[Federal Register Volume 81, Number 110 (Wednesday, June 8, 2016)]
[Rules and Regulations]
[Pages 36801-36803]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-13599]


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NATIONAL ARCHIVES AND RECORDS ADMINISTRATION

36 CFR Part 1202

[FDMS No. NARA-16-0005; NARA-2016-021]
RIN 3095-AB91


Privacy Act of 1974; Exemptions

AGENCY: National Archives and Records Administration (NARA).

ACTION: Direct final rule.

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SUMMARY: The National Archives and Records Administration (NARA) is 
revising its Privacy Act regulations to add a new insider threat system 
of records to the records exempt from release under the law enforcement 
exemption of the Privacy Act. This action is necessary to protect 
investigatory information from release that could compromise or damage 
the investigation, result in evidence tampering or destruction, undue 
influence of witnesses, danger to individuals, and similar harmful 
effects.

DATES: This rule is effective July 18, 2016, without further action, 
unless NARA receives adverse comments warranting action by July 8, 
2016. If NARA receives an adverse comment warranting further action, it 
will publish a timely withdrawal of the rule in the Federal Register.

ADDRESSES: You may submit comments, identified by RIN 3095-AB91, by any 
of the following methods:
     Federal eRulemaking Portal: http://www.regulations.gov. 
Follow the instructions for submitting comments.
     Email: [email protected]. Include RIN 3095-AB91 
in the subject line of the message.
     Fax: 301-837-0319. Include RIN 3095-AB91 in the subject 
line of the fax cover sheet.
     Mail (for paper, disk, or CD-ROM submissions. Include RIN 
3095-AB91 on the submission): Regulations Comment Desk (External Policy 
Program, Strategy & Performance Division (SP)); Suite 4100; National 
Archives and Records Administration; 8601 Adelphi Road; College Park, 
MD 20740-6001.
     Hand delivery or courier: Deliver comments to front desk 
at the address above.
    Instructions: All submissions must include NARA's name and the 
regulatory information number for this rulemaking (RIN 3095-AB91). We 
may publish any comments we receive without changes, including any 
personal information you include.

FOR FURTHER INFORMATION CONTACT: Kimberly Keravuori, by email at 
[email protected], or by telephone at 301-837-3151.

SUPPLEMENTARY INFORMATION: The National Archives and Records 
Administration (NARA) is adding a system of records to its existing 
inventory of systems subject to the Privacy Act of 1974, as amended (5 
U.S.C. 552(a)) (``Privacy Act''). The new system is NARA 45, Insider 
Threat Program records (we are publishing the NARA 45 SORN concurrently 
with this regulation), and it comprises records gathered for purposes 
of investigating threats to NARA facilities, personnel, or systems, or 
national security. The system contains investigatory material of 
actual, potential, or alleged criminal, civil, or administrative 
violations and law enforcement actions.
    The Privacy Act generally grants individuals the right to access 
agency records maintained about themselves, and the right to request 
that the agency amend those records if they are not accurate, relevant, 
timely, or complete. However, the Privacy Act also exempts, by means of 
ten specific exemptions, an agency from granting a person access to 
information about themselves that the agency compiles for certain types 
of law enforcement or investigatory actions. Specifically for the 
purposes of this rulemaking, the Privacy Act exempts an agency from 
granting access to ``investigatory material compiled for law 
enforcement purposes, other than material within the scope of 
subsection (j)(2) of this section: Provided, however, that if any 
individual is denied any right, privilege, or benefit that he would 
otherwise be entitled by Federal law, or for which he would otherwise 
be eligible, as a result of the maintenance of such material, such 
material shall be provided to such individual, except to the extent 
that the disclosure of such material would reveal the identity of a 
source who furnished information to the Government under an express 
promise that the identity of the source would be held in confidence, 
or, prior to the effective date of this section [September 27, 1975], 
under an implied promise that the identity of the source would be held 
in confidence.'' 5 U.S.C. 552a(k)(2).
    NARA currently exempts Office of Inspector General investigative 
files under the (k)(2) exemption. See 36 CFR 1202.92. For similar 
reasons, we are now adding the insider threat program files to the same 
regulation section because the Insider Threat Program Records system of 
records contains investigatory material of actual, potential, or 
alleged violations, compiled for law enforcement purposes. Under Office 
of Management and Budget (OMB) Guidelines on the Privacy Act, to 
qualify for this exemption the agency must compile the material for 
some investigative ``law enforcement'' purpose, such as a civil or 
criminal investigation. Multiple court decisions have upheld the 
exemption for investigative records covering a range of purposes from 
discrimination complaints (see, e.g., Menchu v. HHS, 965 F. Supp. 2d 
1238, 1248 (D. Or. 2013)), fraud, waste, and abuse complaints (see, 
e.g., Gowan v. Air Force, 148 F.3d 1182, 1188-89 (10th Cir. 1998)), and 
taxpayer audits (see, e.g., Welsh v. IRS, No. 85-1024, slip op. at 2-3 
(D.N.M. Oct. 21, 1986)), to civil trust fund recovery penalty 
investigations (see, e.g., Berger v. IRS, 487 F. Supp. 2d 482, 497-98 
(D.N.J. 2007), aff'd 288 F. App'x 829 (3d Cir. 2008), cert. denied, 129 
S. Ct. 2789 (2009)) and deportation investigations (see, e.g., Shewchun 
v. INS, No. 95-1920, slip op. at 3, 8-9 (D.D.C. Dec. 10, 1996), summary 
affirmance granted, No. 97-5044 (D.C. Cir. June 5, 1997)). In addition, 
courts have also determined that this exemption covers investigations 
into potential threats to national security (see, e.g., Strang v. U.S. 
Arms Control & Disarmament Agency, 864 F.2d 859, 862-63 n.2 (D.C. Cir. 
1989) (``this case involves not a job applicant undergoing a routine 
check of his background and his ability to perform the job, but an 
existing agency employee investigated for violating national security 
regulations.'')
    Routine background investigation files are generally not exempt 
under the (k)(2) exemption of the Privacy Act, but in some limited 
cases portions of them may be exempt under (k)(2) because they also 
include information that would be the subject of a law

