[Federal Register Volume 75, Number 168 (Tuesday, August 31, 2010)]
[Proposed Rules]
[Pages 53262-53264]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-21247]


 ========================================================================
 Proposed Rules
                                                 Federal Register
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 This section of the FEDERAL REGISTER contains notices to the public of 
 the proposed issuance of rules and regulations. The purpose of these 
 notices is to give interested persons an opportunity to participate in 
 the rule making prior to the adoption of the final rules.
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 

  Federal Register / Vol. 75, No. 168 / Tuesday, August 31, 2010 / 
Proposed Rules  

[[Page 53262]]



DEPARTMENT OF JUSTICE

28 CFR Part 16

[CPCLO Order No. 004-2010]


Privacy Act of 1974; System of Records

AGENCY: Federal Bureau of Investigation, Department of Justice

ACTION: Notice of proposed rulemaking.

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SUMMARY: Elsewhere in the Federal Register, the Federal Bureau of 
Investigation (FBI), a component of the Department of Justice, has 
published a notice of a new Privacy Act system of records, JUSTICE/FBI-
021, the Data Integration and Visualization System (DIVS). In this 
notice of proposed rulemaking, the FBI proposes to exempt this system 
from certain provisions of the Privacy Act in order to avoid 
interference with the national security and criminal law enforcement 
functions and responsibilities of the FBI. Public comment is invited.

DATES: Comments must be received by September 30, 2010.

ADDRESSES: Address all comments to Privacy Analyst, Office of Privacy 
and Civil Liberties, National Place Building, 1331 Pennsylvania Ave., 
NW., Suite 940, Washington, DC 20530-0001 or facsimile 202-307-0693. To 
ensure proper handling, please reference the CPCLO Order No. in your 
correspondence. You may review an electronic version of the proposed 
rule at http://www.regulations.gov. You may also comment via the 
Internet to the Privacy and Civil Liberties Office at 
[email protected]; or by using the comment 
form for this regulation at http://www.regulations.gov. Please include 
the CPCLO Order No. in the subject box.
    Please note that the Department is requesting that electronic 
comments be submitted before midnight Eastern Daylight Savings Time on 
the day the comment period closes because http://www.regulations.gov 
terminates the public's ability to submit comments at midnight Eastern 
time on the day the comment period closes. Commenters in time zones 
other than Eastern Time may want to consider this so that their 
electronic comments are received. All comments sent via regular or 
express mail will be considered timely if postmarked on the day the 
comment period closes.
    Posting of Public Comments: Please note that all comments received 
are considered part of the public record and made available for public 
inspection online at http://www.regulations.gov and in the Department's 
public docket. Such information includes personal identifying 
information (such as your name, address, etc.) voluntarily submitted by 
the commenter.
    If you want to submit personal identifying information (such as 
your name, address, etc.) as part of your comment, but do not want it 
to be posted online or made available in the public docket, you must 
include the phrase ``PERSONAL IDENTIFYING INFORMATION'' in the first 
paragraph of your comment. You must also place all the personal 
identifying information you do not want posted online or made available 
in the public docket in the first paragraph of your comment and 
identify what information you want redacted.
    If you want to submit confidential business information as part of 
your comment, but do not want it to be posted online or made available 
in the public docket, you must include the phrase ``CONFIDENTIAL 
BUSINESS INFORMATION'' in the first paragraph of your comment. You must 
also prominently identify confidential business information to be 
redacted within the comment. If a comment has so much confidential 
business information that it cannot be effectively redacted, all or 
part of that comment may not be posted online or made available in the 
public docket.
    Personal identifying information and confidential business 
information identified and located as set forth above will be redacted 
and the comment, in redacted form, will be posted online and placed in 
the Department's public docket file. Please note that the Freedom of 
Information Act applies to all comments received. If you wish to 
inspect the agency's public docket file in person by appointment, 
please see the FOR FURTHER INFORMATION paragraph.

FOR FURTHER INFORMATION CONTACT: Erin Page, Assistant General Counsel, 
Privacy and Civil Liberties Unit, Office of the General Counsel, FBI, 
Washington, DC 20535-0001, telephone 202-324-3000.

