[Federal Register Volume 70, Number 119 (Wednesday, June 22, 2005)]
[Notices]
[Pages 36320-36324]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 05-12405]



[[Page 36319]]

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Part VI





Department of Homeland Security





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Transportation Security Administration



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Privacy Act of 1974; Systems of Records: Secure Flight Test Records; 
Privacy Impact Assessment; Secure Flight Test Phase; Notice

  Federal Register / Vol. 70, No. 119 / Wednesday, June 22, 2005 / 
Notices  

[[Page 36320]]


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DEPARTMENT OF HOMELAND SECURITY

Transportation Security Administration

[Docket No. TSA-2004-19160]


Privacy Act of 1974; Systems of Records: Secure Flight Test 
Records; Privacy Impact Assessment; Secure Flight Test Phase

AGENCY: Transportation Security Administration, DHS.

ACTION: Notice to supplement and amend existing system of records and 
privacy impact assessment.

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SUMMARY: The Transportation Security Administration is amending the 
Privacy Act System of Records for the Secure Flight Test Records system 
(DHS/TSA 017) and the Privacy Impact Assessment for the Secure Flight 
Test Phase.

DATES: This action will be effective upon publication.

FOR FURTHER INFORMATION CONTACT: Lisa S. Dean, Privacy Officer, Office 
of Transportation Security Policy, TSA Headquarters, TSA-9, 601 S. 12th 
Street, Arlington, VA 22202-4220; telephone (571) 227-3947.

SUPPLEMENTARY INFORMATION: 

Background

    The Transportation Security Administration (TSA) established the 
Secure Flight Test Records system (DHS/TSA 017) on September 24, 2004 
(69 FR 57345), to cover records obtained or created in the course of 
testing the Secure Flight program. TSA also published on the same day a 
notice setting forth the Privacy Impact Assessment (PIA) prepared for 
the testing phase of the Secure Flight program (69 FR 57352). The 
Secure Flight program will implement the mandate of section 4012(a)(1) 
of the Intelligence Reform and Terrorism Prevention Act of 2004 (Pub. 
L. 108-458) requiring the Transportation Security Administration to 
assume from air carriers the function of conducting pre-flight 
comparisons of airline passenger information to Federal Government 
watch lists.
    TSA has described the testing of Secure Flight in previously-
published documents (69 FR 57345, 57352, Sept. 24, 2004). TSA is 
issuing these revised versions of the System of Records Notice and PIA 
to provide additional detail regarding the Secure Flight testing 
program.
    In addition, TSA is amending the Secure Flight Test Records system 
to reflect the fact that TSA will not assert any Privacy Act exemptions 
for the system. In the system of records notice published on September 
24, 2004, TSA stated that it was claiming exemptions for portions of 
the system of records from the following provisions of the Privacy Act: 
5 U.S.C. 552a(c)(3), (d), (e)(1), (e)(4)(G) and (H), and (f) pursuant 
to 5 U.S.C. 552a(k)(1) and (k)(2). TSA has not initiated a rulemaking 
to implement these exemptions from the Privacy Act, however, because it 
became clear from the nature of the records in the system that the 
exemptions were not necessary. Rather than claiming Privacy Act 
exemptions to withhold this information, TSA has released passenger 
name records (PNR) to individuals who have requested them under the 
Privacy Act and will continue to respond to such records requests, to 
the extent permitted by law. Therefore, TSA is amending the system of 
records and the PIA to reflect this practice.
    Finally, TSA is making a change to the system of records to reflect 
the change of the name of TSA's Office of National Risk Assessment to 
the Office of Transportation Vetting and Credentialing.

Summary of Amendments to the Secure Flight Test Records System and the 
PIA

    TSA is amending the scope of the system of records notice and the 
PIA to clarify and describe with greater particularity the categories 
of records and categories of individuals covered by the Secure Flight 
Test Records system. The categories of records include PNRs enhanced 
with certain elements of commercial data that were provided to TSA for 
purposes of testing the Secure Flight program and include commercial 
data purchased and held by a TSA contractor, EagleForce Associates, 
Inc. (EagleForce), for purposes of the commercial data test. In 
addition, the categories of individuals covered by the system include 
individuals identified in commercial data purchased and held by 
EagleForce. Finally, TSA is clarifying that part of the Secure Flight 
test involves testing whether watch list matching could be more 
effective if the Government were to use certain limited additional data 
elements derived from commercial data to enhance PNRs.
    1. The complete revised Secure Flight Test records system follows:
DHS/TSA 017

System name:
    Secure Flight Test Records.

