[Federal Register Volume 85, Number 55 (Friday, March 20, 2020)]
[Notices]
[Pages 16119-16122]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-05926]


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DEPARTMENT OF HOMELAND SECURITY

Transportation Security Administration


Explosives Detection Canine Recommended Standards

AGENCY: Transportation Security Administration, DHS.

ACTION: Notice; recommended standards.

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SUMMARY: The Transportation Security Administration (TSA) is publishing 
this notice to provide recommended technical, medical, and behavioral 
standards for explosives detection canines. TSA is recommending these 
standards to assist transportation stakeholders in evaluating canines 
to be purchased for purposes of an explosive detection canine team to 
screen individuals and property in the public areas of airports in the 
United States. The recommended standards provided through this notice 
are consistent with the standards TSA requires for canines to be 
purchased for purposes of TSA's explosive detection canine programs.

FOR FURTHER INFORMATION CONTACT:  CTC Resolution Team, Canine Training 
Center, Office of Training and Development, Transportation Security 
Administration, U.S. Department of Homeland Security; email to 
[email protected] (Note: Address requires underscore, 
``_'', between ``CTC'' and ``Resolution.'')

SUPPLEMENTARY INFORMATION: 

I. Background

    TSA recognizes that canines successful at explosives detection in 
active and dynamic transportation environments are a specialized 
product. There is a clear distinction that separates these canines from 
the typical pet population or canines used/trained for tasks in a more 
controlled and repeatable environment. This specialization is even more 
pronounced in canines used to search individuals who may be wearing 
hidden improvised explosive devices.
    Both TSA and Congress recognize that a successful explosive 
detection canine begins with a canine that meets certain technical, 
behavioral, and medical standards before training begins. Section 1927 
of the TSA Modernization Act,\1\ requires TSA to establish a working 
group composed of canine experts to develop standards and 
recommendations for the breeding and training of canines capable of 
detecting explosives, and to develop recommendations on how TSA can 
engage other stakeholders to further the development of domestic canine 
breeding capacity and training.
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    \1\ Division K, Public Law 115-254 (132 Stat. 3186; Oct. 5, 
2018).
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    To meet this requirement, TSA and the Department of Homeland 
Security's Science and Technology (S & T) Directorate identified 
partners in law enforcement, academia, and the working canine vendor 
community.\2\ This

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working group met several times to develop the standards required by 
section 1927. TSA consulted with the working group and its work on 
breeding standards when posting a Blanket Purchase Agreement (BPA) for 
explosive detection canines for TSA, published in December 2019 (Notice 
ID 70T02018Q9NOTD408).\3\
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    \2\ The working group included representatives from the TSA 
Canine Training Center (CTC), Auburn University, DHS S&T 
Directorate, National Police Canine Association, American Kennel 
Club, Superior Tactics, Arete Canines, Penn Vet Working Dog Center, 
and Johns Hopkins University Applied Physics Laboratory.
    \3\ Documents related to this BPA are available at the following 
website: https://beta.sam.gov/opp/2bd9fcadb432426eb4782d6d08b267a2/view.
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    Section 1928 of the TSA Modernization Act requires TSA to enhance 
the supply of canines for purchase by TSA and transportation 
stakeholders by publishing these behavior, medical, and technical 
standards with the expectation that they may be used by transportation 
stakeholders in purchasing third-party explosives detection canines to 
be eventually certified by appropriate authorities for the screening of 
individuals and property, including detection of explosive vapors among 
individuals and articles of property.\4\ The statutes requires the 
standards made available under section 1928 for transportation 
stakeholders to be based on the standards developed under section 1927.
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    \4\ Id. at Sec.  1928(a).
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    TSA is providing the following recommended standards for 
transportation stakeholders to apply when purchasing canines for an 
explosive detection canine program. The recommended standards are 
consistent with TSA's requirements for explosive detection canines, as 
stated in the BPA,\5\ with modifications to make them more relevant to 
TSA's transportation stakeholders.
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    \5\ For more detailed information on the standards, TSA 
encourages transportation stakeholders to review the additional 
documentation in the BPA See supra n. 3.
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    TSA encourages transportation stakeholders to use these recommended 
standards when purchasing canines intended to provide an explosive 
detection canine team capability for purposes such as enhancing 
security within the public area of airports. For purposes of these 
standards, potential transportation-stakeholder purchasers are referred 
to as ``procurers'' and any breeders or other persons offering canines 
for purchase are referred to as ``vendors.''
    This notice neither addresses nor identifies specific companies or 
organizations to be used by transportation stakeholders to certify 
explosives detection canine teams. To the extent the notice refers to 
certification,\6\ TSA recognizes that there are numerous organizations 
that conduct certifications of canine teams, including certification 
for explosive detection capabilities, and encourages transportation 
stakeholders to become familiar with their certification requirements. 
The notice also assumes that not all dogs presented by a vendor for 
purchase will meet the needs of the procurer and that a procurer using 
these recommended standards will have individuals qualified to assess 
and evaluate canines to determine whether they meet the standards.
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    \6\ See, e.g., the United States Police Canine Association, 
North American Police Working Dog Association, and the International 
Police Working Dog Association.
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    The contents of this notice do not have force and effect of law and 
are not meant to bind the public in any way. This notice is intended 
only to provide clarity to the public regarding existing requirements 
under the law or agency policies.