[[Page 36802]]

enforcement investigation under the scope of the exemption (see, e.g., 
Cohen v. FBI, No. 93-1701, slip op. at 4-6 (D.D.C. Oct. 3, 1995) 
(finding that particular information within a background investigation 
file qualified as ``law enforcement'' information ``withheld out of a 
legitimate concern for national security,'' and that `` `[s]o long as 
the investigation was ``realistically based on a legitimate concern 
that federal laws have been or may be violated or that national 
security may be breached'' the records may be considered law 
enforcement records' '' (quoting Vymetalik v. FBI, 785 F.2d 1090, 1098 
(D.C. Cir. 1986), in turn quoting Pratt v. Webster, 673 F.2d 408, 421 
(D.C. Cir. 1982))).
    NARA maintains a centralized hub for insider threat analysis to (1) 
manually and electronically gather, integrate, review, assess, and 
respond to information derived from internal and external sources, and 
(2) identify potential insider threat concerns and conduct an 
appropriate inquiry to resolve the concern. Section 811 of the 
Intelligence Authorization Act for FY 1995; executive orders 13587, 
13526, 12333, and 10450; Presidential Memorandum, National Insider 
Threat Policy and Minimum Standards for Executive Branch Insider Threat 
Programs, November 21, 2012; Presidential Memorandum, Early Detection 
of Espionage and Other Intelligence Activities through Identification 
and Referral of Anomalies, August 23, 1996; and Presidential Decision 
Directive/NSC-12, Security Awareness and Reporting of Foreign Contacts, 
August 5, 1993, authorize these insider threat assessment and 
investigation activities. As a result, the records in this system of 
records qualify as investigative records compiled for law enforcement 
purposes under the meaning of the Privacy Act's (k)(2) exemption. NARA 
is revising its regulations to exempt this information from disclosure 
under the Privacy Act so that it can prevent these investigations from 
being impeded or damaged by releasing the information.

Regulatory Analysis

Review Under Executive Orders 12866 and 13563

    Executive Order 12866, Regulatory Planning and Review, 58 FR 51735 
(September 30, 1993), and Executive Order 13563, Improving Regulation 
and Regulation Review, 76 FR 23821 (January 18, 2011), direct agencies 
to assess all costs and benefits of available regulatory alternatives 
and, if regulation is necessary, to select regulatory approaches that 
maximize net benefits (including potential economic, environmental, 
public health and safety effects, distributive impacts, and equity). 
This rule is not ``significant'' under section 3(f) of Executive Order 
12866 because will not create an economic or budgetary impact, create 
an inconsistency or interfere with other agencies, and does not raise 
novel issues; it exempts certain records from certain provisions of the 
Privacy Act in accord with established criteria. The Office of 
Management and Budget (OMB) has reviewed this regulation.

Review Under the Regulatory Flexibility Act (5 U.S.C. 601, et seq.)

    This review requires an agency to prepare an initial regulatory 
flexibility analysis and publish it when the agency publishes the 
proposed rule. This requirement does not apply if the agency certifies 
that the rule will not, if promulgated, have a significant economic 
impact on a substantial number of small entities (5 U.S.C. 603). NARA 
certifies, after review and analysis, that this rule will not have a 
significant adverse economic impact on small entities because it does 
not create an economic impact and does not affect small entities; it 
exempts certain records from certain provisions of the Privacy Act.

Review Under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et 
seq.)

    This rule does not contain any information collection requirements 
subject to the Paperwork Reduction Act.

Review Under Executive Order 13132, Federalism, 64 FR 43255 (August 4, 
1999)

    Review under Executive Order 13132 requires that agencies review 
regulations for federalism effects on the institutional interest of 
states and local governments, and, if the effects are sufficiently 
substantial, prepare a Federal assessment to assist senior policy 
makers. This rule will not have any direct effects on State and local 
governments within the meaning of the Executive Order. Therefore, the 
regulation requires no federalism assessment.

