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R 062252Z MAY 08
FM SECSTATE WASHDC
TO ALL DIPLOMATIC AND CONSULAR POSTS COLLECTIVE
RUEHTRO/AMEMBASSY TRIPOLI 0270
INFO RHEFHLC/DEPT OF HOMELAND SECURITY WASHINGTON DC
RUEAORC/US CUSTOMS AND BORDER PROTECTION WASHINGTON DC 0312
RHMFIUU/DEPT OF JUSTICE WASHINGTON DC
RHMCSUU/FBI WASHINGTON DC 9331
RUEILB/NCTC WASHINGTON DC

UNCLAS SECTION 01 OF 05 STATE 048120 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: CVIS CMGT PTER KLHS
SUBJECT: RESOURCE GUIDE FOR USG TERRORIST INFORMATION SHARING 
EFFORTS AND FOREIGN BORDER SCREENING PRACTICES 
 
REF:  A) 07 STATE 133921; B) 06 STATE 190832; C) 06 
STATE 114591 
 
¶1. (U) This is an action request, please see para 14. 
 
¶2. (SBU) BACKGROUND: As a result of several different 
Homeland Security Presidential Directives (HSPDs) as 
well as 9/11 Commission Act requirements designed to 
enhance U.S. security, Washington agencies have 
concluded a number of biographic and biometric data 
exchange and information sharing agreements, both 
formal and informal, with foreign partners.  These 
efforts are important tools in fighting terrorist 
travel and transnational crime, and often provide 
reciprocal benefits in the form of enhanced security 
for both the U.S. and host governments.  However, 
these sometimes overlapping efforts to facilitate 
information sharing have resulted in confusion at some 
posts.  In order to improve transparency and 
coordination and to reduce confusion, the Office of 
the Coordinator for Counterterroism (S/CT) has 
outlined various interagency terrorist biographic and 
biometric information sharing agreement efforts and 
provided Washington points-of-contact, below. 
 
¶3. (SBU) To coordinate these efforts, the Department 
chairs a number of interagency working groups (IWG) 
and intradepartmental efforts -- including the S/CT- 
chaired Departmental Homeland Security Coordinating 
Committee (HSCC), Bureua of Consular Affairs-chaired 
HSPD-6 IWG, and Information Sharing Environment (ISE) 
Foreign Partner Group, among others.  The HSCC 
includes representatives from more than 20 of the 
Department's regional and functional bureaus and 
coordinates homeland security issues that impact the 
conduct of U.S. foreign policy and the work of the 
Department (Ref C).   Posts are encouraged to utilize 
HSCC resources in identifying appropriate Department 
points-of-contact on a number of major international 
homeland security-related initiatives and are invited 
to visit the HSCC website on Intellipedia: 
http://www.intelink.sgov.gov/wiki/Portal:Coun terterror 
ism/Tab_3 .  END BACKGROUND. 
 
FOREIGN BORDER CONTROLS-- INFORMATION RESOURCE 
¶4. (SBU) S/CT is pleased to announce that Foreign 
Border Information Collection, Screening, and 
Information Sharing Practices survey data also is now 
available as a resource on Intellipedia.  Per reftels, 
in 2006-07, S/CT, in cooperation with the National 
Counterterrorism Center (NCTC), developed a survey 
soliciting information on country watchlist 
information, foreign entry/exit information 
collection, screening software in use at foreign ports 
of entry, and potential for concluding information 
sharing agreements.  We appreciate posts' detailed and 
informative responses to the border control surveys, 
which have provided information of high value to 
analysts in identifying deficiencies in national 
screening systems frequently exploited by terrorists 
for travel.  S/CT has consolidated responses and 
posted a matrix to its Intellipedia site as a tool for 
posts, the intelligence community, foreign assistance 
planners, and other experts to target deficiencies in 
foreign partner's border screening systems.  We 
already have collected data from over 120 countries 
and will continue to update this matrix as additional 
information and updates are received.  Visit the 
portal at: 
http://www.intelink.sgov.gov/wiki/Foreign_Bor der_Contr 
ols_Information_Sharing_Surveys . 
 
TERRORIST INFORMATION SHARING AGREEMENTS 
 
¶5. (SBU) In order to improve transparency and 
coordination, Department also has consolidated various 
interagency terrorist information sharing initiatives 
below and provided Washington points-of-contact. 
Close coordination between Washington stakeholders and 
post personnel is vital to ensuring the success of 
these efforts. 
 