II. Standards

    A. Technical Standards. TSA recommends that transportation 
stakeholders apply the following technical standards when procuring 
canines for an explosive detection canine team capability.
    1. Identification.--The vendor should ensure that all potential 
candidate canines should have a permanent identification in the form of 
an implantation a microchip before being presented for potential 
purchase. In general, TSA recommends that the microchip meet 
International Organization for Standardization (ISO) standards. The 
vendor and subsequent procurer should consistently use this microchip 
ID as the legal marker on all radiographs for purposes of medical 
requirements and evaluation. The microchip should be clearly 
identifiable as associated with the specific canine in all medical and 
training records.
    2. Breed.--Canines should be of one of the following sporting 
breeds: Labrador Retrievers, Flat Coated Retrievers, Vizslas, and 
German Shorthaired/Wirehaired Pointers.
    3. Age.--All canines presented for training should be between 12-36 
months of age at the time of delivery.
    4. Sex (surgical altering).--Males and females may be procured 
reproductively ``intact.''
    5. Immediate disqualifiers for assessment acceptance.--
    (a) Canines previously screened or evaluated by the procurer within 
the previous 30 days.
    (b) Canines previously determined by the procurer to have 
disqualifying behavioral or medical characteristics in past 
evaluations. This disqualification should include any canine previously 
eliminated from the TSA program or other federal, state, or local 
program based on behavior or medical characteristics.
    (c) Any canine showing signs of fear, shyness, retreating, or 
avoidance behaviors (people and environment), noise sensitivity (to 
include the potential for gunfire), submissive urination, or refusal to 
negotiate objects.
    (d) Aggression.--Any canine with a clear history of aggression or 
showing aggressive behavior toward human beings or other animals, as 
defined by the SWGCANINE guidelines (https://swgcanine.fiu.edu/), as 
well as toward items and equipment in and around the testing area 
should not be accepted.
    (e) Forced training.--Evidence, as determined by the evaluators, 
that the canine has been subjected to forced fetch, electronic collar 
training, or the use of some form of compulsion in an effort to force a 
canine to pick up or retrieve an object.
    (f) Disease or Injury.--Canines that are injured, displaying 
potentially infectious disease, or are considered overweight or 
underweight should not be accepted for assessment. Previously medically 
declined canines with medical records displaying treatment and recovery 
from injury or disease may be assessed.
    (g) Medical disqualifications (see Medical Requirements).
    (h) Falsification identified in any of the deliverable records.
    6. Cumulative Disqualifiers.--The following behaviors, although not 
an all-inclusive list, are often cumulative in nature and may 
constitute a failure:
    (a) Loss of interest in the reward object.
    (b) Failure to pursue thrown reward object.
    (c) Visual rather than olfactory search behavior.
    (d) Weak or interrupted search behavior.
    (e) Displays a lack of physical stamina.
    (f) Failure to accept being placed in sit position.
    (g) Failure to return to active/effective search behavior after 
being placed in sit position.
    (h) Strong tendency to scratch, claw or bite objects in the 
environment, to include reward/odor, while searching.
    (i) Excessive interest in distracting odors or stimuli or 
preoccupation with scent-marking.
    (j) Failure to follow presentations.

