[Federal Register Volume 63, Number 206 (Monday, October 26, 1998)]
[Rules and Regulations]
[Pages 57056-57059]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-28525]


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SOCIAL SECURITY ADMINISTRATION

20 CFR Part 422

RIN 0960-AE66


Listening-In to or Recording Telephone Conversations

AGENCY: Social Security Administration (SSA).

ACTION: Final rules.

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SUMMARY: These final rules add regulations relating to the use of SSA's 
telephone lines. In the new regulations, we describe the limited 
circumstances under which SSA employees may listen-in to or record 
telephone conversations and the procedures we will follow in connection 
with this activity.

EFFECTIVE DATE: These final regulations are effective November 25, 
1998.

FOR FURTHER INFORMATION CONTACT: Lois Berg, Legal Assistant, Office of 
Process and Innovation Management, Social Security Administration, 
L2109 West Low Rise Building, 6401 Security Boulevard, Baltimore, MD 
21235, (410) 965-1713 or TTY (410) 966-5609. For information on 
eligibility, claiming benefits, or coverage of earnings, call our 
national toll-free number, 1-800-772-1213 or TTY 1-800-325-0778.

SUPPLEMENTARY INFORMATION:

Background

    On August 8, 1996, the Federal Information Resources Management 
Regulation (FIRMR) was repealed. A provision of the FIRMR, section 201-
21.603, related to listening-in to or recording telephone 
conversations. As a result of the repeal of the FIRMR, we are now 
promulgating our own regulations describing the limited circumstances 
under which SSA employees may listen-in to or record telephone 
conversations. These circumstances include law enforcement/national 
security, public safety, public service monitoring, and all-party 
consent situations. We also describe in these final regulations the 
procedures we will follow in determining the circumstances in which we 
will permit listening-in to or recording telephone conversations, who 
will listen-in to or record the conversations, and other policies and 
procedures which we will follow in connection with this activity.
    SSA is committed to providing the public with the highest level of 
service by ensuring that information provided by SSA employees is 
delivered accurately and courteously. To ensure that commitment, we 
conduct monitoring of telephone calls over various designated SSA 
telecommunications lines as a training and mentoring tool.
    We believe service observation is necessary to effectively perform 
SSA's mission. Therefore, we also conduct monitoring of telephone 
conversations to provide an objective assessment of SSA's telephone 
accuracy and courtesy. Data obtained through service observation are 
also used to comply with a congressional request that SSA provide 
Congress with information regarding teleservice center service levels 
on a continuing basis. This is done in the agency's Annual Financial 
Statement of Major Performance Measures. SSA's service observation 
activities are valuable to the public, not only because the data 
obtained are used to evaluate the accuracy of SSA's teleservice, but 
also because the service observation findings are used to make 
recommendations for improving teleservice procedures and processes. 
Data obtained through service observation are also used to respond to 
other oversight groups on how well SSA serves the public, for 
corrective action recommendation purposes, and for assisting in agency 
planning and decisionmaking.
    Finally, SSA currently conducts recording of incoming calls on the 
emergency telephone lines assigned to SSA headquarters. We believe the 
recording of emergency calls is in the best interest of public safety 
and agency emergency service.
    The main purpose of these final regulations is to inform the public 
and SSA employees of the circumstances under which SSA will listen-in 
to or record telephone conversations. The final regulations also 
contain language which differs from the repealed FIRMR which prohibited 
the annotating, e.g., writing down, of personal information such as a 
beneficiary's name, Social Security number, etc., when monitoring 
telephone calls. Because SSA has the responsibility to pay benefits 
correctly and to provide the public with accurate information, as well 
as to safeguard the trust funds, the final regulations will allow 
authorized employees to write down personal information obtained when 
listening-in to telephone calls. Annotated information obtained from 
public service monitoring will be used for programmatic or policy 
purposes; e.g., for recontacting individuals to correct or supplement 
information relating to benefits, for assessment of current/proposed 
policies and procedures, or to correct SSA records, etc.

