DEPARTMENT OF HOMELAND SECURITY

SMALL VESSEL

SECURITY STRATEGY

APRIL 2008

FOREWORD

Since the terrorist attacks of September 11, 2001, maritime security efforts have focused primarily on large commercial vessels, cargoes, and crew. Efforts to address the small vessel1 environment have largely been limited to traditional safety and basic law enforcement concerns. Small vessels are, however, readily vulnerable to potential exploitation by terrorists, smugglers of weapons of mass destruction (WMDs), narcotics, aliens, and other   contraband,   and   other   criminals.   Small vessels  have  also  been  successfully  employed overseas by terrorists to deliver Waterborne Improvised Explosive Devices (WBIEDs).

Law enforcement agencies face the challenge of distinguishing between the vast number of legitimate vessel operators and the relatively few individuals engaged in illicit activities. The challenge is immense, as it involves nearly 13 million registered U.S. recreational vessels,2 82,000 fishing vessels, and 100,000 other commercial small vessels. On any given day, a considerable number of these boats share waterways with commercial and military traffic, operating at hundreds of U.S. ports and in the immediate vicinity of critical maritime infrastructure, including bridges and waterfront facilities such as petrochemical plants. More information concerning small vessels is needed to improve the proper assessment of the risk posed by these vessels. The challenge is to balance the collection of requisite information necessary for proper assessment of risk posed by these vessels, with the freedom of the seas expected by the small boating community.

• Small vessels are characterized as any watercraft regardless of method of propulsion, less than 300 gross Small vessels can include commercial fishing vessels, recreational boats and yachts, towing vessels, uninspected passenger vessels, or any other commercial vessels involved in foreign or

U.S. voyages.

• CG 2006 boater statistics compiled from state boater registration reports (does not include unregistered watercraft, which, when combined with registered boats, is estimated at 17 million total S. watercraft).

Additionally, a significant number of these craft operate internationally, especially in regions such as the Great Lakes, the Gulf of Mexico, and the Caribbean Sea. During Fiscal Year 2006, only 70,000 boater foreign arrivals were recorded in the

U.S. Customs and Border Protection (CBP) Pleasure Boat Reporting System (PBRS), based on boater self-reporting. Conservative estimates suggest that these reporting figures represent only a fraction of the actual international boater traffic, especially given the ease with which boaters operate in these waters.

Currently, the U.S. Government has an incomplete knowledge of the international  recreational boating public, their travel patterns, and the facilities they use. Couple this with the limited information available regarding fishing fleets and the multitude of small commercial vessels operating in or near U.S. waters and the complexity of the issue becomes obvious.

Hence, there is a clear need to close security gaps and enhance the small vessel security environment. The Small Vessel Security Strategy (SVSS) addresses these concerns and provides a coherent framework to improve maritime security and safety. It envisions a coordinated effort of Federal, state, local, and Tribal authorities, together with international partners, private industry, and recreational users of the waterways.