Security Classification:
    Classified, sensitive.

System Location:
    Records are maintained at: the Office of Transportation Vetting and 
Credentialing (OTVC), Transportation Security Administration (TSA), 
Department of Homeland Security, P.O. Box 597, Annapolis Junction, MD 
20701-0597; the OTVC assessment facility in Colorado Springs, Colorado; 
and at EagleForce Associates, Inc., McLean, VA.

Categories of Individuals Covered by the System:
    (a) Individuals traveling within the United States by passenger air 
transportation on certain domestic flights completed in June 2004;
    (b) Individuals identified in commercial data purchased and held by 
a TSA contractor for purposes of comparing such data with the June 2004 
Passenger Name Records and testing the Secure Flight program;
    (c) Individuals known or reasonably suspected to be or have been 
engaged in conduct constituting, in preparation for, in aid of, or 
related to terrorism.

Categories of Records in the System:
    (a) Passenger Name Records (PNRs) for certain passenger air 
transportation flights completed in June 2004 provided by aircraft 
operators in response to the Transportation Security Administration 
Order issued November 15, 2004 (69 FR 65625), (the June 2004 PNRs), the 
specific contents of which often vary by aircraft operator;
    (b) Information obtained from the Terrorist Screening Center about 
individuals known or reasonably suspected to be or to have been engaged 
in conduct constituting, in preparation for, in aid of, or related to 
terrorism;
    (c) Authentication scores and codes obtained from commercial data 
providers;
    (d) PNRs that were enhanced with certain fields of information 
obtained from commercial data--full name, address, date of birth, 
gender--and that were provided to TSA for purposes of testing the 
Secure Flight program;
    (e) Commercial data purchased and held by a TSA contractor for 
purposes of comparing such data with June 2004 PNRs and testing the 
Secure Flight program;
    (f) Results of comparisons of individuals identified in PNRs to 
watch lists obtained from the Terrorist Screening Center.

Authority for Maintenance of the System:
    49 U.S.C. 114, 44901, and 44903.

Purpose(s):
    The system will be used to test the Secure Flight program. The 
purpose of

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the program is to enhance the security of domestic air travel by 
identifying passengers who warrant further scrutiny prior to boarding 
an aircraft. The purposes of testing the Secure Flight program are: (1) 
To test the Government's ability to process and compare passenger 
information against terrorist watch list information held by the 
Terrorist Screening Center (TSC) in the Terrorist Screening Database 
(TSDB); (2) to test the Government's ability to operate a streamlined 
version of the rule set used under the existing computer-assisted 
passenger prescreening system (CAPPS) currently used by aircraft 
operators; and (3) to test the Government's ability to verify the 
identities of passengers using commercial data and to improve the 
efficacy of watch list comparisons by making passenger information more 
complete and accurate using commercial data. For more detail on the 
purposes and conduct of the Secure Flight testing, please see the 
revised PIA for the Secure Flight Test Phase, which is published below.

Routine Uses of Records Maintained in the System, Including Categories 
of Users and the Purposes of Such Uses:
    (1) To the Federal Bureau of Investigation where TSA becomes aware 
of information that may be related to an individual identified in the 
Terrorist Screening Database as known or reasonably suspected to be or 
having been engaged in conduct constituting, in preparation for, in aid 
of, or related to terrorism.
    (2) To contractors, grantees, experts, consultants, or other like 
persons when necessary to perform a function or service related to the 
Secure Flight program or the system of records for which they have been 
engaged. Such recipients are required to comply with the Privacy Act, 5 
U.S.C. 552a, as amended.
    (3) To the Department of Justice (DOJ) or other Federal agency in 
the review, settlement, defense, and prosecution of claims, complaints, 
and lawsuits involving matters over which TSA exercises jurisdiction or 
when conducting litigation or in proceedings before any court, 
adjudicative or administrative body, when: (a) TSA; or (b) any employee 
of TSA in his/her official capacity; or (c) any employee of TSA in his/
her individual capacity, where DOJ or TSA has agreed to represent the 
employee; or (d) the United States or any agency thereof, is a party to 
the litigation or has an interest in such litigation, and TSA 
determines that the records are both relevant and necessary to the 
litigation and the use of such records is compatible with the purpose 
for which TSA collected the records.
    (4) To the National Archives and Records Administration (NARA) or 
other Federal agencies pursuant to records management inspections being 
conducted under the authority of 44 U.S.C. 2904 and 2906.
    (5) To a Congressional office from the record of an individual in 
response to an inquiry from that Congressional office made at the 
request of the individual.
    (6) To an agency, organization, or individual for the purposes of 
performing authorized audit or oversight operations.