Explanation of Final Regulations

    We are adding a new subpart H to part 422 of our rules which will 
contain regulations relating to the use of SSA's telephone lines. This 
new subpart H contains three sections. In Sec. 422.701, we

[[Page 57057]]

explain the scope and purpose of subpart H. In Sec. 422.705, we explain 
when SSA employees may listen-in to or record telephone conversations. 
Finally, in Sec. 422.710, we describe the procedures we will follow 
when we plan to listen-in to or record telephone calls, who will do it, 
and other policies and procedures which we will follow.

Comments on Notice of Proposed Rulemaking (NPRM)

    On March 11, 1998, we published proposed rules in the Federal 
Register at 63 FR 11856 and provided a 60-day period for interested 
individuals and organizations to comment. We received two letters from 
organizations with comments. Following are summaries of the comments 
and our responses to them.
    Comment: One commenter was of the opinion that the proposed 
regulations would have a chilling effect on the ability of SSA to 
effectively carry out its purpose of serving the public, especially in 
the matter of disability claims.
    Response: SSA has conducted an ongoing evaluation of SSA's 800 
number service since 1989. This evaluation involves the monitoring of 
800 number telephone calls in order to ensure that the public is 
receiving accurate and courteous service. These data are reported to 
Congress each year in the Agency's Annual Financial Statement of Major 
Performance Measures and for training purposes.
    Comment: One of the commenters indicated the use of a recording 
advising claimants that their conversations may be monitored could 
seriously undermine the confidence of the public in the entire system. 
However, the other commenter was pleased that the regulations contained 
language that the Agency will provide notice to the public about SSA 
telephone monitoring.
    Response: To our knowledge, there has been no negative impact 
resulting from SSA's use of an upfront service observation message to 
let 800 number callers know that their calls may be monitored for 
quality assurance purposes.
    Comment: One commenter indicated the regulations presume consent 
when there is none and provide absolutely no protection for employees.
    Response: All callers whose telephone calls have the possibility of 
being monitored for quality assurance purposes receive a message before 
speaking with an SSA representative. If a caller does not wish to 
consent to monitoring, the caller can choose to terminate the call or 
request that the call not be monitored.
    SSA and the American Federation of Government Employees have 
bargained and reached agreement on telephone monitoring practices which 
take place in the Agency. Affected employees are also aware of SSA 
telephone monitoring practices.
    Comment: One commenter questioned the need for regulations that 
permit virtual total discretion in monitoring SSA telephone calls, 
which includes the use of unannounced service observation.
    Response: The anonymity and lack of notice to employees when 
unannounced monitoring is employed provides SSA with an unbiased 
measurement of telephone service. Unannounced monitoring currently 
allows the Agency to provide an objective assessment of SSA's 800 
number accuracy and courtesy which is submitted to Congress in the 
Agency's Annual Financial Statement of Major Performance Measures. 
These data are also used to respond to other oversight groups on how 
well SSA serves the public, for corrective action recommendations 
purposes and to assist in Agency planning and decisionmaking.
    Comment: One commenter indicated the regulations should limit the 
number of people who can monitor telephone calls.
    Response: The number of people assigned to monitor SSA telephone 
calls is a management decision based upon SSA's needs at any given 
time.
    Comment: One commenter was of the opinion that unannounced 
listening to speaker phone conversations is not acceptable.
    Response: SSA agrees that failing to identify all persons listening 
to a speaker phone conversation is discourteous, but courtesy issues 
are not an appropriate subject for these regulations. Moreover, there 
are times when discretion would be used, e.g., on whether to disrupt a 
speaker simply to notify all parties to the conversation that an 
individual who could overhear the conversation entered the area.
    Comment: One commenter indicated SSA should use annotated 
information obtained from service observation only for programmatic and 
policy purposes.
    Response: The regulation language on the use of annotated 
information is appropriate as most annotated information obtained from 
service observation will be used for programmatic or policy purposes.
    Comment: One commenter indicated SSA should commit to taking 
corrective action and eliminate the phrase ``when possible''.
    Response: It is not possible for SSA to commit to taking corrective 
action every time an incorrect action is taken or incorrect information 
is provided which could affect the payment of or eligibility to SSA 
benefits. This is because monitored calls do not always contain 
sufficient identifying information, such as a caller's name, address, 
telephone number and/or Social Security number, to allow corrective 
action to be taken.
    For the reasons given in our responses to the comments on the 
proposed rules, we have not changed the text of the proposed rules. 
Therefore, we are publishing the proposed regulations unchanged as 
final regulations.

