containerp1GB 22/03/05 15:05 Page 1 EUROPEAN CONFERENCE OF MINISTERS OF TRANSPORT CONTAINER TRANSPORT SECURITY ACROSS MODES ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT The OECD is a unique forum where the governments of 30 democracies work together to address the economic, social and environmental challenges of globalisation. The OECD is also at the forefront of efforts to understand and to help governments respond to new developments and concerns, such as corporate governance, the information economy and the challenges of an ageing population. The Organisation provides a setting where governments can compare policy experiences, seek answers to common problems, identify good practice and work to co-ordinate domestic and international policies. The OECD member countries are: Australia, Austria, Belgium, Canada, the Czech Republic, Denmark, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Japan, Korea, Luxembourg, Mexico, the Netherlands, New Zealand, Norway, Poland, Portugal, the Slovak Republic, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The Commission of the European Communities takes part in the work of the OECD. OECD Publishing disseminates widely the results of the Organisation’s statistics gathering and research on economic, social and environmental issues, as well as the conventions, guidelines and standards agreed by its members. This work is published on the responsibility of the Secretary-General of the OECD. The opinions expressed and arguments employed herein do not necessarily reflect the official views of the Organisation or of the governments of its member countries. © OECD 2005 No reproduction, copy, transmission or translation of this publication may be made without written permission. Applications should be sent to OECD Publishing: [email protected] or by fax (33 1) 45 24 13 91. Permission to photocopy a portion of this work should be addressed to the Centre français d'exploitation du droit de copie, 20, rue des Grands-Augustins, 75006 Paris, France ([email protected]). EUROPEAN CONFERENCE OF MINISTERS OF TRANSPORT (ECMT) The European Conference of Ministers of Transport (ECMT) is an inter-governmental organisation established by a Protocol signed in Brussels on 17 October 1953. It comprises the Ministers of Transport of 43 full Member countries: Albania, Armenia, Austria, Azerbaijan, Belarus, Belgium, Bosnia-Herzegovina, Bulgaria, Croatia, the Czech Republic, Denmark, Estonia, Finland, France, FRY Macedonia, Georgia, Germany, Greece, Hungary, Iceland, Ireland, Italy, Latvia, Liechtenstein, Lithuania, Luxembourg, Malta, Moldova, Netherlands, Norway, Poland, Portugal, Romania, Russia, Serbia and Montenegro, Slovakia, Slovenia, Spain, Sweden, Switzerland, Turkey, Ukraine and the United Kingdom. There are seven Associate member countries (Australia, Canada, Japan, Korea, Mexico, New Zealand and the United States) and one Observer country (Morocco). The ECMT is a forum in which Ministers responsible for transport, and more specifically the inland transport sector, can co-operate on policy. Within this forum, Ministers can openly discuss current problems and agree upon joint approaches aimed at improving the utilization and at ensuring the rational development of European transport systems of international importance. At present, ECMT has a dual role. On one hand it helps to create an integrated transport system throughout the enlarged Europe that is economically efficient and meets environmental and safety standards. In order to achieve this, it is important for ECMT to help build a bridge between the European Union and the rest of the European continent at a political level. On the other hand, ECMT's mission is also to develop reflections on long-term trends in the transport sector and to study the implications for the sector of increased globalisation. The activities in this regard have recently been reinforced by the setting up of a New Joint OECD/ECMT Transport Research Centre. Also available in French under the title: La sûreté du transport intermodal de conteneurs Further information about the ECMT is available on Internet at the following address: www.oecd.org/cem © ECMT 2005 – ECMT Publications are distributed by: OECD Publications Service, 2, rue André Pascal, 75775 PARIS CEDEX 16, France FOREWORD Foreword The events of 11 September 2001 highlighted the vulnerability of many aspects of the transport system, in particular the weaknesses in links among modes along the transport chain and the need for a coordinated security approach among modes. A new wave of heightened security measures has emerged to address security weaknesses in the transport system since 2001. These measures are designed to ensure maximum protection