The use of cameras has long been a key component of TSAs efforts to earn and keep the publics trust and confidence in the critical work that TSA does, while enforcing 49 CFR 1542, the regulations that TSA is sworn to uphold. In August 2018, TSA voluntarily initiated a feasibility study on body-worn cameras (BWC) the first component of the Department of Homeland Security non-law enforcement group and complexity of mission to do so. In November 2018, TSA released the findings of the 90-day feasibility study to explore the use of BWCs in varied operating environments. The feasibility study concluded that these, and other types of cameras, could have positive benefits for TSA if acquired, deployed, and managed properly.
Many state and local agencies utilize cameras and observe positive benefits. However, the operating environments and needs of TSA differ in many respects from other agencies. TSA personnel work in close proximity to the passengers, in some checkpoints with limited space, and the nature of TSAs enforcement of regulations it encounters are unique in many ways. Additionally, varied assignments, uniforms, and environmental elements can affect the functionality of technology. While the study found that the particular BWCs evaluated at the time were not well-suited for all TSA environments, overall camera technology would present benefits for TSAs ability to carry out its mission.
BWC technology is constantly evolving. TSA is committed to testing new, more durable cameras that may be a better fit with TSAs operational requirements. TSA also must develop policies, conduct further technical evaluations, and resolve other issues, such as funding and collective bargaining considerations.
Following the November 2018 release of TSAs Body-Worn Camera Feasibility Study Report, TSA Administrator David Pekoske directed an expanded camera review. From this, TSA will develop a clear path forward to implement camera technology in those checkpoint environments where use of such cameras is determined, based on the needs and input of operational components, to be both feasible and beneficial to TSAs mission. TSA will take steps to evaluate and test body-worn, and equipment mounted cameras in additional locations, such as entry point and exits of the checkpoints. TSA will approach this effort thoughtfully and welcomes the opportunity to share its progress with the entire workforce and the public as it moves forward.
***********************************************************************II. Introduction III. Problem Identification ***********************************************************************IV. Background AnalysisThe Body-Worn Camera (BWC) Passenger Screening Committee was established in August 2018 at the request of the Transportation Security Administration (TSA) Administrator David Pekoske. The Screening Committees objective was to evaluate the feasibility of incorporating BWC technology into TSA passenger screening operations. Members were comprised of representatives from 6 Category X airports, the DHS Office for Civil Rights and Civil Liberties, and the DHS Privacy Office.
For 90 days beginning in August 2018, the BWC Passenger Screening Committee conducted a feasibility study during which its members studied available data, reviewed published reports, analyzed expert recommendations, and consulted scholarly papers to assist in the development of the study and subsequent report. Screening Committee members also participated in a government-sponsored expert panel hosted by the U.S. Department of Justice Bureau of Justice Assistance and took part in several interagency meetings with the U.S. Department of Justice, the U.S. Department of Interior, and the U.S. General Services Administration. The Screening Committee also consulted with state and local law enforcement entities, including the Los Angeles Police Department and the New Orleans Police Department, to gain a greater understanding of the subject matter and valuable lessons learned.
The Screening Committee also met with BWC manufacturer representatives to provide Screening Committee members with an understanding of the capabilities and limitations of the existing technology. Based on the information received, TSA purchased a representative sample of available technology for use during the feasibility study.
The Screening Committee employed a methodical approach that incorporated three phases. The first phase consisted of a controlled environment evaluation at the TSA academy and training facility in Glynco, Georgia; Evaluations at these sites were conducted by academy personnel who observed the technology in use by officer trainees during screening scenario-based training.
The second phase, the field evaluation phase, will apply practical evaluations at TSA controlled airports at DCA, MIA, JFK, ORD, LAX and DFW. This phase involves participation of officers, TSAs Office of Technology Innovation and Acquisition also will conduct an operational utility evaluation. The evaluation should produce critical analysis of the data collected during the field evaluations, and the information contained in its evaluation will be incorporated into the Screening Committees final recommendation.
The third phase will consist of analyzing the data from the previous phases, as well as associated policy, legal, privacy, labor relations, operations, deployment, cost, records retention, and information technology considerations.
V. CriteriaA. TSA Body-Worn Camera Feasibility Study Report
The operational utility evaluation concluded that most [BWCs evaluated] were not designed to meet the rigors required by TSA officers, and for the most part were not suited for TSA operational use. While noting potential benefits, conclusions also emphasized operational and policy hurdles to overcome as outlined in the TSA Body-Worn Camera Feasibility Study Report. Screening Committee finding s were presented to Administrator Pekoske and he outlined an expanded camera footprint.
The Screening Committee found the following potential benefits of BWCs by TSA:
Reducing the number of allegations and complaints, deterring frivolous complaints and lowering the likelihood of incidents;
Providing insight into law enforcement encounters that traditionally have been unavailable;
Providing supplemental evidence in criminal cases, increasing the likelihood of obtaining successful prosecution for those who have violated the law;
Enhancing training capabilities through utilization of footage as a learning tool;
Reducing hostilities between officers and passengers;
Strengthening officer performance and accountability;
Increasing officer awareness and safety by influencing public behavior; and
Simplifying incident review by enabling the quick and immediate review of footage.