List of Subjects in 36 CFR Part 1202

    Privacy.
    For the reasons stated in the preamble, NARA proposes to amend 36 
CFR part 1202 as follows:

PART 1202--REGULATIONS IMPLEMENTING THE PRIVACY ACT OF 1974

0
1. The authority citation for part 1202 remains as follows:

    Authority:  5 U.S.C. 552(a); 44 U.S.C. 2104(a).


Sec.  1202.92  [Amended]

0
2. Revise Sec.  1202.92 to read as follows:


Sec.  1202.92  What NARA systems of records are exempt from release 
under the Law Enforcement Exemption of the Privacy Act?

    (a) The Investigative Files of the Inspector General (NARA-23) and 
the Insider Threat Program Records (NARA-45) systems of records are 
eligible for exemption under 5 U.S.C. 552a(k)(2) because these record 
systems contain investigatory material of actual, potential, or alleged 
criminal, civil, or administrative violations, compiled for law 
enforcement purposes other than within the scope of subsection (j)(2) 
of 5 U.S.C. 552a. If you are denied any right, privilege, or benefit to 
which you would otherwise be entitled by Federal law, or for which you 
would otherwise be eligible, as a result of the record, NARA will make 
the record available to you, except for any information in the record 
that would disclose the identity of a confidential source as described 
in 5 U.S.C. 552a(k)(2).
    (b) The systems described in paragraph (a) of this section are 
exempt from 5 U.S.C. 552a(c)(3), (d), (e)(1) and (e)(4), (G) and (H), 
and (f). Exemptions from the particular subsections are justified for 
the following reasons:
    (1) From subsection (c)(3) of 5 U.S.C. 552a because releasing 
disclosure accounting could alert the subject of an investigation about 
the alleged violations, about the existence of the investigation, and 
about the fact that they are being investigated by the Office of 
Inspector General (OIG), the Insider Threat Office, or another agency. 
Releasing these records could provide significant information 
concerning the nature of the investigation and result in tampering with 
or destroying evidence, influencing witnesses, endangering individuals 
involved, and other activities that could impede or compromise the 
investigation.
    (2) From the access and amendment provisions of subsection (d) of 5 
U.S.C. 552a because access to the information contained in these 
systems of records could inform the subject of an investigation about 
an actual or potential criminal, civil, or administrative violation; 
about the existence of that investigation; about the nature and scope 
of the information and

[[Page 36803]]

evidence obtained on the person's activities; about the identity of 
confidential sources, witnesses, and law enforcement personnel; and 
about information that may enable the person to avoid being detected or 
apprehended. These factors present a serious impediment to effective 
law enforcement when they prevent investigators from successfully 
completing the investigation, endanger the physical safety of 
confidential sources, witnesses, and law enforcement personnel, or lead 
to improperly influencing witnesses, destroying evidence, or 
fabricating testimony. In addition, granting access to such records 
could disclose security-sensitive or confidential business information 
or information that would constitute an unwarranted invasion of the 
personal privacy of third parties. Amending these records could allow 
the subject to avoid being detected or apprehended and interfere with 
ongoing investigations and law enforcement activities.
    (3) From subsection (e)(1) of 5 U.S.C. 552a because applying this 
provision could impair investigations and interfere with the law 
enforcement responsibilities of the OIG, the Insider Threat Office, or 
another agency for the following reasons:
    (i) It is not possible to detect relevance or need for specific 
information in the early stages of an investigation, case, or matter. 
After the investigators evaluate the information, they may establish 
its relevance and need.
    (ii) During an investigation, the investigating office may obtain 
information about other actual or potential criminal, civil, or 
administrative violations, including those outside the scope of its 
jurisdiction. The office should retain this information, as it may help 
establish patterns of inappropriate activity, and can provide valuable 
leads for Federal and other law enforcement agencies.
    (iii) When interviewing individuals or obtaining other forms of 
evidence during an investigation, the investigator may receive 
information that relates to matters incidental to the primary purpose 
of the investigation but which may also relate to matters under the 
investigative jurisdiction of another office or agency. The 
investigator cannot readily segregate such information.
    (4) From subsection (e)(4)(G) and (H) of 5 U.S.C. 552a because 
these systems are exempt from the access and amendment provisions of 
subsection (d), pursuant to subsection (k)(2) of the Privacy Act.
    (5) From subsection (f) of 5 U.S.C. 552a because these systems are 
exempt from the access and amendment provisions of subsection (d) of 5 
U.S.C. 552a, pursuant to subsection (k)(2) of the Privacy Act.

    Dated: May 29, 2016.
David S. Ferriero,
Archivist of the United States.
[FR Doc. 2016-13599 Filed 6-7-16; 8:45 am]
 BILLING CODE 7515-01-P