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    (k) Overreliance on presentations or encouragement from the 
evaluator/handler to maintain productive search behavior.
    (l) Repeated disruption of search behavior due to inability to 
ignore distractions. During the search, the canine should be expected 
to tolerate close contact with one or more persons that may speak to or 
touch the canine, make noise, or use objects in the environment to 
provide strong visual and auditory stimuli.
    (m) Frustration demonstrated by barking or other vocalizations.
    (n) Repetitive open mouth searching as opposed to sniffing behavior 
during a search.
    (o) Canines requiring excessive amounts of praise to perform tasks. 
The emphasis is for a canine with strong independent search abilities.
    (p) Repetitive immature behaviors.
    B. Medical Standards. TSA recommends that transportation 
stakeholders apply the following medical standards when procuring 
canines for an explosive detection canine team capability.
    1. In general, all canines should be in excellent health with no 
acute or chronic disease or condition, which could either hamper their 
ability to perform, or would be excessively costly to treat. At the 
time of evaluation, each canine should be medically able to enter 
training/certification events.
    2. Medical Screening of Radiographs of Candidate Canines.--Vendors 
should submit diagnostic quality film or digital radiographs, at no 
cost to the procurer, for non-binding evaluation of elbow, lumbar spine 
and hip conformation. Minimum data imprinted (``flashed'') permanently 
on the radiograph/digital image at the time of exposure should include 
canine identification (name, tattoo/brand number, if assigned, and 
microchip number), whelping date, the facility at which they were 
taken, and date of examination. Date of radiographic examination should 
be no greater than 4 months (120 days) prior to evaluation of the 
canine. Following initial radiographic screening, vendors should be 
notified if radiographs for any canine they intend to present are not 
of sufficient diagnostic quality and should need to be repeated prior 
to scheduled arrival. Canines may be rejected upon initial arrival 
examination if their radiographs should not be submitted before 
scheduled arrival, or are inadequate for evaluation until repeat 
radiographic submissions are of satisfactory diagnostic quality.
    3. Veterinary staff supporting the procurer of canines for 
explosive detection should examine all canines that have passed the 
initial behavioral selection process. This evaluation should include 
complete physical examination; collection of blood for routine testing; 
and possibly, anesthesia and radiographs of the hips, elbows, lumbar 
spine or other areas based on examination, even if imaging has been 
performed previously by the vendor. Laboratory availability may affect 
the procurer ability to perform specific tests. However, the laboratory 
minimum database should include: Blood urea nitrogen, blood creatinine, 
serum electrolytes, blood glucose, packed cell volume, and total 
solids. Screening for infectious diseases/organisms such as T. Cruzi, 
Leishmania sp, Lyme disease, or other diseases/organisms depending on 
origin of the canine may be necessary as determined by the 
veterinarian. The veterinarian should assess abnormalities to determine 
the presence of acute or chronic disease processes that may have long-
term medical care implications for the canine. If further evaluation is 
warranted, tests should be completed at the discretion of the 
veterinarian or the canine should be determined to be unacceptable. The 
following areas should be evaluated closely; most, but not all, 
disqualifying features are noted. A canine that has been presented once 