Regulatory Procedures

Executive Order 12866

    We have consulted with the Office of Management and Budget (OMB) 
and determined that these final rules do not meet the criteria for a 
significant regulatory action under Executive Order 12866. Thus, they 
were not subject to OMB review.

Regulatory Flexibility Act

    We certify that these final regulations will not have a significant 
economic impact on a substantial number of small entities because they 
affect only individuals. Therefore, a regulatory flexibility analysis 
as provided in the Regulatory Flexibility Act, as amended, is not 
required.

Paperwork Reduction Act

    These final regulations impose no additional reporting or 
recordkeeping requirements necessitating clearance by OMB.

(Catalog of Federal Domestic Assistance Program Nos. 93.773 
Medicare-Hospital Insurance; 93.774 Medicare-Supplementary Medical 
Insurance; 96.001 Social Security-Disability Insurance; 96.002 
Social Security-Retirement Insurance; 96.003 Special Benefits for 
Persons Aged 72 and Over; 96.004 Social Security-Survivors 
Insurance; 96.005 Special Benefits for Disabled Coal Miners; and 
96.006 Supplemental Security Income)

List of Subjects in 20 CFR Part 422

    Administrative practice and procedure, Freedom of information, 
Organization and functions (Government agencies), Reporting and 
recordkeeping requirements, Social security.

    Approved: October 13, 1998.
Kenneth S. Apfel,
Commissioner of Social Security.
    For the reasons set out in the preamble, we are amending part 422 
of chapter III of title 20 of the Code of Federal Regulations as 
follows:

[[Page 57058]]

PART 422--ORGANIZATION AND PROCEDURES

    1. Subpart H is added to Part 422 to read as follows:

Subpart H--Use of SSA Telephone Lines

Sec.
422.701  Scope and purpose.
422.705  When SSA employees may listen-in to or record telephone 
conversations.
422.710  Procedures SSA will follow.

Subpart H--Use of SSA Telephone Lines

    Authority: Secs. 205(a) and 702(a)(5) of the Social Security Act 
(42 U.S.C. 405 and 902(a)(5)).


Sec. 422.701  Scope and purpose.

    The regulations in this subpart describe the limited circumstances 
under which SSA is authorized to listen-in to or record telephone 
conversations. The purpose of this subpart is to inform the public and 
SSA employees of those circumstances and the procedures that SSA will 
follow when conducting telephone service observation activities.


Sec. 422.705  When SSA employees may listen-in to or record telephone 
conversations.

    SSA employees may listen-in to or record telephone conversations on 
SSA telephone lines under the following conditions:
    (a) Law enforcement/national security. When performed for law 
enforcement, foreign intelligence, counterintelligence or 
communications security purposes when determined necessary by the 
Commissioner of Social Security or designee. Such determinations shall 
be in writing and shall be made in accordance with applicable laws, 
regulations and Executive Orders governing such activities. 
Communications security monitoring shall be conducted in accordance 
with procedures approved by the Attorney General. Line identification 
equipment may be installed on SSA telephone lines to assist Federal law 
enforcement officials in investigating threatening telephone calls, 
bomb threats and other criminal activities.
    (b) Public safety. When performed by an SSA employee for public 
safety purposes and when documented by a written determination by the 
Commissioner of Social Security or designee citing the public safety 
needs. The determination shall identify the segment of the public 
needing protection and cite examples of the possible harm from which 
the public requires protection. Use of SSA telephone lines identified 
for reporting emergency and other public safety-related situations will 
be deemed as consent to public safety monitoring and recording. (See 
Sec. 422.710(a)(1))
    (c) Public service monitoring. When performed by an SSA employee 
after the Commissioner of Social Security or designee determines in 
writing that monitoring of such lines is necessary for the purposes of 
measuring or monitoring SSA's performance in the delivery of service to 
the public; or monitoring and improving the integrity, quality and 
utility of service provided to the public. Such monitoring will occur 
only on telephone lines used by employees to provide SSA-related 
information and services to the public. Use of such telephone lines 
will be deemed as consent to public service monitoring. (See 
Sec. 422.710(a)(2) and (c)).
    (d) All-party consent. When performed by an SSA employee with the 
prior consent of all parties for a specific instance. This includes 
telephone conferences, secretarial recordings and other administrative 
practices. The failure to identify all individuals listening to a 
conversation by speaker phone is not prohibited by this or any other 
section.


