[Federal Register Volume 68, Number 16 (Friday, January 24, 2003)]
[Rules and Regulations]
[Pages 3772-3775]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 03-1681]
[[Page 3771]]
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Part VII
Department of Transportation
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14 CFR Parts 61, et al.
Ineligibility for an Airman Certificate Based on Security Grounds;
Final Rule
Federal Register / Vol. 68, No. 16 / Friday, January 24, 2003 / Rules
and Regulations
[[Page 3772]]
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DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
14 CFR Parts 61, 63, and 65
[Docket No.: FAA-2003-14293; Amendment Nos. 61-108, 63-32, 65-44]
RIN 2120-AH84
Ineligibility for an Airman Certificate Based on Security Grounds
AGENCY: Federal Aviation Administration (FAA), DOT.
ACTION: Final rule; request for comments.
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SUMMARY: This final rule expressly makes a person ineligible to hold
FAA-issued airman certificates if the Transportation Security
Administration notifies the FAA in writing that the person poses a
security threat. This action is intended to reduce the opportunity for
persons to carry out terrorist acts in the aviation environment.
DATES: Effective January 24, 2003. Submit comments by March 25, 2003.
ADDRESSES: Address your comments to the Docket Management System, U.S.
Department of Transportation, Room Plaza 401, 400 Seventh Street, SW.,
Washington, DC 20590. You must identify the docket number FAA-2003-
14293 at the beginning of your comments, and you should submit two
copies of your comments. If you wish to receive confirmation that the
FAA received your comments, include a self-addressed, stamped postcard.
You may also submit comments through the Internet to http://
dms.dot.gov.
You may review the public docket containing comments to these
regulations in person in the Dockets Office between 9 a.m. and 5 p.m.,
Monday through Friday, except Federal holidays. The Dockets Office is
on the plaza level of the NASSIF Building at the Department of
Transportation at the above address. You may also review public dockets
on the Internet at http://dms.dot.gov.
FOR FURTHER INFORMATION CONTACT: Peter J. Lynch, Enforcement Division,
AGC-300, Office of the Chief Counsel, Federal Aviation Administration,
800 Independence Avenue, SW., Washington, DC 20591; Telephone No. (202)
267-3137.
SUPPLEMENTARY INFORMATION:
Comments Invited
This final rule is being adopted without prior notice and prior
public comment. The Regulatory Policies and Procedures of the
Department of Transportation (DOT) (44 FR 1134; Feb 26, 1979) provide
that, to the maximum extent possible, operating administrations for the
DOT should provide an opportunity for public comment on regulations
issued without notice. Accordingly, interested persons are invited to
participate in the rulemaking by submitting written data, views, or
arguments. Comments relating to the environmental, energy, federalism,
or economic impact that might result from these amendments also are
invited. Comments must include the docket number or amendment number
and must be submitted in duplicate to the address above. All comments
received, as well as a report summarizing each substantive public
contact with FAA personnel concerning this rulemaking, will be filed in
the public docket. The docket is available for public inspection before
and after the comment closing date.
The FAA will consider all comments received on or before the
closing date for comments. Late-filed comments will be considered to
the extent practicable. The final rule may be amended in light of the
comments received.
Availability of Rulemaking Documents
You can get an electronic copy using the Internet by taking the
following steps:
(1) Go to the search function of the Department of Transportation's
electronic Docket Management System (DMS) Web page (http://dms.dot.gov/
search).
(2) On the search page type in the last four digits of the Docket
number shown at the beginning of this notice. Click on ``search.''
(3) On the next page, which contains the Docket summary information
for the Docket you selected, click on the document number for the item
you wish to view.
You can also get an electronic copy using the Internet through the
Office of Rulemaking's Web page at http://www.faa.gov/avr/armhome.htm
or the Government Printing Office's Web page at http://
www.access.gpo.gov/su--docs/aces/aces140.html.
You can also get a copy by submitting a request to the Federal
Aviation Administration, Office of Rulemaking, ARM-1, 800 Independence
Avenue SW., Washington, DC 20591, or by calling (202) 267-9680. Make
sure to identify the amendment number or docket number of this
rulemaking.
