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3 National Commission on Terrorist Attacks Upon the United States. The 9/11 Commission Report. New York: W.W. Norton & Co., p. 391.
4 Federal Aviation Administration. “Washington, DC Metropolitan Area Special Flight Rules Area; Proposed Rule.” Federal Register(70) 149 (August 4, 2005), p. 43251.
vulnerabilities in aviation security. In this context, GA airports and aircraft are viewed as comparatively soft targets that may be exploited by terrorists because of known weaknesses and vulnerabilities. This view focuses primarily on the vulnerability of general aviation and does not systematically assess risk with regard to the interaction between these vulnerabilities, the threat posed by GA aircraft, and the potential consequences of a terrorist attack using GA aircraft . In fact, there is considerable debate over the threat element of the risk equation for GA operations. While GA advocates argue that the threat is minimal, some policymakers and security experts have expressed concern that, to the contrary, GA may pose a significant security threat. Part of the difficulty in resolving this debate is the diversity of operations and aircraft types that make up GA, making a single threat assessment for all sectors of the GA industry arguably inappropriate. To put the threat into context, the following discussion provides an overview of the variety of aircraft types, flight operations, and airport characteristics that make up GA. This discussion is followed by an analysis of the existing vulnerabilities in GA security, the terrorist threat posed by GA aircraft, and how these elements factor into a risk-based assessment of GA security. Based on this analysis, possible approaches to GA security are discussed and ongoing initiatives and legislative proposals currently under consideration are reviewed.
What is General Aviation?
In a sense general aviation (GA) is a catch-all phrase that encompasses about 57% of all civil aviation activity within the United States, measured in terms of overall flight hours.5 Therefore, it is often easier to frame general aviation in terms of what it is not rather than what it is. In this context, GA refers to most aviation operations not conducted by scheduled passenger airlines, large air cargo operators, or the military. To add to the confusion, commercial charter operations are often grouped in with GA and non-revenue flights, such as maintenance test flights and repositioning flights conducted by passenger and cargo airlines, are usually operated under regulations often regarded as “general aviation” flight rules.6 Thus, virtually all flight activity outside the scope of scheduled passenger or cargo air carrier flights and military operations may be considered GA. This encompasses a wide variety of aircraft types and flight operations. Table 1 shows the distribution of aircraft and flight operations formally categorized as GA.
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Securing General Aviation(4)
