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CHAPTER 1
Introduction to USFS
Characteristics
The U.S. Ferry System (USFS) is a vital component of the nation's multimodal transportation
network, with the capacity to quickly and efficiently move a large number of people and goods
across the nation's waterways. In some parts of the country, the USFS is the only means of trans-
port and, as such, is an indispensable component of the area's infrastructure and economy. The
USFS is also depended upon in times of crisis for back-up transportation when other modes of
transportation are disrupted, for evacuations, and for the delivery of emergency supplies and
personnel. The ferry system in San Francisco Bay performed all of these functions in response to
the Loma Prieta earthquake in October 1989, and the New York City ferry system did the same
in response to the events of September 11, 2001.
The ferry service system across the United States is extensive. Ferries operate in 43 states and
territories, providing service on over 350 different ferry routes. Each year, the nation's ferries
carry more than 113 million passengers and 32 million vehicles over numerous waterways.1 The
same characteristics that make the system desirable (i.e., the wide extent of service and the pop-
ularity of use) also make it a potential target and a potential instrument of a terrorist act. The
appeal of the USFS to terrorists may be both in the potential use of vessels and facilities as orig-
inal threat sites and in helping to spread a threat in the form of released contaminants. Opera-
tional characteristics of the system, such as the need to move large numbers of people on a tight
schedule, increase the system's vulnerability and present unique security challenges. The highest-
capacity ferry systems rank high in relative risk of attack, partly because of the potential conse-
quences of an attack in a small area with a large number of people. This consideration has been
important in the development of related security regulations. Furthermore, one of the guiding
principles for the identification of critical national infrastructure is the assurance of public safety,
public confidence, and services,2 all of which are represented in high-capacity ferry systems.
1.1 Objective
The objective of Part II is to present a USFS characterization that will enhance the under-
standing, effective adoption, and implementation of security measures. In addition, Part II pro-
vides security-related statistics that were used in the development of the guide (Part I) and the
accompanying Excel tool. Part II represents work completed under Tasks 1, 2, and 3 of TCRP
Project J-10H. Part I is the final product, the resulting guide to assist ferry system operators in
the evaluation of security measures to meet security and operational goals.
1.2 Organization of Part II
Chapter 1 provides a general background of the USFS. Chapters 2 and 3 characterize vessels
and terminals, respectively, by categories that have security implications. Chapter 4 summarizes
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