for consideration for purchase and that has been disqualified for 
medical reasons should not be resubmitted for consideration unless the 
vendor can document that the medically disqualifying condition has been 
corrected.
    (a) Gait.--All canines should display normal mobility at a walk and 
run. Canines should be disqualified for any gait abnormality which 
could affect the canine's ability to perform normal explosive detection 
canine duties.
    (b) Skin and Coat.--Skin and coat should be healthy in appearance, 
displaying no evidence of chronic dermatitis, allergies, infections, 
injuries or marked external parasite infestation (e.g., mange, fleas, 
etc.). A matted, unthrifty hair coat may not be grounds for 
disqualification but should raise concern about the canine's general 
health.
    (b) Teeth and Jaws.--Canines should have normal dentition and 
dental occlusion. Canines should be rejected if they have 
brachygnathism (undershot jaw) or prognathism (overshot jaws) if the 
veterinarian feels the condition should adversely affect eating or 
handling of the reward. All four canine teeth should be present and not 
be weakened by notching, enamel hypoplasia or excessive wear. Teeth 
should not have more than \1/3\ inch of the tip missing or have pulp 
cavity exposed. Oral infection or excessive periodontal diseases should 
be grounds for disqualifying a canine and broken teeth or excessively 
worn teeth may be disqualifying.
    (d) Heart and Lungs.--Heart sounds, rate and rhythm should be 
normal (e.g., no murmurs, arrhythmia, etc.). In general, the 
cardiovascular and respiratory system should be normal at rest and upon 
exercise.
    (e) Limbs and Joints.--Any condition of the bones, joints or 
muscles that might hamper or restrict the normal performance of duty is 
grounds for disqualification. Examples include:
    (i) Hip dysplasia and elbow dysplasia. A malformation of the hip 
and elbow joints, respectively, which usually results in degenerative 
joint disease, arthritis and chronic lameness. Radiographic evidence of 
hip dysplasia or elbow dysplasia or degenerative joint disease, as 
determined by the veterinarian, should disqualify a canine.
    (ii) Fractures, which are unhealed, should be disqualifying. Healed 
fractures resulting in significant bone or joint conformation changes 
or lameness should be disqualifying.
    (iii) Ligament damage, osteoarthritis, etc., of the limb joints is 
generally disqualifying.
    (iv) Transitional vertebrae of the caudal lumbar spine, lumbosacral 
junction or sacrum should be disqualifying. Asymmetric pelvic 
attachment is also disqualifying.
    (f) Nervous System and Basic Senses.--Any defect in the nervous 
system, to include the basic senses of vision, hearing and sense of 
smell, should be considered disqualifying. Examples include, but are 
not limited to, opacities of the cornea, eyelid deformities, cataracts, 
retinal degeneration, chronic otitis, acute or chronic rhinitis/
sinusitis and spinal disease.
    (g) Heartworms.--All canines submitted for purchase should be free 
of heartworm infection (Dirofilaria immitis). The presence of heartworm 
infection should be determined by using a heartworm antigen test. A 
negative heartworm concentration test (filtration or Knott's) is not 
sufficient evidence to declare the canine heartworm-free.
    (h) Intestinal Parasitism.--Infection with intestinal parasites 
(roundworms, hookworms, tapeworms, etc.) may not be disqualifying, 
depending on the level of infection and the overall condition of the 
canine. Presence of intestinal parasites is, however, an indication of 
poor care and should raise concern about the canine's general health.
    (i) External Parasitism.--Presence of fleas, ticks, lice, mange 
mites or ear

