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The relationship between the FAA and airlines filters into a system of assessing fines, however, that industry experts say gives rise to habitual offenders. Writing a check for the fines can often be cheaper than the cost for the corrective measures to improve security, analysts say.

In 1999 alone, the last full year of records, a CNN database analysis found Delta Air Lines was cited for 729 security violations; United, 661 and American, 555. In the two-year 1997-98 period, the three airlines were cited for a total of 3,552 violations.

"My criticism of the FAA is these breaches have existed over and over again," said Michael Pangia, former FAA chief trial lawyer.

Pangia said "it's a common practice" for the airlines and FAA to negotiate fines down to as low as 10 cents on a dollar -- and often times agreeing on a price for a bulk of fines.

"It's obvious the airlines don't want these breaches, but it is a whole lot easier to pay the fines," Pangia said. "And the FAA has thought they are doing their job, because they are fining people. But when they keep levying the same fines year after year after year, they ought to wake up and say there is something wrong with this system."
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