SUPPLEMENTARY INFORMATION: In the Notice section of today's Federal 
Register, the FBI published a new Privacy Act system of records, the 
Data Integration and Visualization System (DIVS), Justice/FBI-021. The 
system enhances the analysis and presentation of data maintained in 
support of the FBI's multifaceted investigative mission by enabling 
access, search, integration, and analytics across multiple existing 
databases. The system also allows users to save their queries and 
create a separate record of relevant identifiers and information.
    In this rulemaking, the FBI proposes to exempt certain records in 
this Privacy Act system of records from certain provisions of the 
Privacy Act in order to avoid interference with the law enforcement, 
intelligence and counterintelligence, and counterterrorism 
responsibilities of the FBI as established in federal law and policy.

Regulatory Flexibility Act

    This proposed rule relates to individuals as opposed to small 
business entities. Pursuant to the requirements of the Regulatory 
Flexibility Act, 5 U.S.C. 601-612, therefore, the proposed rule will 
not have a significant economic impact on a substantial number of small 
entities.

Small Business Regulatory Enforcement Fairness Act

    The Small Business Regulatory Enforcement Fairness Act (SBREFA) of 
1996, codified as a note to 5 U.S.C. 601, requires the FBI to comply 
with small entity requests for information and advice about compliance 
with statutes and regulations within FBI jurisdiction. Any small entity 
that has a question regarding this document may contact the person 
listed in FOR FURTHER INFORMATION CONTACT. Persons can obtain further 
information regarding SBREFA on the Small Business Administration's Web 
page at http://www.sba.gov/advo/archive/sum_sbrefa.html.

[[Page 53263]]

Paperwork Reduction Act

    The Paperwork Reduction Act of 1995, 44 U.S.C. 3507(d), requires 
that the FBI consider the impact of paperwork and other information 
collection burdens imposed on the public. There are no current or new 
information collection requirements associated with this proposed rule. 
The records that are contributed to DIVS are created by the FBI or 
other law enforcement and intelligence entities and sharing of this 
information electronically will not increase the paperwork burden on 
the public.

Unfunded Mandates

    Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), Public 
Law 104-4, 109 Stat. 48, requires Federal agencies to assess the 
effects of certain regulatory actions on State, local, and tribal 
governments, and the private sector. UMRA requires a written statement 
of economic and regulatory alternatives for proposed and final rules 
that contain Federal mandates. A ``Federal mandate'' is a new or 
additional enforceable duty, imposed on any State, local, or tribal 
government, or the private sector. If any Federal mandate causes those 
entities to spend, in aggregate, $100 million or more in any one year, 
the UMRA analysis is required. This proposed rule would not impose 
Federal mandates on any State, local, or tribal government or the 
private sector.

List of Subjects in 28 CFR Part 16

    Administrative practices and procedures, Courts, Freedom of 
Information Act, Government in the Sunshine Act, and the Privacy Act.

    Pursuant to the authority vested in the Attorney General by 5 
U.S.C. 552a and delegated to me by Attorney General Order 2940-2008, it 
is proposed to amend 28 CFR Part 16 as follows:

PART 16--[AMENDED]

    1. The authority citation for part 16 continues to read as follows:

    Authority: 5 U.S.C. 301, 552, 552a, 552b(g), 553; 18 U.S.C. 
4203(a)(1); 28 U.S.C. 509, 510, 534; 31 U.S.C. 3717, 9701.

Subpart E--Exemption of Records Systems Under the Privacy Act

    2. Section 16.96 is amended by adding paragraphs (v) and (w) to 
read as follows:


Sec.  16.96  Exemption of Federal Bureau of Investigation Systems--
limited access.