Small Business Regulatory Enforcement Fairness Act
The Small Business Regulatory Enforcement Fairness Act (SBREFA) of
1996 requires the FAA to comply with small entity requests for
information or advice about compliance with statutes and regulations
within its jurisdiction. Therefore, any small entity that has a
question regarding this document may contact their local FAA official,
or the person listed under FOR FURTHER INFORMATION CONTACT. You can
find out more about SBREFA on the Internet at our site, http://
www.faa.gov/avr/arm/sbrefa.htm. For more information on SBREFA, e-mail
us [email protected]
Background
In response to the tragic events of September 11, 2001, Congress
enacted and the President signed the Aviation and Transportation
Security Act (ATSA), Public Law 107-71. This law created the
Transportation Security Administration (TSA) under the direction of the
Under Secretary of Transportation for Security. The Under Secretary is
charged with responsibility for civil aviation security as well as
security in other modes of transportation. Among other
responsibilities, the Under Secretary is to receive, assess, and
distribute intelligence information related to transportation security
and to assess threats to transportation. The ATSA also directs the
Under Secretary to establish procedures to notify the FAA Administrator
of the identity of persons known to pose, or suspected of posing, a
risk of air piracy or terrorism or a threat to airline or passenger
safety.
The ATSA directs the Administrator to make modifications to the
system for issuing airman certification to make the system more
effective in serving the needs of officials responsible for enforcing
laws related to combating acts of terrorism.
The Under Secretary receives information from intelligence sources
that identify specific individuals who pose a security risk. In some
cases, these individuals hold airman certificates issued by the FAA. On
August 14, 2002, the Under Secretary advised the Administrator of 11
such individuals and asked the Administrator to revoke the airman
certificates held by them. On August 20, the FAA took the requested
action by issuing emergency orders of revocation. These orders became
effective immediately.
By rulemakings published today in the Federal Register, the TSA has
put in place processes for notifying an
[[Page 3773]]
individual that he or she has been determined to pose a security threat
and to advise the FAA of its determination. One process applies to
citizens of the United States, the other to aliens. Under both
procedures, the individual is served with an Initial Notification of
Threat Assessment when the TSA's Assistant Administrator for
Intelligence has concluded that the individual poses a security threat.
The individual may respond in writing to this notification and provide
any information the individual believes the TSA should consider. In the
case of an alien, if the TSA's Deputy Administrator finds that the
person does pose a security threat, he or she issues a Final
Notification of Threat Assessment. If the Deputy Administrator does not
determine that the individual poses a security threat, he or she issues
a Withdrawal of Initial Notification. In the case of a U.S. citizen,
the Under Secretary will also review the matter before a Final
Notification of Threat Assessment is issued. If the Under Secretary
determines that the individual poses a security threat, the Under
Secretary issues a Final Notification of Threat Assessment. If the
Deputy Administrator or Under Secretary does not find that the person
poses a threat, the TSA issues a Withdrawal of Initial Notification. At
the time the TSA issues its notifications, the FAA is advised of the
TSA's determinations with regard to individuals who hold or are
applying for an airman certificate.
Once the TSA has determined that a person poses a security threat,
that person should not hold an airman certificate authorizing him or
her to be in a position that could be used to take actions that are
contrary to civil aviation security and, therefore, safety in air
commerce. Airmen are in a position to exercise the privileges of their
certificates in support of terrorist activities. For example, pilots
could drop chemical or biological agents from an aircraft or, as the
events of September 11 demonstrated, crash aircraft into buildings.
Mechanics could sabotage aircraft, and flight instructors could teach
terrorists how to operate aircraft. While a person might attempt to
undertake such actions even if he or she does not hold an airman
certificate, taking action to deny, suspend, or revoke airman
certification is intended to make it more difficult to do so. In any
event, persons determined by the TSA to pose a security threat are
simply unqualified to hold airman certificates.