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mites may not be disqualifying, depending on the amount of infestation, 
the degree of associated skin disease, and the overall condition of the 
canine. Presence of external parasites is, however, an indication of 
poor care and should raise concern about the canine's general health.
    (j) Immunization.--All canines presented should have been 
vaccinated within the previous 12 months for rabies, canine distemper, 
canine adenovirus (TYPE 2), coronavirus, parainfluenza, parvovirus and 
leptospirosis. All canines should also have been vaccinated for 
Bordetella within the previous 6 months (but no less than 1 month prior 
to presentation); preferably via the modified live oral or intranasal 
forms but the killed subcutaneous injectable version is also 
acceptable. Records of all vaccination administration should be copied 
from a legal veterinary medical record and signed by the licensed 
veterinarian responsible for administration of the vaccinations. A 
rabies vaccination certificate, with individual canine identification 
(name, tattoo, brand or microchip #) should be provided for all 
canines. This documentation facilitates health certificate preparation, 
if the canine is to be returned to the vendor.
    (k) Socialization.--All canines presented should be socialized to 
medical examinations. Canines that cannot be properly examined due to 
poor socialization should be rejected. Rejected canines may be 
represented after behavior has been modified to allow medical 
examination.
    (l) Reproductive and Urinary System.--Any congenital or 
conformational abnormality is disqualifying, if the defect requires 
long-term medical treatment or results in a shortened working life of 
the canine. (e.g., cryptorchidism is not disqualifying unless the 
retained testicle results in medical complications not treatable by 
simple orchiectomy. A juvenile vulva resulting in urine scalding is 
disqualifying.)
    5. Veterinary Medical Facilities.--Before submitting a canine for 
evaluation by the procurer, the vendor should have canines examined by 
a veterinary facility that can provide diagnostic quality hip, elbow, 
and lumbar spine radiographs/digital images (under sedation/
anesthesia), and an examination room capable of supporting 
ophthalmology and cardiology examinations, and laboratory support to do 
basic serum chemistries. The vendor should provide radiographs of 
candidate canines for evaluation that have been completed no more than 
four (4) months prior to evaluation of the canine (images performed at 
time of examination should be acceptable). The radiographs should meet 
the minimum identification requirements of paragraph A (1) above.
    5. Common Medically-Disqualifying Conditions.--The following list 
is provided as a helpful guide and example to all vendors presenting 
canines and is not intended to be a complete list.
    (a) Hematological abnormalities consistent with severe parasitism, 
infection, or metabolic disease.
    (b) Poor body condition, either emaciation or obesity.
    (c) Severe periodontal disease.
    (d) Severe, non-resolving or intractable otitis externa or 
dermatitis.
    (e) Radiographic signs of hip or elbow dysplasia or radiographic 
evidence of degenerative joint disease.
    (f) Transitional vertebrae of the caudal lumbar spine, lumbosacral 
junction or sacrum should be disqualifying, as is the presence of any 
degenerative change in the lumbar spine (such as arthritis). Asymmetric 
pelvic attachment is also disqualifying.
    (g) Previous musculoskeletal injury, which has or may lead to 
degenerative joint disease or conformational abnormality.
    C. Behavioral Standards. TSA recommends that transportation 
stakeholders apply the following behavioral standards when procuring 
canines for an explosive detection canine team capability.
    1. Whenever possible, the procurer should offer a demonstration to 
vendors before placement of an order for canines, to observe a canine 
being taken through the assessment areas with the procurer's evaluator, 
demonstrating how each assessment will be performed. Vendors should be 
allowed to be present during testing events providing they receive 
prior approval from the procurer, and remain in an observation capacity 
throughout the assessment.
    2. The vendor should have prepared the canine sufficiently to be 
resilient to the stress associated with the procurement process. This 
should include, but not be limited to, transport in canine trailers/
vehicles, handling by strangers, unfamiliar kennel environs, veterinary 
care (in muzzle), and unfamiliar assessment environments.
    3. The canine(s) general assessment should begin as soon as the 
canines are provided to the procurer's evaluators and continue until 
canines are accepted or disqualified. This includes observations made 
by all persons handling or observing the canine during the assessment 
period. The assessment should conclude at acceptance or 
disqualification.
    4. Canines presented by the vendor for purchase should have a high 
level of environmental confidence and sociability to be deployed in an 
active, high paced and dynamic environments. If the vendor presents the 
canine as completely trained, it should be trained and ready for any 
required validation/certification necessary for deployment in public 
areas of an airport, including any odors determined appropriate by the 
certifying organization.
    5. Vendors should be expected to prepare the canine to meet any 
required certification standards. The procurer should evaluate 
trainability during the assessment, but trainability should not 
outweigh other deficiencies in the assessment criteria. The procurer 
should make it clear to the vendor/handler that excessive use of praise 
or motivational rewards should not be used as a means to assist the 
canine with a specific socialization, environmental stability or search 
assessments. Searching ability with effective olfactory acuity should 
be self-driven for the canine and independent from the handler's input.

III. Conclusion

    Explosives detection canines are a proven deterrent and effective 
detection technology when well-trained and deployed consistent with 
their training. The need to increase security in airports both at the 
checkpoint and in public areas drives the need for TSA to identify 
options for increasing the availability and use of canines. When 
effectively training and deployed, adding the deployment of explosive 
detection canine teams to security measures can successfully address 
vulnerabilities and emerging threats.

    Dated: March 16, 2020.
Kimberly Walton,
Executive Assistant Administrator, Enterprise Support.
[FR Doc. 2020-05926 Filed 3-19-20; 8:45 am]
 BILLING CODE 9110-05-P