* * * * *
    (v) The following system of records is exempt from 5 U.S.C. 
552a(c)(3) and (4); (d)(1), (2), (3) and (4); (e)(1), (2) and (3); 
(e)(4)(G), (H) and (I); (e)(5) and (8); (f) and (g) of the Privacy Act:
    (1) Data Integration and Visualization System (DIVS), (JUSTICE/FBI-
021).
    (2) These exemptions apply only to the extent that information in 
this system is subject to exemption pursuant to 5 U.S.C. 552a(j) and/or 
(k). Where compliance would not appear to interfere with or adversely 
affect the intelligence and law enforcement purpose of this system, and 
the overall law enforcement process, the applicable exemption may be 
waived by the FBI in its sole discretion.
    (w) Exemptions from the particular subsections are justified for 
the following reasons:
    (1) From subsection (c)(3), the requirement that an accounting be 
made available to the named subject of a record, because this system is 
exempt from the access provisions of subsection (d). Also, because 
making available to a record subject the accounting of disclosures from 
records concerning him/her would specifically reveal any investigative 
interest in the individual by the FBI or agencies that are recipients 
of the disclosures. Revealing this information could compromise 
ongoing, authorized law enforcement and intelligence efforts, 
particularly efforts to identify and defuse any potential acts of 
terrorism or other potential violations of criminal law. Revealing this 
information could also permit the record subject to obtain valuable 
insight concerning the information obtained during an investigation and 
to take measures to impede the investigation, e.g., destroy evidence or 
flee the area to avoid the investigation.
    (2) From subsection (c)(4) notification requirements because this 
system is exempt from the access and amendment provisions of subsection 
(d) as well as the access to accounting of disclosures provision of 
subsection (c)(3). The FBI takes seriously its obligation to maintain 
accurate records despite its assertion of this exemption, and to the 
extent it, in its sole discretion, agrees to permit amendment or 
correction of records, it will share that information in appropriate 
cases.
    (3) From subsection (d)(1), (2), (3), and (4), (e)(4)(G) and (H) 
because these provisions concern individual access to and amendment of 
law enforcement, intelligence and counterintelligence, and 
counterterrorism records and compliance could alert the subject of an 
authorized law enforcement or intelligence activity about that 
particular activity and the investigative interest of the FBI and/or 
other law enforcement or intelligence agencies. Providing access could 
compromise sensitive information classified to protect national 
security; disclose information which would constitute an unwarranted 
invasion of another's personal privacy; reveal a sensitive 
investigative or intelligence technique; could provide information that 
would allow a subject to avoid detection or apprehension; or constitute 
a potential danger to the health or safety of law enforcement 
personnel, confidential sources, and witnesses.
    (4) From subsection (e)(1) because it is not always possible to 
know in advance what information is relevant and necessary for law 
enforcement and intelligence purposes, and a major tenet of DIVS is 
that the relevance and utility of certain information that may have a 
nexus to terrorism or other crimes may not always be evident until and 
unless it is vetted and matched with other sources of information that 
are necessarily and lawfully maintained by the FBI.
    (5) From subsection (e)(2) and (3) because application of this 
provision could present a serious impediment to efforts to solve crimes 
and improve national security. Application of these provisions would 
put the subject of an investigation on notice of that fact and allow 
the subject an opportunity to engage in conduct intended to impede that 
activity or avoid apprehension.
    (6) From subsection (e)(4)(I), to the extent that this subsection 
is interpreted to require more detail regarding the record sources in 
this system than has been published in the Federal Register. Should the 
subsection be so interpreted, exemption from this provision is 
necessary to protect the sources of law enforcement and intelligence 
information and to protect the privacy and safety of witnesses and 
informants and others who provide information to the FBI. Further, 
greater specificity of properly classified records could compromise 
national security.
    (7) From subsection (e)(5) because in the collection of information 
for authorized law enforcement and intelligence purposes, it is 
impossible to determine in advance what information is accurate, 
relevant, timely and complete. With time, seemingly irrelevant or 
untimely information may acquire new significance when new details are 
brought to light. Additionally, the information may aid in establishing 
patterns of activity and providing criminal or intelligence leads. It 
could impede investigative progress if it were necessary to assure 
relevance, accuracy, timeliness and completeness of all information 
obtained during the scope of an investigation. Further, some

[[Page 53264]]

of the records searched by and/or contained in DIVS may come from other 
agencies and it would be administratively impossible for the FBI to 
vouch for the compliance of these agencies with this provision.
    (8) From subsection (e)(8) because to require individual notice of 
disclosure of information due to compulsory legal process would pose an 
impossible administrative burden on the FBI and may alert the subjects 
of law enforcement investigations, who might be otherwise unaware, to 
the fact of those investigations.
    (9) From subsections (f) and (g) to the extent that the system is 
exempt from other specific subsections of the Privacy Act.

    Dated: August 20, 2010.
Nancy C. Libin,
Chief Privacy and Civil Liberties Officer.
[FR Doc. 2010-21247 Filed 8-30-10; 8:45 am]
BILLING CODE 4410-02-P