintain in-house packaging
    integrity.

    ¶7.  The air cargo working paper received positive responses from
    Australia, the UK, Mexico, Singapore, Switzerland, Saudi Arabia,
    Italy, Senegal, Japan, Argentina, and India.  Nearly all
    expressed support for supply chain security principles and
    highlighted similar efforts in their own countries.  The UK
    noted that this was one area in aviation security where the
    international community was implementing measures "ahead of the
    game" instead of reacting to events.    Cautionary messages from
    panel members centered on discouraging "unilateral measures" and
    imposing 100 percent physical screening requirements.  The panel
    then agreed to add elements of the U.S. paper to guidance
    material, referred the matter to the Amendment 12 working group
    to explore ways to incorporate supply chain elements to SARPs,
    and urged the creation of a joint Secretariat study group on the
    facilitation/aviation security aspects of the supply chain.  The
    final panel report further reflected its endorsement of supply
    chain security management and that the concept should be
    "considered for inclusion in Annex 17."

    ¶8.  Building Unpredictability into an Aviation Security Regime.
    This information paper offered the premise that civil aviation
    faces an adaptive and motivated enemy whose choice of target and
    attack method depends significantly on the perceived and actual
    vulnerability of the security system. Terrorists can analyze a
    static system easily by identifying where, how, and when
    resources are used, thereby allowing them a greater opportunity
    to identify weaknesses, circumvent the system, and exploit
    vulnerabilities. By implementing various security measures
    within existing security layers in an unpredictable and random
    approach, terrorists' plans can be frustrated, attacks may be
    deterred, and countermeasures can be deployed flexibly and
    quickly in response to emerging threats.

    ¶9.  Qatar, Mexico, Canada, Switzerland, Brazil, Germany,
    Singapore and Saudi Arabia intervened to express their
    appreciation for the working paper and the concept of
    introducing unpredictability into an aviation security regime.
    Mexico said that it was a valuable tool for states with limited
    resources.   Saudi Arabia suggested it be addressed as a
    "strategic objective" during a possible future international
    aviation conference and Canada asked that the Amendment 12
    working group consider adding language in Annex 17 that reflects
    the principle and benefits of the approach.  Some debate
    centered around cautioning against reducing baseline security in
    order to add in unpredictable elements and around the idea of
    maintaining passenger comfort by retaining common practices from
    one destination to another.  In the end, the chair summarized by
    saying that unpredictability was a key element in the evolution
    from excelling at screening to developing innovative and new
    measures to thwart terrorists.

    OTHER KEY ISSUES

    ¶10.   Other objectives met at this meeting included:

      a)  Encouraging threat-related information sharing among
    Contracting States;

      b)  Supporting a proposal to establish a Technological Working
    Group to advise the Panel on security-related technologies for
    liquids, aerosols and gels and other threats;

      c)  Urging the creation of a temporary working group to
    develop a revised security plan of action       that will take
    global security in a new and focused direction;

      d)  Urging greater transparency in the ICAO Universal Security
    Audit Process (USAP);

      f)  Encouraging an exchange of information between Donor
    States in the provision of assistance to       developing
    nations to avoid duplication of effort and wasted resources;

      g)  Monitoring discussions related to a possible requirement
    for 100 percent staff screening and;

      h)  Conducting bilateral meetings with member states and
    participating in sidebar discussions.

    ¶11.  Coordinating Assistance to States (Partner/Donor Meeting-).
    ICAO staff provided an overview of a new ICAO coordinated
    development database of assistance programs offered worldwide
    and especially in Africa.   ICAO's Implementation Support and
    Development Branch encouraged States to send in data regarding
    training and assistance programs and nominations for subject
    matter experts to conduct training worldwide.   ICAO previewed
    its new "Go Team"  concept which mirrors TSA's Aviation Security
    Sustainable International Standards Teams program (ASSIST),
    which sends a group of veteran security experts to collaborate
    with local security officials to address several security needs
    at one time (following an initial security assessment of
    training needs, equipment, current aviation programs, and
    aviation security legislation). The teams work to build aviation
    security capacity, practices, and sustainable institutions
    through local alliances.

    CONCLUSION

    ¶12.  The U.S. delegation achieved its goals of gaining
    international support for its three paper proposals.     The
    U.S. looks forward to future collaborative and proactive work
    with the aviation security panel, its working groups and
    contracting states, to identify new, evolving and emerging
    threats, share threat information, increase transparency in the
    universal security audit program, and strengthen Annex 17 and
    guidance material to include the concepts of supply chain
    security in air cargo and unpredictability, among other
    objectives.

    ¶13.  We greatly appreciate Posts' assistance in this effort and
    their ongoing support for international civil aviation matters.
    Please direct questions or requests for additional information
    pertaining to this cable to  Jillene.MacCreery@dhs.gov (tel.: +1
    571-227-2244).

    FAUX-GABLE MCCLENNY

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