STATE 00048120  002 OF 005 
 
 
 
--------------------------------------------- ------- 
Homeland Security Presidential Directive 6 (HSPD-6) 
--------------------------------------------- ------- 
 
¶6. (SBU) HSPD-6 directed the Secretary of State to 
lead the USG effort to share terrorist screening 
information with foreign partners beginning with 
countries participating in the Visa Waiver Program 
(VWP)(see below).  This directive stems from 
recommendations made by the 9/11 Commission, and its 
implementation is a high priority for the Bureau of 
Consular Affairs (CA), which is leading this effort 
for the Department.  CA co-chairs an Interagency 
Working Group with the HSC, and is partnered 
operationally with the Terrorist Screening Center. 
HSPD-6 agreements enable reciprocal exchange of 
information about known and suspected terrorists, 
establish protocols for managing encounters with 
watchlisted individuals, and are designed to augment 
existing informal information sharing arrangements 
between immigration, law enforcement, and intelligence 
agencies.  Consuls General and chiefs from other 
sections at posts have contributed greatly to the 
success experienced to date.  Conclusion of an HSPD-6 
agreement will be required for VWP aspirants prior to 
their designation in the program. 
 
POC:  DOS/CA/P/IP Division Chief Alcy Frelick 
(FrelickAR@state.gov; (202) 663-1633);  DOS/CA/P/IP 
Deputy Director Peter Thompson (ThompsonPM@state.gov; 
(202) 663-1635). 
 
------------------------------------------- 
Advance Passenger Information System (APIS) 
------------------------------------------- 
 
¶7. (SBU) APIS is a regulatory requirement imposed by 
the United States and many other governments in which 
air carriers must submit biographic data on air 
passengers, crew members, and non-crew members for the 
purpose of border screening.  API generally consists 
of information that appears on the biographical data 
page of official travel documents, such as passports. 
Each air carrier, foreign and domestic, operating a 
passenger flight to/from the U.S. must electronically 
transmit to Department of Homeland Security/U.S. 
Customs and Border Protection (DHS/CBP) a passenger 
and crew manifest in advance of departure. 
Information forwarded to CBP is used by the National 
Targeting Center (NTC) for screening against lookout 
data in law enforcement and terrorist databases held 
by different USG agencies.  Advanced screening of API 
forms the basis of our ability to identify potential 
threats before they arrive at U.S. ports of entry. 
Through existing relationships with some countries, 
DHS may obtain API for flights between a partner 
nation and 3rd countries.  Through this model, DHS is 
able to promote improved border security in locations 
where individuals may then transit to the U.S., 
acquire additional information in support of DHS 
border management activities, and collect intelligence 
on the movements of individuals who are the subject of 
USG lookouts.  DHS remains interested in striking 
similar arrangements with willing partners. 
Washington agencies are very interested in reporting 
on the development of API or similar programs in other 
nations for the purposes of ensuring compatible 
regulatory and operational approaches. 
 
POC:  DHS/Office of International Affairs Michael 
Scardaville; (Mike.Scardaville@dhs.gov, (202) 282- 
8321); DOS/EEB/TRA John Emery (EmeryJB@state.gov; 
(202) 647-9470) 
 
--------------------------------- 
Passenger Name Record (PNR) Data 
--------------------------------- 
 
¶8. (SBU) Also collected and transmitted by carriers, 
PNR is similar in objective to the API program in that 
it allows for the electronic transmission of data on 
air passengers and crew.  However, PNR data is broader 
in scope than the biographic data captured under API 
as it contains information from the computer 
reservation system (such as Sabre or Worldspan) for a 
 
STATE 00048120  003 OF 005 
 
 
passenger or group of passengers traveling together. 
PNR provides significant additional passenger 
information including ticketing details, itineraries, 
destination address, embarkation point, and PNR 
locator code number.  Carriers are required to make 
available to CBP PNR for all flights to/from the U.S. 
This information is invaluable in identifying linkages 
between passengers as well as identifying high risk 
travelers for whom biographic data is not held in a 
lookout.  The perceived sensitive nature of PNR 
information among privacy advocates has resulted in 
the negotiation of data security and privacy 
safeguards between the U.S., the European Union, and 
Switzerland.  Supported by the Department, DHS is also 
attempting to secure commitments from selected 
governments to obtain PNR for routes lacking a U.S. 
nexus.  As with API, Washington agencies remain 
interested in reporting on the development of similar 
programs in other nations. 
 