Disclosure to Consumer Reporting Agencies:
    None.

Policies and Practices for Storing, Retrieving, Accessing, Retaining 
and Disposing of Records in the System:
Storage:
    Records are stored electronically in a secure facility at the 
Office of Transportation Vetting and Credentialing (OTVC), 
Transportation Security Administration (TSA), Department of Homeland 
Security, P.O. Box 597, Annapolis Junction, MD 20701-0597; the OTVC 
assessment facility in Colorado Springs, Colorado; and at EagleForce, 
Inc., McLean, VA. The records are stored on magnetic disc, tape, 
digital media, and CD-ROM, and may also be retained in hard copy format 
in secure file folders.

Retrievability:
    Data are retrievable by the individual's name or other identifier, 
as well as non-identifying information.

Safeguards:
    Information in this system is safeguarded in accordance with 
applicable rules and policies, including any applicable OTVC, TSA, and 
DHS automated systems security and access policies. Access to computer 
systems containing the records in this system of records is limited and 
can be accessed only by those individuals who require it to perform 
their official duties. Safeguards also include a real time auditing 
function of individuals who access computer systems containing the 
records in this system of records. Classified information, if any, will 
be appropriately stored in a secured facility, in secured databases and 
containers, and in accordance with other applicable requirements, 
including those pertaining to classified information.

Retention and Disposal:
    TSA has determined that the records contained in the Secure Flight 
Test records system are covered by NARA General Records Schedule (GRS) 
20, which applies to electronic records. It covers electronic files or 
records created solely to test system performance, as well as hard-copy 
printouts and related documentation for the electronic files/records. 
Under GRS 20, an agency may delete or destroy such records when the 
agency determines that they are no longer needed for administrative, 
legal, audit, or other operational purposes. In accordance with GRS 20, 
TSA has destroyed certain copies of the original PNRs provided by the 
air carriers. In addition, in accordance with applicable law, TSA plans 
to direct and document the destruction of the remaining PNRs and 
commercial data in its possession or in the possession of EagleForce as 
testing activities and analyses are completed.

System Manager(s) and Address:
    Assistant Administrator, Secure Flight/Registered Traveler, 
Transportation Security Administration, P.O. Box 597, Annapolis 
Junction, MD 20701-0597.

Notification procedure:
    See ``Record Access Procedure''.

Record Access Procedure:
    DHS has determined that all persons may request access to 
information about them contained in the system by sending a written 
request to the TSA Privacy Officer, Transportation Security 
Administration (TSA-9), 601 South 12th Street, Arlington, VA 22202.
    To the extent permitted by law, such access will be granted. 
Individuals requesting access must comply with the Department of 
Homeland Security Privacy Act regulations on verification of identity 
(6 CFR 5.21(d)). Individuals must submit their full name, current 
address, and date and place of birth. Individuals must sign the request 
and the signature must either be notarized or submitted under 28 U.S.C. 
1746, a law that permits statements to be made under penalty of perjury 
as a substitute for notarization.