The Screening Committee also identified several factors that may adversely affect TSA officers, operations, and mission effectiveness. These factors will be subjected to more in-depth study:
BWCs increase the cognitive load experienced by officers/agents. Without appropriate training, there may be impacts to officer/agent safety, such as changes to officer stance in tense encounters.
There are concerns about the BWC technology capabilities and limitations, as well as the potential to create mistrust and suspicion between officers and management.
There are questions about whether the BWC video accurately conveys the same sense of threat that is experienced by an officer.
The public may be less likely to divulge information to law enforcement officers if they know they are being recorded, as TSA found at some testing sites.
BWCs and software may pose a vulnerability and security risk due to a lack of adequate security features; signals from BWCs could be susceptible to hacking by non-TSA approved devices.
There will be ongoing, long-term financial costs of a BWC program after implementation such as technology enhancements, infrastructure improvements, increasing storage, and additional staffing requirements to support the management of footage.
Management and support of a BWC program could result in lost law enforcement hours due to added administrative duty of uploading of footage after shifts, records management, training, and technology infrastructure support, and processing potentially high numbers of Freedom of Information Act requests.
The Screening Committee strongly recommended that TSA complete the following prior to deploying BWC technology:
Develop a final policy document that resolves key issues and establishes parameters for the handling, cataloging, use, access, and activation of BWCs and the footage.
Perform technology evaluations that identify technology requirements for each operational component, with particular attention to their specific operating environments.
Examine TSAs existing fixed camera technology to identify areas where BWC technology may overlap with existing TSA technology. Avoid redundancy by reserving the use of BWC technology for those areas where technology gaps are identified.
The Screening Committee considered and rejected several different deployment options before recommending a risk-based deployment option. Risk factors would be articulated by leadership and may include, but are not limited to:
Volume of passenger traffic;
Rate of assaults against officers;
Frequency of complaints against officers; and
Gaps in existing technology, training, or other identified needs. This approach will allow for a fluid deployment strategy that is fact-based and responsive to individual component operational requirements. Each component, based on its operational need, may be able to utilize the technology as an operational tool, which ultimately could have a significant positive impact on TSAs overall mission, as long as a cautious and deliberate implementation strategy is applied.
B. Next Steps
Following the completion of the feasibility study, Administrator Pekoske has directed the Screening Committee to develop and coordinate the Agencys implementation strategy for camera technology as outlined in the Camera Technology Report. 2 The study found that while the particular cameras evaluated were not well suited for all TSA environments, camera use can have a number of benefits for the TSA mission.
In recent years, state and local law enforcement agencies have deployed BWCs to enhance transparency, accountability, and credibility with the public. However, the resultant use of BWCs also has raised important policy and technology questions that require further consideration before implementation by TSA. These factors include the availability of technology suitable to TSAs varied operating environments; a better understanding of the need for BWCs in relation to TSAs existing camera infrastructure; and policy considerations raised in the feasibility study such as privacy matters, data storage, funding, and collective bargaining.
Because more than 8,700 existing cameras are already in use in TSAs day-to-day operations, a full-scale deployment of BWCs is not necessary. For example, a BWC may not be needed at a port of entry where there is already an abundance of cameras in place. Rather than focusing exclusively on BWCs, TSA will expand its overall use of camera technology in the next phase of this effort. That comprehensive expansion will include mobile, port, maritime, and BWC technology.
In this next phase, TSA will:
Examine existing fixed camera technology and infrastructure with the expectation of optimizing current resources;
Evaluate mobile/dash camera capabilities to fill gaps at and between ports of entry; and
Deploy BWCs within training units. TSA will explore the use of equipment mounted cameras as well. TSA will continue implementation of cameras that capture a 360-degree view of the area surrounding equipment. TSA will continue to test camera use in new ways and locations and likely will discover new mission-supporting applications.
TSA will announce the next step in the agencys expanded use of cameras by releasing a request for information (RFI). In the RFI, published on the Federal Business Opportunities website, TSA will solicit information and recommendations for two camera systems: a BWC system that can be worn by a TSA officer, and equipment-mounted camera system that has multi-camera capability and the ability to capture and record audio and video. This solicitation for information on available technology is an important step in TSAs efforts to determine how expanded camera usage can benefit the agency.
TSA is committed to this effort and expanded transparency through a number of efforts, including an increased camera infrastructure. TSA is interested in utilizing multi-layered camera deployments and product options for TSAs unique operational environments utilizing the risk-based approach identified in the BWC Feasibility Study for areas at and between the ports of entry, which include:
Checkpoints;
Aircraft boarding;
Outbound operations;
Training environments; and
Other specific high-risk areas of operation.
TSA also continues to meet with experts and to review resources made available by the U.S.
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