[Federal Register Volume 73, Number 147 (Wednesday, July 30, 2008)]
[Notices]
[Pages 44275-44278]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-17493]
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DEPARTMENT OF HOMELAND SECURITY
Transportation Security Administration
RIN 1652-ZA12
Registered Traveler Interoperability Pilot Program
AGENCY: Transportation Security Administration, DHS.
ACTION: Notice.
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SUMMARY: The Transportation Security Administration (TSA) published a
notice in the Federal Register on November 24, 2006, to establish the
Service Provider Key Personnel Fee and the Registered Traveler
Interoperability Pilot Participant Fee for the Registered Traveler
Interoperability Pilot (RTIP).
[[Page 44276]]
Under the RTIP, passengers who voluntarily provided biometric and
biographic information to TSA, or a TSA agent, and successfully
completed a TSA security threat assessment, could obtain expedited
security screening at participating airports. TSA implemented the fees
announced in the November 24, 2006, notice to compensate TSA for the
cost of performing security threat assessments on RTIP applicants and
related program operation costs. Today, TSA is announcing the
completion of the RTIP and termination of the TSA RTIP fees. TSA will
continue to work with private sector partners as they continue to
develop the Registered Traveler business as a private sector
enterprise. That business is no longer limited to the 10-20 locations
outlined in the November 24, 2006 Federal Register notice.
DATES: This notice is effective July 30, 2008.
FOR FURTHER INFORMATION CONTACT: Thomas Cowley, Director, Aviation
Credentialing, Office of Transportation Threat Assessment and
Credentialing (TTAC), TSA-19, Transportation Security Administration,
601 South 12th Street, Arlington, VA 22202-4220; facsimile (571) 227-
1936; e-mail: [email protected].
SUPPLEMENTARY INFORMATION:
Availability of Notice Document
You can get an electronic copy using the Internet by--
(1) Accessing the Government Printing Office's Web page at: http://www.gpoaccess.gov/fr/index.html; or
(2) Visiting TSA's Security Regulations Web page at http://www.tsa.gov and accessing the link for ``Research Center'' at the top
of the page.
In addition, copies are available by writing the individual in the
FOR FURTHER INFORMATION CONTACT section.
I. Background
The Aviation and Transportation Security Act (ATSA), Public Law
107-71 (115 Stat. 597, 613, Nov. 19, 2001), sec. 109(a)(3), authorizes
the Transportation Security Administration (TSA) to ``establish
requirements to implement trusted passenger programs and use available
technologies to expedite security screening of passengers who
participate in such programs, thereby allowing security screening
personnel to focus on those passengers who should be subject to more
extensive screening.'' To enable a nationwide private sector Registered
Traveler (RT) business opportunity, TSA has been working, and continues
to work, with private sector providers of RT to harmonize technologies
and business processes with government credentialing and screening
standards and procedures to improve commercial air travel while
continuing to safeguard transportation and national security.
RT has been developed through a series of three pilots. TSA
announced the first pilot, the Registered Traveler Pilot Program, on
July 7, 2004. The Registered Traveler Pilot Program was a federally-
managed pilot conducted at five designated airports \1\ that
established biometrics use in identity verification and determined
baselines for public acceptance. The second pilot program, named the
Private Sector Known Traveler, tested the feasibility of implementing
RT through a public/private partnership at a single airport. The third
pilot, the RTIP, further tested and evaluated this type of trusted
passenger program. The RTIP also introduced interoperability among
participating airports/air carriers and operated with larger
populations.
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\1\ Minneapolis-St. Paul Airport, Los Angeles International
Airport, George Bush International Airport/Houston, Boston Logan
International Airport, and Ronald Reagan Washington National
Airport.
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RT is a private sector business opportunity that currently is
supported and overseen by TSA, with distinct roles and responsibilities
for each participating entity. Under the RTIP and its predecessor
pilots, TSA was responsible for setting program standards and
conducting the security threat assessment, physical screening at TSA
checkpoints and certain forms of oversight. The private sector was
responsible for enrollment, identity verification, concierge and
related services.