Exemptions claimed for the system:
    None.
    2. The complete revised PIA follows:

Secure Flight Test Phase Privacy Impact Assessment

I. Introduction

    Pursuant to the authority granted by the Aviation and 
Transportation Security Act of 2001 (ATSA) and

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section 4012(a)(1) of the Intelligence Reform and Terrorism Prevention 
Act of 2004 (IRTPA) (Pub. L. 108-458, 118 Stat. 3638, Dec. 17, 2004), 
TSA is developing a new program for screening domestic airline 
passengers in order to enhance the security and safety of domestic 
airline travel. Under this program, Secure Flight, the Transportation 
Security Administration (TSA) will assume from air carriers the 
function of conducting pre-flight comparisons of airline passenger 
information to the expanded and consolidated watch lists held in the 
Terrorist Screening Database (TSDB) maintained by the Terrorist 
Screening Center (TSC).\1\ On November 15, 2004, TSA issued an order 
directing U.S. aircraft operators to provide to TSA, by November 23, 
2004, a limited set of historical passenger name records (PNRs) for 
testing of the Secure Flight program.
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    \1\ The Terrorist Screening Center (TSC), established in 
December 2003, maintains a consolidated, comprehensive watch list of 
known or suspected terrorists. This database can be used by 
Government agencies in screening processes to identify individuals 
known to pose or are suspected of posing a risk to the security of 
the United States.
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    Because the test involves existing watch lists that are being 
consolidated and expanded in the TSC, the E-Government Act of 2002 
requires that a Privacy Impact Assessment (PIA) be conducted. The 
previously published PIA is being clarified and expanded to reflect 
more closely actual experience as the testing program has been 
conducted, refined and modified since September 2004. After the testing 
has been concluded and the results analyzed, TSA will update the PIA as 
necessary prior to actual implementation of the Secure Flight program.
System Overview
     What information is to be collected and used for testing 
Secure Flight?
    In order to conduct testing, TSA obtained historic PNRs for 
individuals who completed domestic flight segments during the month of 
June 2004. PNR varies according to airline, but generally includes the 
following information fields: Full name, contact phone number, mailing 
address and travel itinerary. Also for purposes of the test, a TSA 
contractor, EagleForce Associates, Inc. (EagleForce), obtained 
commercial data from three commercial data aggregators. EagleForce 
contracted with each commercial data aggregator to identify records in 
its data bases associated with names in a sample set of PNRs and 
provide such records to EagleForce, but to provide only certain data 
elements associated with the names. Specifically, EagleForce requested 
the following data elements: First name; last name; middle name; home 
address; home phone number; date of birth; name suffix; second surname; 
spouse first name; gender; second address; third address; plus-four 
portion of Zip code; address type (residence, business, or mailing 
address); latitude of address; and longitude of address. In some cases 
the commercial data aggregators provided information that EagleForce 
did not request, such as social security numbers, due to the way the 
commercial data aggregators packaged their product. Although EagleForce 
loaded the commercial data provided by the commercial data aggregators 
onto a database, EagleForce has not queried or used any of the data 
elements that the commercial data aggregators provided over and above 
the specific data elements that EagleForce had specifically requested.
     Why is the information being collected and who will be 
affected by the collection of the data?
    TSA collected the information described above to test the Secure 