The FAA is adding a section to 14 CFR parts 61, 63, and 65 to
expressly make individuals who pose a security threat as determined by
the TSA ineligible to hold certificates, ratings, and authorizations
issued under those parts. This ineligibility means that the FAA will
not issue a certificate, rating, or authorization to any applicant who
the TSA advises the FAA poses a security threat. If the TSA issues an
Initial Notification of Threat Assessment to an applicant, the FAA will
hold in abeyance the application pending the outcome of the TSA's final
threat assessment review. If an individual is issued a Final
Notification of Threat Assessment, the FAA will deny an application for
any airman certificate, rating, or authorization.
With regard to certificates already issued, the FAA will suspend an
individual's airman certificates after receiving the Initial
Notification of Threat Assessment from the TSA. Suspension is
appropriate in this circumstance, because the TSA's initial assessment
that an individual poses a security threat is still subject to review
by the TSA's Deputy Administrator, and, for U.S. citizens, the Under
Secretary, and may be reversed. If a Final Notification of Threat
Assessment is issued, the FAA will revoke the certificates; if an
Initial Notification is withdrawn, the FAA will withdraw its
certificate suspension.
The eligibility standards adopted in this rulemaking rely on the
threat assessments made by the TSA. This reliance is based on the broad
statutory authority and responsibility that the ATSA placed in the
Under Secretary with regard to intelligence information and threat
assessments.
The Rule Change
The FAA is adding a new section, Sec. 61.18, Security
Disqualification, to 14 CFR part 61. This rule states that a person is
not eligible to hold a certificate, rating, or authorization issued
under part 61 when the TSA has advised the FAA in writing that the
person poses a security threat. The TSA's initial finding that a person
poses a security threat is contained in an Initial Notification of
Threat Assessment; a final finding is contained in a Final Notification
of Threat Assessment. The rule explains the effect of the issuance by
the TSA of each document. The FAA will hold in abeyance an application
by an individual who has been issued an Initial Notification pending
the outcome of the TSA's final threat assessment review. If the TSA
withdraws its Initial Notification, the FAA will issue a certificate
provided the applicant is otherwise qualified. The FAA will suspend
certificates held by any person who is initially found by the TSA to
pose a security threat. The FAA will withdraw its certificate
suspension if the TSA withdraws its Initial Notification. With regard
to issuance of a Final Notification of Threat Assessment, the FAA will
deny the application of any person to whom the TSA issues a Final
Notification of Threat Assessment, and it will revoke any airman
certificates held by such a person. New sections 63.14 and 65.14 are
being added to 14 CFR parts 63 and 65; they are identical to section
61.18.
Justification for Immediate Adoption
This action is being taken without providing the opportunity for
prior notice and comment, and it provides for immediate effectiveness
upon adoption. The Administrator has determined this action is
necessary to prevent a possible imminent hazard to aircraft, persons,
and property within the United States. The FAA, after consultation with
the TSA, has determined that this action is necessary to minimize
security threats and potential security vulnerabilities to the fullest
extent possible. The FAA, TSA, and other federal security organizations
have been concerned about the potential use of aircraft to carry out
terrorist acts in the United States since September 11. The FAA now
believes it is appropriate to provide expressly by rule that an
individual determined by the TSA to be a security threat is ineligible
for airman certification. This rule thus codifies the fundamental and
inherently obvious principle that a person who poses a security threat
should not hold an FAA-issued airman certificate.
The FAA finds that notice and comment are unnecessary,
impracticable, and contrary to the public interest, pursuant to section
553 of the Administrative Procedure Act (APA). Section 553(b) of the
APA permits an agency to forgo notice and comment rulemaking when ``the
agency for good cause finds * * * that notice and public procedures
thereon are impracticable, unnecessary, or contrary to the public
interest.'' The use of notice and comment prior to issuance of this
rule could delay the ability of the FAA to take effective action to
keep persons found by the TSA to pose a security threat from holding an
airman certificate. Further, the Administrator finds that good cause
exists under 5 U.S.C. 553(d) for making this final rule effective
immediately upon publication. This action is necessary to prevent a
possible imminent hazard to aircraft, persons, and property within the
United States.