from terrorist activity and are built on an existing security framework established over many years. These efforts, however, have mostly been concentrated within individual modes. It is also increasingly accepted that in the transport of freight, specific weaknesses may exist in the linkage points between modes along the transport chain. In this context, OECD and ECMT joined forces to examine the security of the container transport chain, responding to mandates of both the ECMT Council of Ministers in Bucharest in May 2002 and the OECD Maritime Transport Committee in Paris in July 2002. This study highlights vulnerabilities in both inland and maritime container transport. Maritime containers are the focal point as opposed to other types of containers because they are the most numerous container type in international trade, are truly intermodal, and are ubiquitous. In addition, the study specifically focuses on the potential threat of containers being used by terrorists as a delivery vehicle for chemical, biological, radiological or nuclear (CBRN) weapons, as this scenario largely underpins the national and international policy agendas at this time. The findings of this report were agreed by ECMT Ministers at their Ljubljana Council and the OECD Maritime Transport Committee in Paris in May 2004. CONTAINER TRANSPORT SECURITY ACROSS MODES – ISBN 92-821-0331-5 – © ECMT 2005 5 FOREWORD Acknowledgements. OECD and ECMT would like to sincerely thank the governments of OECD and ECMT member countries, representatives of industry and of international organisations who provided helpful input to this report. Special thanks are extended to the following entities for their contributions to the report: Alliance of Japan Cargo Inspection Associations (AJCIA), Bureau International des Containers (BIC), Commission Centrale pour la navigation du Rhin (CCNR), European Commission (EC), CLECAT, European Shippers Council (ESC), International Chamber of Shipping (ICS), International Road Transport Union (IRU), Japan International Freight Forwarders Association (JIFFA), International Union of Railways (UIC), International Union of combined Road-Rail transport companies (UIRR), United Nations Economic Commission for Europe (UN-ECE), World Customs Organisation (WCO) and the World Shipping Council (WSC). Philippe Crist of OECD, and Mary Crass and Masatoshi Miyake of ECMT drafted the report. 6 CONTAINER TRANSPORT SECURITY ACROSS MODES – ISBN 92-821-0331-5 – © ECMT 2005 TABLE OF CONTENTS Table of Contents Glossary. 9 Executive Summary . 11 Chapter 1. Introduction . 17 1. Context and mandates for this report . 18 2. Why the focus on terrorism and the container transport system? . 19 3. Transport authorities’ role in container security . 20 4. Objective and structure of this report. 21 Notes . 22 Chapter 2. The Container Transport Chain . 23 1. General background on containers . 24 2. Security issues in the container transport chain . 25 Notes . 32 Chapter 3. Threat Assessment . 35 1. Risk management and modelling . 37 2. Factors to be considered in a container security risk management approach . 38 3. What is the nature of the CBRN threat? . 39 4. Possible techniques used by terrorists . 42 Notes . 43 Chapter 4. Container Security Measures: Overview and Analysis . 45 1. Scanning . 47 2. Securing container integrity. 51 3. Securing the container environment . 58 4. Container tracking . 61 5. Trade documentation and information . 63 Notes . 71 Chapter 5. Conclusions: Transport Authorities, Container Security and Terrorism. 75 1. Transport authorities must address weak links of the container transport chain . 76 2. More specific threat assessments involving Transport authorities needed . 77 3. Security measures must be adapted to the threat . 77 4. Policy levers at the disposal of Transport authorities. 78 5. Guiding principles to secure the container transport chain . 78 6. Specific recommendations to inland Transport and Maritime authorities. 79 Notes . 80 CONTAINER TRANSPORT SECURITY ACROSS MODES – ISBN 92-821-0331-5 – © ECMT 2005 7 TABLE OF CONTENTS Annex A. Description of the Container Transport Chain . 83 Annex B. International, National and Industry Container Security-Related Initiatives . 115 Bibliography . 123 List of Box 3.1. Chemical, Biological, Radiological and Nuclear (CBRN) weapons: factors to be considered for container security . 40 List of Tables 2.1. Actors in the container transport chain . 28 3.1. Risk assessment matrix . 38 4.1. Technology characteristics. 50 A.1. Modal split in 2000 – World freight transport . 89 A.2. Distance classes by mode of transport. 89 A.3. Number of enterprises by mode of transport 2000. 90 A.4. Types of contracts . 105 A.5. Information typically included