Flight program, the purpose of which is to enhance the security of 
domestic air travel by identifying only those passengers who warrant 
further scrutiny. TSA's test of the Secure Flight program has three 
objectives. The first objective is to test the Government's ability to 
process and compare passenger information against terrorist watch list 
information held by the TSC in the TSDB. The second objective is to 
test the Government's ability to operate a streamlined version of the 
rule set used under the existing computer-assisted passenger 
prescreening system (CAPPS) currently used by aircraft operators. The 
third objective is to test the Government's ability to verify the 
identities of passengers using commercial data and to improve the 
efficacy of watch list comparisons by making passenger information more 
complete and accurate using commercial data to enhance PNRs with 
elements such as full name, address, date of birth, and gender. TSA, 
through its contractor IBM, has compared the PNR with data maintained 
in the TSDB regarding individuals known or reasonably suspected to be 
or have been engaged in conduct constituting, in preparation for, in 
aid of, or related to terrorism. TSA is continuing watch list match 
testing through it contractor, Mitre, using the original PNRs provided 
by the air carriers. TSA also continues to conduct internal system 
testing of the watch list matching processes through Mitre and IBM.
    To prepare for the commercial data test, two statistically 
significant samples of the PNR data were extracted. One sample 
consisted of approximately 17,000 PNRs representing a cross section of 
air carriers and indicative of a typical PNR. A second sample was also 
developed that consisted of approximately 24,000 PNRs that contained 
dates of birth.
    The sample data sets, which represent PNRs from eight U.S. air 
carriers, were stored on CD-ROMs. These data sets are used to perform 
watch list match testing in connection with the first objective of the 
program described above.
    In addition, TSA hand delivered duplicates of the CD-ROMs 
containing the two sample PNR data sets to EagleForce. TSA also 
provided to EagleForce unparsed copies of other electronically stored 
June 2004 PNR data from the air carriers whose PNRs were included in 
the representative samples.
    In preparing for the commercial test, for each of the approximately 
42,000 names in the two sample sets of PNRs, EagleForce created up to 
twenty variations of a person's first and last names. Accordingly, 
EagleForce generated approximately 240,000 name variations derived from 
the approximately 42,000 names in the sample data sets. The original 
PIA and system of records notice did not discuss this process, because 
TSA had not developed its test plan with this level of detail at the 
time the documents were published.
    EagleForce submitted the original names and name variations to 
three commercial data aggregators: Insight America, Acxiom, and Qsent. 
Upon receipt of the information provided by the commercial data 
aggregators, EagleForce loaded the records into a database. In order to 
accomplish the third test objective identified above, Secure Flight 
undertook two steps. First, EagleForce compared information in the 
sample PNRs with certain data elements contained in the information in 
the commercial data records to attempt to identify instances when the 
data in the PNRs was incorrect or inaccurate. In the course of this 
activity, EagleForce used only those data elements that it had asked 
the commercial data aggregators to provide. EagleForce did not use any 
of the data elements that the commercial data aggregators had provided 
beyond the specific data elements that EagleForce had specifically 
requested.
    Second, to further test accuracy through verification testing, 
EagleForce used certain records obtained from the three commercial data 
aggregators to enhance the sample PNR data in cases