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Paperwork Reduction Act
There are no new requirements for information collection associated
with this amendment. An agency may not conduct or sponsor and a person
is not required to respond to a collection of information unless it
displays a currently valid Office of Management and Budget (OMB)
control number.
International Compatibility
In keeping with U.S. obligations under the Convention on
International Civil Aviation, it is FAA policy to comply with
International Civil Aviation Organization (ICAO) Standards and
Recommended Practices to the maximum extent practicable. The FAA
determined that there are no ICAO Standards and Recommended Practices
that correspond to these regulations.
Executive Order 12866 and DOT Regulatory Policies and Procedures
This rulemaking action is taken under an emergency situation within
the meaning of Section 6(a)(3)(D) of Executive Order 12866, Regulatory
Planning and Review. It also is considered an emergency regulation
under Paragraph 11g of the Department of Transportation (DOT)
Regulatory Policies and Procedures. The FAA has not separately prepared
a regulatory analysis or evaluation of this rule. However, the TSA has
prepared a regulatory evaluation for its rulemaking and we do not
believe that this action adds any separate costs not already covered by
that evaluation. Based on that evaluation, the FAA determines that this
rulemaking action is a significant rule within the meaning of the
Executive Order and DOT's policies and procedures. Further, the FAA
certifies that this final rule does not have a significant economic
impact on a substantial number of small entities.
Trade Impact Assessment
The Trade Agreement Act of 1979 prohibits Federal agencies from
engaging in any standards or related activities that create unnecessary
obstacles to the foreign commerce of the United States. Legitimate
domestic objectives, such as safety, are not considered unnecessary
obstacles. The statute also requires consideration of international
standards and where appropriate, that they be the basis for U.S.
standards. The FAA has assessed the potential effect of this rulemaking
and has determined that it will impose no cost on international
entities and thus has a neutral trade impact.
Unfunded Mandates Assessment
The Unfunded Mandates Reform Act of 1995 (the Act), enacted as
Public Law 104-4 on March 22, 1995, is intended, among other things, to
curb the practice of imposing unfunded Federal mandates on State,
local, and tribal governments. Title II of the Act requires each
Federal agency to prepare a written statement assessing the effects of
any Federal mandate in a proposed or final agency rule that may result
in a $100 million or more expenditure (adjusted annually for inflation)
in any one year by State, local, and tribal governments, in the
aggregate, or by the private sector; such a mandate is deemed to be a
``significant regulatory action.''
This final rule does not contain such a mandate. Therefore, the
requirements of Title II of the Unfunded Mandates Reform Act of 1995 do
not apply.
Executive Order 3132, Federalism
The FAA has analyzed this final rule under the principles and
criteria of Executive Order 13132, Federalism. We determined that this
action will not have a substantial direct effect on the States, or the
relationship between the national Government and the States, or on the
distribution of power and responsibilities among the various levels of
government. Therefore, we determined that this final rule does not have
federalism implications.
Environmental Analysis
FAA Order 1050.1D defines FAA actions that may be categorically
excluded from preparation of a National Environmental Policy Act (NEPA)
environmental impact statement. In accordance with FAA Order 1050.1D,
appendix 4, paragraph 4(j), this rulemaking action qualifies for a
categorical exclusion.
Energy Impact
The energy impact of this action has been assessed in accordance
with the Energy Policy and Conservation Act (EPCA) Public Law 94-163,
as amended (42 U.S.C. 6362) and FAA Order 1053.1. It has been
determined that the final rule is not a major regulatory action under
the provisions of the EPCA.
List of Subjects in 14 CFR Parts 61, 63, and 65
Aircraft, Airmen, Aviation safety.
The Amendment
In consideration of the foregoing, the Federal Aviation
Administration amends Chapter I of Title 14, Code of Federal
Regulations as follows:
PART 61--CERTIFICATION: PILOTS, FLIGHT INSTRUCTORS, AND GROUND
INSTRUCTORS
1. The authority citation for part 61 continues to read as follows:
Authority: 49 U.S.C. 106(g), 40113, 44701-44703, 44707, 44709-
44711, 45102-45103, 45301-45302.