Under the RTIP enrollment process, RT applicants voluntarily
provided RT Sponsoring Entities (i.e., participating airport
authorities or air carrier operators) and Service Providers (i.e., a
private sector vendor chosen by a Sponsoring Entity to implement RT as
its agent) with biographic and biometric data needed for TSA to conduct
the security threat assessment and determine eligibility. The TSA
security threat assessment included checking each applicant's
biographic information against terrorist-related, law enforcement, and
immigration databases that TSA maintains or uses. RT applicants who
received an ``approved'' security threat assessment result were
authorized to become program participants.
Once a traveler qualified as an approved participant, the traveler
was able to take advantage of the expedited screening process available
exclusively through the RT program. At the airport screening
checkpoint, RT participants entered a designated RT lane and verified
their identity through biometric identity verification technologies.
This process also ensured that the individual was an ``approved'' RT
participant. After the identity and current status of the RT
participant were verified, the participant entered the checkpoint lane
identified for registered travelers and underwent the applicable TSA
checkpoint screening. These processes will remain largely unchanged
with the end of the RTIP and expansion of RT. They should provide the
basis to expedite the RT participants' entrance into the screening
process.
In evaluating the RTIP, TSA reached several conclusions that led to
the termination of the TSA fee being announced today. First, current
technology is insufficient to allow anyone, even travelers who provide
biographic and biometric information and undergo a TSA security threat
assessment, to bypass the minimum screening procedures at airport
security checkpoints. For example, one service provider suggested that
a device to scan shoes replace the requirement that the passenger
remove his or her shoes. TSA tested the shoe scanner and concluded that
it was less effective than existing x-ray capabilities which require a
TSA officer to monitor materials to detect potential explosive or other
dangerous devices in shoes, purses or other carry-on materials during
TSA screening.
Second, TSA concluded that an individual's successful completion of
a TSA threat assessment did not eliminate the possibility that the
individual might initiate an action that threatens the lives of other
passengers. Therefore, screening of these individuals should remain the
same as screening of other passengers.
Third, while effective identity verification is a critically
important element in a multi-layered approach to aviation security, RT
is not a stand-alone security program. Finally, the interoperability of
the RT is a beneficial element. RT Service Providers have demonstrated
the ability to verify technically and recognize revocation of each
other's cards. Based on these observations and conclusions, TSA has
concluded the RTIP and has decided to focus the government role in
relation to RT on its identity verification benefits.
II. Evolution of Registered Traveler
A. Roles and Responsibilities Under RT
With the conclusion of the RTIP, TSA is announcing modifications to
RT.
[[Page 44277]]
These modifications include changes to TSA's role. TSA will set
security standards for RT through modifications to the Sponsoring
Entities' security programs. TSA will continue to exercise oversight of
the Sponsoring Entities to ensure compliance with the security
standards. These security standards will be similar in nature to the
security standards currently in place for the RTIP and will enhance
security features. However, TSA will no longer set other standards for,
or conduct security threat assessments of, RT applicants. TSA will also
continue its screening operations at the security checkpoint. RT
participants will continue to be screened according to the standard TSA
screening process and vetted against the No Fly and Selectee Lists of
the Terrorist Screening Database.
The private sector will have the primary role in RT's future.
Sponsoring Entities will continue to select their Service Providers and
enter into a contractual relationship with them. The Sponsoring
Entities will continue to be responsible for overseeing and monitoring
their Service Providers, and for ensuring their compliance with the
requirements of RT. These requirements are part of the Sponsoring
Entities' security programs.
As the vendors for the Sponsoring Entities, the Service Providers
will continue to provide enrollment and verification services. As
discussed in further detail in Section II.B, Sponsoring Entities and
Service Providers may elect to develop and implement an enhanced
identity verification process. Sponsoring Entities and Service
Providers may also develop other benefits and innovations for RT
provided that the benefits and innovations are not inconsistent with
the Sponsoring Entities' security programs.
RT benefits will continue to be determined locally and may vary by
location. It will be the responsibility of the private sector Service
Providers and Sponsoring Entities (airports or air carriers) to fashion
each arrangement, consistent with the TSA approved standards for
Sponsoring Entities' security programs.
RT participants voluntarily provide information to Sponsoring
Entities and Service Providers as part of an enhanced identity
verification business opportunity. RT participants may receive benefits
such as using designated security lanes or expedited access to security
screening. These benefits are determined and modified at the discretion
of the Sponsoring Entities and their Service Providers.