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where PNRs were missing data. If a PNR in the sample data did not have 
complete information on a subject's full name, date of birth, address, 
gender, or one of the other categories of data that EagleForce 
specifically requested from the commercial data aggregators, EagleForce 
attempted to incorporate that data from the commercial data records, 
thereby ``enhancing'' the PNRs with these specific elements. However, 
EagleForce did not use the following data elements to enhance PNRs: 
spouse first name; latitude of address; and longitude of address. 
EagleForce then produced CD-ROMs containing the PNRs enhanced with the 
additional data elements and provided those CD-ROMs to TSA for use in 
watch list match testing. TSA currently retains the CD-ROMs containing 
the enhanced PNRs and stores these CD-ROMS when they are not in use in 
a controlled access safe. TSA provided for a limited period of time the 
CD-ROMs containing the enhanced PNRs to employees of TSA's contractor 
charged with conducting watch list testing (IBM), to determine whether 
using commercial data to enhance passenger information could lower the 
number of instances in which a person appears to be a match to the 
TSDB, but is not (a false positive) or appears not to be a match, but 
in fact is (a false negative).
    The categories of individuals covered by the data collection are: 
individuals who traveled within the United States during June 2004 by 
passenger air transportation and whose PNRs were provided by aircraft 
operators in response to the Transportation Security Administration 
Order issued November 15, 2004 (69 FR 65625); individuals identified in 
commercial data purchased and held by a TSA contractor for purposes of 
testing the Secure Flight program; and individuals known or reasonably 
suspected to be or have been engaged in conduct constituting, in 
preparation for, in aid of, or related to terrorism.
    TSA has not and will not use the results of its testing for any 
purpose other than analysis of the efficacy of the program unless there 
is an indication during the testing of terrorist or possible terrorist 
activity. In such a case, appropriate action will be taken, which may 
include providing information in the system of records to relevant law 
enforcement agencies. To date no such action has been warranted.
     What notice or opportunities for consent are provided to 
individuals regarding the information that is collected and shared?
    The original Privacy Act System of Records Notice and PIA, as well 
as the revised versions of each document, provide notice of the scope, 
purposes, and effect of the test phase of the Secure Flight program. 
Because the test phase uses historical PNR from the month of June 2004 
for flights that were completed by the end of that month, as well as 
data residing in commercial databases that already had been collected 
prior to the test, the notice given did not afford the opportunity for 
these individuals to provide consent in advance of this collection. 
Nevertheless, Secure Flight has been the subject of Congressional 
testimony, public statements by TSA officials, and numerous media 
reports that convey additional notice, including information that 
appears on the TSA Web site at http://www.tsa.gov/public/.
    The information collected has been shared with TSA employees and 
contractors who have a ``need to know'' in order to conduct the 
required test comparisons. All TSA contractors involved in the testing 
of Secure Flight are contractually and legally obligated to comply with 
the Privacy Act in their handling, use and dissemination of personal 
information in the same manner as TSA employees.
    If a comparison using the test data indicates that an individual is 
suspected of terrorism, TSA will refer the information to appropriate 
law enforcement personnel for further action. Referrals will only 
occur, however, in this limited circumstance because the basic purpose 
of this information collection is to test the Secure Flight program. To 
date, no such referrals have been warranted.
     What security protocols are in place to protect the 
information?
    TSA has employed data security controls, developed with the TSA 
Privacy Officer, to protect the data used for Secure Flight testing 
activities. Information in TSA's record systems is safeguarded in 
accordance with the Federal Information Security Management Act of 2002 
(Pub. L. 107-347), which established Government-wide computer security 
and training standards for all persons associated with the management 
and operation of Federal computer systems. The systems on which the 
tests are or have been conducted were assessed for security risks, have 
implemented security policies and plans consistent with statutory, 
regulatory and internal DHS guidance.
    Prior to accepting custody of the PNR data, TSA established chain-
of-custody procedures for the receipt, handling, safeguarding, and 
tracking of access to the PNR data and TSA maintained the data at its 
secure facility in Annapolis Junction, Maryland. Access to the data was 
limited to individuals with a need for access in order to conduct 
testing activities.
    Records of transmission of PNR data to EagleForce were maintained 
by TSA's security officers. EagleForce had measures in place to control 
access and handling of PNR data. In addition, EagleForce employees 
completed training for handling sensitive information and entered into 
non-disclosure agreements covering all data provided by the Government 
for use during the test. Copies of these agreements are maintained by 
TSA's security office.
    TSA and its contractors maintain the PNRs and the limited 
commercial data collected for the test in a secure facility on 
electronic media and in hard copy format. The information is protected 
in accordance with rules and policies established by both TSA and DHS 
for automated systems and for hard copy storage, including password 
protection and secure file cabinets. Moreover, access is strictly 
controlled; only TSA employees and contractors with proper security 
credentials and passwords will have permission to use this information 
to conduct the required tests, on a need-to-know basis. Additionally, a 
real time audit function is part of this record system to track who 
accesses the information resident on electronic systems during testing. 
Any infractions of information security rules will be dealt with 
severely. None has occurred to date. All TSA and assigned contractor 
staff receive DHS-mandated privacy training on the use and disclosure 
of personal data. The procedures and policies that are in place are 
intended to ensure that no unauthorized access to records occurs and 
that operational safeguards are firmly in place to prevent system 
abuses.
     Does this program create a new system of records under the 
Privacy Act?
    On September 24, 2004, TSA established a new Privacy Act system of 
records, known as the Secure Flight Test Records system of records, 
DHS/TSA 017, for purposes of Secure Flight testing activities (69 FR 
57345). TSA has amended and supplemented that system of records to 
clarify the original system of records notice with additional detail on 
the Secure Flight testing activities.
     What is the intended use of the information?
    The information collected by TSA and TSA contractors has been and 
will be used solely for the purpose of testing the Secure Flight 
program, as described in this PIA, and will be maintained in a Privacy 
Act system of records in

