Collection of Biometric Data From Aliens Upon Entry to and Departure From the United States

<RULE> DEPARTMENT OF HOMELAND SECURITY <CFR>8 CFR Parts 215 and 235</CFR> <DEPDOC>[Docket No. USCBP-2025-0033; CBP Dec. 25-06]</DEPDOC> <RIN>RIN 1651-AB12</RIN> <SUBJECT>Collection of Biometric Data From Aliens Upon Entry to and Departure From the United States</SUBJECT> <HD SOURCE="HED">AGENCY:</HD> U.S. Customs and Border Protection, DHS. <HD SOURCE="HED">ACTION:</HD> Final rule with request for comments. <SUM> <HD SOURCE="HED">SUMMARY:</HD> This final rule amends Department of Homeland Security (DHS) regulations to provide that DHS may require all aliens to be photographed when entering or exiting the United States, and may require non-exempt aliens to provide other biometrics. The final rule also amends the regulations to remove the references to pilot programs and the port limitation to permit collection of biometrics from aliens departing from airports, land ports, seaports, or any other authorized point of departure. In addition, DHS is requesting comments on the specific collection process as well as costs and benefits for new transportation modalities. </SUM> <DATES> <HD SOURCE="HED">DATES:</HD> <E T="03">Effective Date:</E> This rule is effective on December 26, 2025. <E T="03">Submission of public comments:</E> Comments must be submitted on or before November 26, 2025. </DATES> <HD SOURCE="HED">ADDRESSES:</HD> You may submit comments regarding the specific collection process as well as costs and benefits for the newly implemented transportation modalities (the Simplified Arrival process at air entry, sea entry processes, and the process for entry for pedestrians at land) to the Federal eRulemaking Portal: <E T="03">https://www.regulations.gov.</E> Follow the instructions for sending comments. <E T="03">Instructions:</E> All submissions received must include the agency name and docket number USCBP-2020-0062 or RIN number 1651-AB12. All comments received will be posted without change to <E T="03">http://www.regulations.gov,</E> including any personal information provided. For detailed instructions on submitting comments, see the “Public Participation” heading of the <E T="02">SUPPLEMENTARY INFORMATION</E> section of this document. <E T="03">Docket:</E> For access to the docket to read background documents or comments received, go to <E T="03">http://www.regulations.gov.</E> <FURINF> <HD SOURCE="HED">FOR FURTHER INFORMATION CONTACT:</HD> Larry Panetta, Director, Biometrics Program Office, Office of Field Operations, U.S. Customs and Border Protection, by phone at (202) 344-1253 or via email at <E T="03">larry.a.panetta@cbp.dhs.gov.</E> </FURINF> <SUPLINF> <HD SOURCE="HED">SUPPLEMENTARY INFORMATION:</HD> <HD SOURCE="HD1">Table of Contents</HD> <EXTRACT> <FP SOURCE="FP-2">I. Public Participation</FP> <FP SOURCE="FP-2">II. Executive Summary</FP> <FP SOURCE="FP1-2">A. Notice of Proposed Rulemaking</FP> <FP SOURCE="FP1-2">B. Background and Purpose of the Rule</FP> <FP SOURCE="FP1-2">C. Costs, Cost Savings, and Benefits</FP> <FP SOURCE="FP-2">III. Background</FP> <FP SOURCE="FP1-2">A. National Security and Immigration Benefits of a Biometric Entry-Exit Program</FP> <FP SOURCE="FP1-2">B. Facial Comparison-Based Entry-Exit Process Pursuant to This Final Rule</FP> <FP SOURCE="FP1-2">1. Benefits of a Facial Comparison-Based Process</FP> <FP SOURCE="FP1-2">2. Facial Comparison Technology Gallery Building</FP> <FP SOURCE="FP1-2">3. General Collection Process</FP> <FP SOURCE="FP1-2">4. Facial Comparison-Based Entry Process</FP> <FP SOURCE="FP1-2">5. Facial Comparison-Based Exit Process</FP> <FP SOURCE="FP1-2">6. Alternative Procedures and Public Notice</FP> <FP SOURCE="FP1-2">7. No Match Procedures</FP> <FP SOURCE="FP1-2">8. U.S. Nationals, Dual Nationals and Lawful Permanent Residents</FP> <FP SOURCE="FP1-2">9. Business Requirements for Public-Private Partnerships</FP> <FP SOURCE="FP-2">IV. Summary of Changes to the Biometric Entry and Exit Regulations</FP> <FP SOURCE="FP1-2">A. General Biometric Exit Requirement for Aliens</FP> <FP SOURCE="FP1-2">B. Collection of Photographs From Aliens Upon Entry and Departure</FP> <FP SOURCE="FP1-2">C. Collection of Biometrics When Departing the United States and Other Minor Conforming and Editorial Changes</FP> <FP SOURCE="FP-2">V. Discussion of Comments Submitted in Response to the NPRM</FP> <FP SOURCE="FP1-2">A. Overview</FP> <FP SOURCE="FP1-2">B. Discussion of Comments</FP> <FP SOURCE="FP1-2">1. Comments Expressing General Support</FP> <FP SOURCE="FP1-2">2. Comments Expressing General Support With Recommendations</FP> <FP SOURCE="FP1-2">3. Comments Expressing General Inquiries</FP> <FP SOURCE="FP1-2">4. Comments Expressing General Opposition</FP> <FP SOURCE="FP-2">VI. Statutory and Regulatory Requirements</FP> <FP SOURCE="FP1-2">A. Executive Orders 12866, 13563, and 14192</FP> <FP SOURCE="FP1-2">B. Regulatory Flexibility Act</FP> <FP SOURCE="FP1-2">C. Unfunded Mandates Reform Act of 1995</FP> <FP SOURCE="FP1-2">D. Paperwork