Sec. 422.710  Procedures SSA will follow.

    SSA component(s) that plan to listen-in to or record telephone 
conversations under Sec. 422.705(b) or (c) shall comply with the 
following procedures.
    (a) Prepare a written certification of need to the Commissioner of 
Social Security or designee at least 30 days before the planned 
operational date. A certification as used in this section means a 
written justification signed by the Deputy Commissioner of the 
requesting SSA component or designee, that specifies general 
information on the following: the operational need for listening-in to 
or recording telephone conversations; the telephone lines and locations 
where monitoring is to be performed; the position titles (or a 
statement about the types) of SSA employees involved in the listening-
in to or recording of telephone conversations; the general operating 
times and an expiration date for the monitoring. This certification of 
need must identify the telephone lines which will be subject to 
monitoring, e.g., SSA 800 number voice and text telephone lines, and 
include current copies of any documentation, analyses, determinations, 
policies and procedures supporting the application, and the name and 
telephone number of a contact person in the SSA component which is 
requesting authority to listen-in to or record telephone conversations.
    (1) When the request involves listening-in to or recording 
telephone conversations for public safety purposes, the requesting 
component head or designee must identify the segment of the public 
needing protection and cite examples of the possible harm from which 
the public requires protection.
    (2) When the request involves listening-in to or recording 
telephone conversations for public service monitoring purposes, the 
requesting component head or designee must provide a statement in 
writing why such monitoring is necessary for measuring or monitoring 
the performance in the delivery of SSA service to the public; or 
monitoring and improving the integrity, quality and utility of service 
provided to the public.
    (b) At least every 5 years, SSA will review the need for each 
determination authorizing listening-in or recording activities in the 
agency. SSA components or authorized agents involved in conducting 
listening-in or recording activities must submit documentation as 
described in Sec. 422.710(a) to the Commissioner of Social Security or 
a designee to continue or terminate telephone service observation 
activities.
    (c) SSA will comply with the following controls, policies and 
procedures when listening-in or recording is associated with public 
service monitoring.
    (1) SSA will provide a message on SSA telephone lines subject to 
public service monitoring that will inform callers that calls on those 
lines may be monitored for quality assurance purposes. SSA will also 
continue to include information about telephone monitoring activities 
in SSA brochures and/or pamphlets as notification that some incoming 
and outgoing SSA telephone calls are monitored to ensure SSA's clients 
are receiving accurate and courteous service.
    (2) SSA employees authorized to listen-in to or record telephone 
calls are permitted to annotate personal identifying information about 
the calls, such as a person's name, Social Security number, address 
and/or telephone number. When this information is obtained from public 
service monitoring as defined in Sec. 422.705(c), it will be used for 
programmatic or policy purposes; e.g., recontacting individuals to 
correct or supplement information relating to benefits, for assessment 
of current/proposed policies and procedures, or to correct SSA records. 
Privacy Act requirements must be

[[Page 57059]]

followed if data are retrievable by personal identifying information.
    (3) SSA will take appropriate corrective action, when possible, if 
information obtained from monitoring indicates SSA may have taken an 
incorrect action which could affect the payment of or eligibility to 
SSA benefits.
    (4) Telephone instruments subject to public service monitoring will 
be conspicuously labeled.
    (5) Consent from both parties is needed to tape record SSA calls 
for public service monitoring purposes.
    (d) The recordings and records pertaining to the listening-in to or 
recording of any conversations covered by this subpart shall be used, 
safeguarded and destroyed in accordance with SSA records management 
program.

[FR Doc. 98-28525 Filed 10-23-98; 8:45 am]
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