POC:  DHS/Office of International Affairs Michael 
Scardaville; (Mike.Scardaville@dhs.gov, (202) 282- 
8321); DOS/EEB/TRA John Emery (EmeryJB@state.gov; 
(202) 647-9470) 
 
------------------------- 
Visa Waiver Program (VWP) 
------------------------- 
 
¶9. (SBU) The VWP enables eligible nationals of 
participating countries to travel to the U.S. for 
stays of 90 days or less without obtaining a visa. 
The program was initially designed to facilitate 
travel, promote domestic economic prosperity, and 
allow Department resources to be devoted to countries 
with higher refusal and overstay rates.  VWP travelers 
are currently screened through APIS and PNR prior to 
admission to the U.S. and are enrolled in DHS's US- 
VISIT program (see below) at the port of entry. 
Currently 27 countries participate in the program. 
Both the current participating countries and countries 
seeking to join the VWP will have to comply with new 
security enhancements mandated by the 9/11 Commission 
Act -- including passenger information sharing, more 
timely reporting of both blank and issued lost and 
stolen passports, and use of the ESTA system (see 
below) to be created.  DHS has formalized requirements 
for VWP participation into a non-binding Memorandum of 
Understanding (MOU) and associated implementing 
arrangements that each member and aspirant country 
will be required to sign.  As of April 2008, DHS has 
signed VWP MOUs with eight countries:  Czech Republic, 
Estonia, Hungary, South Korea, Latvia, Lithuania, 
Malta, and Slovakia. 
 
POC:  DHS/VWP Director Marc Frey (marc.frey@dhs.gov; 
(202)-282-9555);   DOS/CA/VO/F Director John Brennan 
(BrennanJB@state.gov; (202)663-1160) 
 
--------------------------------------------- --- 
Electronic System of Travel Authorization (ESTA) 
--------------------------------------------- --- 
 
¶10. (SBU) The establishment of an ESTA for VWP 
countries and aspirants is a requirement under the 
9/11 Act of 2007.  The ESTA will collect basic 
passenger biographic information similar to that 
contained on the Nonimmigrant Alien Arrival/Departure 
(I-94W) form.  CBP is developing the ESTA as a web- 
based application and screening mechanism for direct 
access by VWP travelers.  Applications will be 
screened against U.S. watchlists.  To the extent 
possible, ESTA is projected to provide quick 
determinations of eligibility for individuals to 
travel under the VWP.  However, a positive 
determination will not connote admissibility into the 
U.S.  If an ESTA application is not approved, a 
message will refer the applicant to the local embassy 
or consulate to apply for a non-immigrant visa to 
travel to the U.S.  DHS is seeking to initiate an 
operational ESTA system during summer 2008 and will 
partner closely with the Department and U.S. embassies 
and consulates worldwide to ensure a smooth rollout 
and effective public awareness effort. 
 
POC:  DHS/Policy Justin Matthes 
 
STATE 00048120  004 OF 005 
 
 
(justin.matthes1@dhs.gov); DOS/CA/VO/F Director John 
Brennan (BrennanJB@state.gov; (202)663-1160) 
 
----------- 
TIP/PISCES 
----------- 
 
¶11. (SBU) The Terrorist Interdiction Program (TIP) 
seeks to constrain terrorist mobility globally by 
helping other countries at risk of terrorist activity 
enhance their border security capabilities.  TIP 
provides countries with a computerized watchlisting 
system known as PISCES (Personal Identification Secure 
Comparison and Evaluation System).  Countries are 
identified for eligibility to participate in TIP based 
on known terrorist activity or transit patterns, need 
for a watchlisting system, and political will to 
cooperate.  TIP installs PISCES hardware and software 
at selected points of entry, including international 
airports and major border crossings.  The system 
enables host nation border control officials to 
identify suspect travelers against a current watchlist 
and has integrated capability for both biographic and 
biometric data capture.  PISCES is installed at both 
arrival and departure terminals so that host officials 
can identify travelers entering and exiting the 
country.  PISCES also enables immigration officials to 
use the system to collect, compare, and analyze data 
for investigative purposes.  TIP/PISCES is currently 
operational in the following countries:  Afghanistan, 
Cambodia, Cote d'Ivoire, Djibouti, Ethiopia, Ghana, 
Iraq, Kenya, Kosovo, Macedonia, Malta, Nepal, 
Pakistan, Tanzania, Thailand, Yemen, and Zambia. 
 