Reduction Act</FP> <FP SOURCE="FP1-2">E. Privacy</FP> <FP SOURCE="FP1-2">F. National Environmental Policy Act</FP> </EXTRACT> <HD SOURCE="HD1">Table of Abbreviations and Acronyms</HD> <EXTRACT> <FP SOURCE="FP-1">ADIS—Arrival and Departure Information System</FP> <FP SOURCE="FP-1">APA—Administrative Procedure Act</FP> <FP SOURCE="FP-1">APIS—Advance Passenger Information System</FP> <FP SOURCE="FP-1">CBP—U.S. Customs and Border Protection</FP> <FP SOURCE="FP-1">DHS—Department of Homeland Security</FP> <FP SOURCE="FP-1">DHS DPIAC—DHS Data Privacy and Integrity Advisory Committee</FP> <FP SOURCE="FP-1">DHS TRIP—DHS Traveler Redress Inquiry Program</FP> <FP SOURCE="FP-1">DHS FIPPS—DHS Fair Information Practice Principles</FP> <FP SOURCE="FP-1">DOT—Department of Transportation</FP> <FP SOURCE="FP-1">FBD—Facial Biometric Debarkation</FP> <FP SOURCE="FP-1">FIS area—Federal Inspection Service area</FP> <FP SOURCE="FP-1">FOIA—Freedom of Information Act</FP> <FP SOURCE="FP-1">FY—Fiscal Year</FP> <FP SOURCE="FP-1">GAO—Government Accountability Office</FP> <FP SOURCE="FP-1">HART—Homeland Advanced Recognition Technology</FP> <FP SOURCE="FP-1">IDENT—Automated Biometric Identification System</FP> <FP SOURCE="FP-1">INA—Immigration and Nationality Act</FP> <FP SOURCE="FP-1">LPR—lawful permanent resident</FP> <FP SOURCE="FP-1">NARA—National Archives and Records Administration</FP> <FP SOURCE="FP-1">NIST—National Institute of Standards and Technology</FP> <FP SOURCE="FP-1">NPRM—Notice of Proposed Rulemaking</FP> <FP SOURCE="FP-1">OBIM—Office of Biometric Identity Management</FP> <FP SOURCE="FP-1">OMB—Office of Management and Budget</FP> <FP SOURCE="FP-1">PIA—Privacy Impact Assessment</FP> <FP SOURCE="FP-1">PII—personally identifiable information</FP> <FP SOURCE="FP-1">PCLOB—Privacy and Civil Liberties Oversight Board</FP> <FP SOURCE="FP-1">RFA—Regulatory Flexibility Analysis</FP> <FP SOURCE="FP-1">SORN—System of Records Notice</FP> <FP SOURCE="FP-1">S&T—Science and Technology</FP> <FP SOURCE="FP-1">TSA—Transportation Security Administration</FP> <FP SOURCE="FP-1">TVS—Traveler Verification Service</FP> <FP SOURCE="FP-1">USCIS—United States Citizenship and Immigration Services</FP> <FP SOURCE="FP-1">VWP—Visa Waiver Program</FP> </EXTRACT> <HD SOURCE="HD1">I. Public Participation</HD> Interested persons are invited to participate in this rulemaking by submitting written data, views, or arguments on the specific collection process, as well as costs and benefits regarding the newly implemented transportation modalities for facial biometric collection, namely, the Simplified Arrival process at air entry, the sea entry processes, and the process for entry for pedestrians at land ports. Comments that will provide the most assistance will reference a specific portion of the final rule, explain the reason for any recommended change, and include data, information, or authority that supports such recommended change. All submissions received must include the agency name and docket number for this rulemaking. All comments received will be posted without change to <E T="03">http://www.regulations.gov,</E> including any personal information provided. Comments submitted regarding any topic other than the specific collection process and costs and benefits on these newly implemented transportation modalities are out of scope for this final rule and will not be considered. <HD SOURCE="HD1">II. Executive Summary</HD> <HD SOURCE="HD2">A. Notice of Proposed Rulemaking</HD> On November 18, 2020, the Department of Homeland Security (DHS) published a Notice of Proposed Rulemaking in the <E T="04">Federal Register</E> (85 FR 74162) (hereinafter referenced as “the NPRM”) proposing to amend the DHS regulations with regard to collection of biometrics from aliens entering and exiting the United States. <SU>1</SU> <FTREF/> On February 10, 2021, DHS published a notice in the <E T="04">Federal Register</E> (86 FR 8878) stating that it was reopening the comment period for an additional 30 days based on comments received during the initial comment period. <FTNT> <SU>1</SU>  The NPRM referred to “aliens” as “noncitizens.” This final rule uses the statutory term “alien” as appropriate. </FTNT> DHS received a total of 320 comments in response to the NPRM. The submissions included comments supporting the rule, requesting clarification, providing suggestions for changes, and voicing concerns. After review of the comments, through this final rule, DHS is finalizing the proposed changes in the NPRM without substantive modification. <HD SOURCE="HD2">B. Background and Purpose of the Rule</HD> DHS is mandated by statute to develop and implement an integrated, automated entry and exit data system to match records, including biographic data and biometrics, <SU>2</SU> <FTREF/> of aliens entering and departing ━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━ Preview showing 10k of 333k characters. Full document text is stored and available for version comparison. ━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━