B. Identity Verification Benefits of Registered Traveler
The name on the individual's boarding pass is the name that is used
to perform watch list matching. RT can be effective in verifying that
the passenger who is traveling is actually the person whose name is on
the boarding pass. RT represents a private-sector alternative by which
travelers can establish their identities, and biographically and
biometrically link that identity to their RT cards.
RT Service Providers perform identity verification as part of the
RT enrollment process. The verification process at the airport RT lanes
confirms that the individual who is presenting the RT card is the
individual who has established his or her identity during the
enrollment process. Together, the RT enrollment and verification
processes perform the main security function of the TSA Travel Document
Checker (TDC) at the screening checkpoint, which is to verify the
identity of travelers before they enter the sterile area. Thus RT
participants may bypass the TDC if their RT cards contain the
appropriate biometric and biographic information.
New Sponsoring Entities that wish to offer RT services at their
respective airports will need to demonstrate that their enrollment
Service Providers adopt a process that adequately establishes a RT
participant's identity. This process will be similar to the process in
place for the RTIP. Because identity verification is an important
component of TSA's layered security approach, airport operators and
aircraft operators who wish to begin to offer RT service after the
effective date of this notice must adopt an amendment to their security
program that satisfies the identity verification requirements and all
other RT requirements prior to commencing RT operations at their
respective airports.
Sponsoring Entities that currently have RT operations under the
RTIP may continue with their RT operations under their existing
security program amendments consistent with this notice.
C. Transition Period
TSA required interoperability as part of the RTIP with the
understanding that the Service Providers would negotiate with each
other to establish any fees they would charge each other to implement
interoperability.
A twelve-month transition period will be provided following the
effective date of this notice where Service Providers must accept all
valid RT cards at all locations, ensuring that RT participants who
recently joined an RT program will have the interoperability benefits
for which they enrolled. Thereafter, RT Service Providers must continue
to be able to technically verify and recognize revocation of each
other's cards, but they will not be required to guarantee
interoperability. TSA is leaving it to the private sector (i.e.,
Sponsoring Entities, Service Providers, customers, and other interested
stakeholders) to determine how to address acceptance, including the
possibility of transfer fees.
D. Rescission of Registered Traveler Interoperability Pilot Fees
TSA has determined that the current security threat assessment
largely duplicates the watch list matching that is conducted on all
travelers every time they fly. The other parts of the TSA are not core
elements in passenger security and will no longer be required. Because
TSA will no longer be conducting security threat assessments on RT
participants, TSA will no longer collect a security threat assessment
fee. Additionally, with the conclusion of the RTIP, TSA will no longer
collect a fee to cover the cost of the RTIP. Thus, the RTIP Participant
fee of $28 is rescinded as of the effective date of this notice. After
that date, TSA will no longer conduct security threat assessments on RT
participants.
Additionally, TSA will no longer collect the Service Provider Key
Personnel Fee. Service Providers, however, are the Sponsoring Entities'
contractors. Thus, Service Providers' employees who perform certain
functions, such as enrollment, must undergo a background check in
accordance with TSA's existing practices covering airport-sponsored
vendors, including the collection of fees.
If a Sponsoring Entity decides to create a separate, dedicated
screening lane for RT participants or institute a process that requires
Transportation Security Officer support beyond what TSA is currently
providing for these passengers, TSA will negotiate the exact level of
support and the fee necessary to match the costs of this support with
the Sponsoring Entity. TSA will then charge the Sponsoring Entity the
fee based upon the cost of providing the additional services and
support.
TSA continues to encourage private-sector innovation that can
expedite the screening process without sacrificing security results--
such as the anticipated development of a ``laptop bag''--and remains
committed to testing such technologies in both laboratory and live
settings. However, TSA will endeavor to deploy such proven technologies
at all
[[Page 44278]]
checkpoints nationwide, not just for premium travelers or those who pay
additional fees.
As stated in the notice, Registered Traveler Interoperability Fees,
71 FR 67899 (Nov. 24, 2006), TSA will not refund any TSA RT fees
collected prior to the effective date of this notice.
Issued in Arlington, Virginia, on July 25, 2008.
Gale D. Rossides,
Deputy Administrator.
[FR Doc. E8-17493 Filed 7-29-08; 8:45 am]
BILLING CODE 9110-05-P