[[Page 36324]]

accordance with the published system of records notice for DHS/TSA 017.
     Will the information be retained and, if so, for what 
period of time?
    TSA has determined that the records contained in the Secure Flight 
Test Records system are covered by NARA General Records Schedule (GRS) 
20, which applies to electronic records. It covers electronic files or 
records created solely to test system performance, as well as hard-copy 
printouts and related documentation for the electronic files/records. 
Under GRS 20, an agency may delete or destroy such records when the 
agency determines that they are no longer needed for administrative, 
legal, audit, or other operational purposes. In accordance with GRS 20, 
TSA has destroyed certain copies of the original PNRs provided by the 
air carriers. In addition, TSA, in accordance with applicable law, 
plans to direct the destruction of the remaining PNRs and commercial 
data in its possession or in the possession of EagleForce as testing 
activities and analyses are completed.
     How will the passenger be able to seek redress?
    During the test phase individuals may request access to information 
about themselves contained in the PNR subject to Secure Flight test 
phase by sending a written request to TSA. To the extent permitted by 
law, access will be granted. If an individual wishes to contest or 
amend the records received in this manner, he or she may do so by 
sending that request to TSA. The request should conform to DHS 
requirements for contesting or amending Privacy Act records, and should 
be sent TSA Privacy Officer, Transportation Security Administration 
(TSA-9), 601 South 12th Street, Arlington, VA 22202. Before 
implementing a final program, however, TSA will create a robust redress 
mechanism to resolve disputes concerning the Secure Flight program.
     What databases will the names be compared to?
    TSA has compared the names against the TSDB, which is a 
consolidated, comprehensive watch list of known or suspected 
terrorists. This database can be used by Government agencies in 
screening processes to identify individuals known to pose or are 
suspected of posing a risk to the security of the United States. This 
consolidated database contains information contributed by the 
Departments of Homeland Security, Justice, and State and by the 
intelligence community. Because information related to terrorists is 
consolidated in the TSDB, TSA believes that the TSDB provides the most 
effective and secure system against which to run airline passenger 
names for purposes of identifying whether or not they are known or 
reasonably suspected to be engaged in terrorism or terrorist activity. 
TSA's contractor has compared names with information provided by 
commercial data aggregators to identify commercial data records from 
which to enhance PNRs for purposes of the Secure Flight test.
     Privacy Effects and Mitigation Measures.
    The decision to initiate Secure Flight followed completion of a 
thorough review of the TSA's next generation passenger prescreening 
program and the mandate of section 4012(a)(1) of the IRTPA.
    Testing has been and continues to be governed by strict privacy and 
data security protections. TSA will defer any decision on how 
commercial data might be used in its prescreening programs, as Secure 
Flight, until the completion of the test period, assessment of the test 
results and publication of a subsequent System of Records Notice under 
the Privacy Act announcing the intended use of such commercial data.
    TSA has taken action to mitigate privacy risk by designing its test 
activities to address concerns expressed by privacy advocates, foreign 
counterparts and others. Under the Secure Flight testing phase, TSA did 
not require air carriers to collect any additional information from 
their passengers than was already collected by such carriers and 
maintained in passenger name records. TSA has adopted and carried out 
stringent data security and privacy protections, including contractual 
prohibitions on commercial entities' maintenance or use of airline-
provided PNR information for any purposes other than testing under TSA 
parameters; real time auditing procedures to determine when data within 
the Secure Flight system has been accessed and by whom; and strict 
rules prohibiting the accessing or use of commercial data by TSA 
employees.
    TSA will assess test results prior to any operational use of 
commercial data in TSA programs to determine whether its use is 
effective in verifying passenger identity or enhancing watch list 
comparisons, justifies the associated costs, does not result in 
disparate treatment of any class of individuals, and that data security 
protections and privacy protections are robust and effective.
    TSA also recognizes that there is a privacy risk inherent in the 
design of any new system which could result from design mistakes. By 
testing the proposed Secure Flight program, TSA has had the opportunity 
to modify the program design in ways to enhance protection of 
individuals' privacy interests before the program becomes fully 
operational, ensuring a better program. TSA is purposely testing the 
Secure Flight system and will be carefully scrutinizing the performance 
of the system during the test phase--and conducting further analysis 
upon completion--to determine the effectiveness of Secure Flight both 
for passenger prescreening as well as for protecting the privacy of the 
data on which the program is based. By following strict rules for 
oversight and training of personnel handling the data as well as strong 
system auditing to detect potential abuse and a carefully planned and 
executed redress process, TSA will continue to ensure that privacy is 
an integral part of the program once it becomes operational, as it has 
been during testing. TSA's efforts have been and continue to be 
thoroughly examined internally, including review by the TSA Privacy 
Officer and the DHS Chief Privacy Officer. In this process, TSA will 
carefully review constructive feedback it receives from the public on 
this important program.

    Issued in Arlington, Virginia, on June 17, 2005.
Lisa S. Dean,
TSA Privacy Officer.
[FR Doc. 05-12405 Filed 6-17-05; 5:02 pm]
BILLING CODE 4910-62-P