2. Add Sec. 61.18 to subpart A to read as follows:
Sec. 61.18 Security disqualification.
(a) Eligibility standard. No person is eligible to hold a
certificate, rating, or authorization issued under this part when the
Transportation Security Administration (TSA) has notified the FAA in
writing that the person poses a security threat.
(b) Effect of the issuance by the TSA of an Initial Notification of
Threat Assessment. (1) The FAA will hold in abeyance pending the
outcome of the TSA's final threat assessment review an application for
any certificate, rating, or authorization under this part by any person
who has been issued an Initial Notification of Threat Assessment by the
TSA.
(2) The FAA will suspend any certificate, rating, or authorization
issued under this part after the TSA issues to the holder an Initial
Notification of Threat Assessment.
(c) Effect of the issuance by the TSA of a Final Notification of
Threat Assessment. (1) The FAA will deny an application for any
certificate, rating, or authorization under this part to any person who
has been issued a Final Notification of Threat Assessment.
(2) The FAA will revoke any certificate, rating, or authorization
issued under this part after the TSA has issued to the holder a Final
Notification of Threat Assessment.
PART 63--CERTIFICATION: FLIGHT CREWMEMBERS OTHER THAN PILOTS
3. The authority citation for part 63 continues to read as follows:
Authority: 49 U.S.C. 106(g), 40113, 44701-44703, 44707, 44709-
44711, 45102-45103, 45301-45302.
4. Add Sec. 63.14 to subpart A to read as follows:
Sec. 63.14 Security disqualification.
(a) Eligibility standard. No person is eligible to hold a
certificate, rating, or authorization issued under this part when the
Transportation Security Administration (TSA) has notified the FAA in
writing that the person poses a security threat.
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(b) Effect of the issuance by the TSA of an Initial Notification of
Threat Assessment. (1) The FAA will hold in abeyance pending the
outcome of the TSA's final threat assessment review an application for
any certificate, rating, or authorization under this part by any person
who has been issued an Initial Notification of Threat Assessment by the
TSA.
(2) The FAA will suspend any certificate, rating, or authorization
issued under this part after the TSA issues to the holder an Initial
Notification of Threat Assessment.
(c) Effect of the issuance by the TSA of a Final Notification of
Threat Assessment. (1) The FAA will deny an application for any
certificate, rating, or authorization under this part to any person who
has been issued a Final Notification of Threat Assessment.
(2) The FAA will revoke any certificate, rating, or authorization
issued under this part after the TSA has issued to the holder a Final
Notification of Threat Assessment.
PART 65--CERTIFICATION: AIRMEN OTHER THAN FLIGHT CREWMEMBERS
5. The authority citation for part 65 continues to read as follows:
Authority: 49 U.S.C. 106(g), 40113, 44701-44703, 44707, 44709-
44711, 45102-45103, 45301-45302.
6. Add Sec. 65.14 to subpart A to read as follows:
Sec. 65.14 Security disqualification.
(a) Eligibility standard. No person is eligible to hold a
certificate, rating, or authorization issued under this part when the
Transportation Security Administration (TSA) has notified the FAA in
writing that the person poses a security threat.
(b) Effect of the issuance by the TSA of an Initial Notification of
Threat Assessment. (1) The FAA will hold in abeyance pending the
outcome of the TSA's final threat assessment review an application for
any certificate, rating, or authorization under this part by any person
who has been issued an Initial Notification of Threat Assessment by the
TSA.
(2) The FAA will suspend any certificate, rating, or authorization
issued under this part after the TSA issues to the holder an Initial
Notification of Threat Assessment.
(c) Effect of the issuance by the TSA of a Final Notification of
Threat Assessment. (1) The FAA will deny an application for any
certificate, rating, or authorization under this part to any person who
has been issued a Final Notification of Threat Assessment.
(2) The FAA will revoke any certificate, rating, or authorization
issued under this part after the TSA has issued to the holder a Final
Notification of Threat Assessment.
Issued in Washington, DC on January 21, 2003.
Marion C. Blakey,
Administrator.
[FR Doc. 03-1681 Filed 1-22-03; 10:09 am]
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