POC:  DOS/S/CT Ken McKune (McKuneKR@state.gov; (202) 
647-6718) 
 
--------------------------------------------- --------- 
-------- 
Integrated Automated Fingerprint Identification System 
(IAFIS) 
--------------------------------------------- --------- 
-------- 
 
¶12. (SBU) IAFIS is a biometric identification system 
that uses digital imaging technology to obtain, store, 
and analyze fingerprint data.  Administered by the 
Federal Bureau of Investigation (FBI), IAFIS is a 
mature technology which has been proven highly 
effective in identification management and fraud 
prevention and is accepted in courts of law.  With 
over 55 million records, the IAFIS is the most 
comprehensive criminal fingerprint database in the 
world.  In an effort to continue to expand the data, 
FBI's Criminal Justice Information Services (CJIS) 
Global Initiatives Unit (GIU) seeks to conclude 
fingerprint data transfers with foreign governments. 
These transfers often are concluded informally -- 
although formal agreements also may be negotiated. 
Under the program, foreign governments provide 
fingerprint records to add to the IAFIS database and 
in return can request specific information from the 
U.S. database through a case-by-case query mechanism, 
often through the LEGAT at post.  CJIS already has 
facilitated a number of data transfers including 
several from Western Hemisphere countries.  Consular 
sections capture ten-digit fingerprint scans routinely 
from most visa applicants, which also are run against 
the IAFIS database; and DHS has the capability of 
screening US-VISIT biometrics captured at U.S. ports 
of entry through IAFIS. 
 
POC: FBI/CJIS: Gary Wheeler (304)625-2604; 
GWheele4@Leo.Gov;      DOS/CA/VO/I:  John Cook (202) 
261-8016; CookJG@state.gov 
 
--------------------------------------------- --------- 
Visitor Immigrant Status Indicator Technology (US- 
VISIT) Program 
--------------------------------------------- --------- 
 
¶13. (SBU) US-VISIT allows for the biometric screening 
of international travelers.  The program captures and 
compares biometric data and biographic information 
collected from non-citizens at U.S. ports of entry 
against law enforcement, counterterrorism, and 
 
STATE 00048120  005 OF 005 
 
 
immigration enforcement records as well as identity 
information collected at visa issuing posts and by DHS 
immigration authorities.  It also captures biometric 
and biographic information on individuals traveling 
under the VWP at ports of entry in the U.S.  By 
relying on biometrics, US-VISIT provides another means 
of identifying individuals who may be traveling under 
a fraudulent identity.  For example, Consular officers 
overseas capture 10-digit fingerscans and photos of 
visa applicants; these are run against IDENT (the US- 
VISIT biometric database) and IAFIS.  By verifying the 
fingerprints of arriving travelers, CBP officers are 
able to verify that the person presenting the visa is 
the same individual as the one issued the visa, 
reducing potential fraud associated with imposter 
travel, document alteration, or forgery.  The program 
incorporates privacy and data protection provisions 
into its operations.  With nearly 200 million records 
(primarily of non-U.S. Persons, lawful permanent 
residents (LPRs),  and naturalized persons) and 
growing, US-VISIT has become the largest fingerprint 
database in the world.  This fact has not escaped 
foreign government attention and in some cases, US- 
VISIT holds more fingerprint data of a given 
countries' citizens than that country itself.  US- 
VISIT has concluded pilot data sharing agreements with 
Australia, Canada, and the United Kingdom to combat 
crime and terrorism as well as make immigration and 
border management systems more robust for individual 
travelers.  In some cases, US-VISIT has assisted 
foreign terrorist investigations by linking a latent 
fingerprint found abroad to the digital photo, 
passport data, and fingerprints of a traveler who 
arrived in the U.S.  US-VISIT's agreements also 
provide US-VISIT with additional useful information 
related to travelers (e.g. prior attempts to seek 
asylum in other countries, terrorist biometrics, etc). 
DHS, in coordination with the Department, may seek to 
conclude additional bilateral data exchange agreements 
as needed in the future.  Reporting on the DHS 
proposal for biometric screening of foreign travelers 
as they depart the U.S. -- also required by the 9/11 
Commission Act -- is available septel. 
 
POC:  DHS: Marianne Kilgor-Martz; DOS/CA/VO/I:  John 
Cook (202) 261-8016; CookJG@state.gov 
 
¶14. (SBU) Action Request:  Department requests this 
information be promulgated among country teams and 
other appropriate working groups -- in particular Law 
Enforcement Working Groups.  Given that information 
sharing agreement efforts often overlap, it is 
critical that agencies coordinate closely with the 
Department and posts and do not/not discuss biometrics 
or other information sharing with host governments 
without country team coordination.    Identification 
of Washington POCs for these efforts and other 
intradepartmental coordinating groups, such as the 
HSCC, should assist in this effort.  Recognizing that 
agency POC's likely will change -- including with 
summer rotations -- S/CT periodically will update 
contact information on these efforts via cable and the 
HSCC Intellipedia portal.  Department appreciates 
posts' invaluable reporting on host government border 
control systems and strongly urges posts to continue 
reporting on host government progress in developing 
similar programs in this area.  End Action Request. 
 
¶15. (U) Minimize considered. 
RICE