Enhanced Air Cargo Advance Screening (ACAS)

<RULE> DEPARTMENT OF HOMELAND SECURITY <SUBAGY>U.S. Customs and Border Protection</SUBAGY> <CFR>19 CFR Parts 103 and 122</CFR> <DEPDOC>[Docket No. USCBP-2025-0053; CBP Dec. 25-08]</DEPDOC> <RIN>RIN 1651-AB61</RIN> <SUBJECT>Enhanced Air Cargo Advance Screening (ACAS)</SUBJECT> <HD SOURCE="HED">AGENCY:</HD> U.S. Customs and Border Protection, DHS. <HD SOURCE="HED">ACTION:</HD> Interim final rule; request for comments. <SUM> <HD SOURCE="HED">SUMMARY:</HD> To address ongoing aviation security threats, U.S. Customs and Border Protection (CBP) is amending its regulations pertaining to the Air Cargo Advance Screening (ACAS) program to require the transmission of additional data elements. The ACAS program enhances the security of flights carrying cargo into the United States by requiring the transmission of certain air cargo data and performing targeted risk assessments based on the transmitted data prior to an aircraft's departure for the United States. These risk assessments identify and prevent high-risk air cargo from being loaded onto an aircraft that could pose a risk to an aircraft during flight. </SUM> <EFFDATE> <HD SOURCE="HED">DATES:</HD> <E T="03">Effective Date:</E> This interim final rule is effective as of November 21, 2025. <E T="03">Comment Date:</E> Comments must be received by January 20, 2026. </EFFDATE> <HD SOURCE="HED">ADDRESSES:</HD> Please submit any comments, identified by docket number USCBP-2025-0053, by the following method: • <E T="03">Federal eRulemaking Portal: https://www.regulations.gov.</E> Follow the instructions for submitting comments. <E T="03">Instructions:</E> 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">https://www.regulations.gov,</E> including any personal information provided. For detailed instructions on submitting comments and additional information on the rulemaking process, 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">https://www.regulations.gov.</E> <FURINF> <HD SOURCE="HED">FOR FURTHER INFORMATION CONTACT:</HD> Joseph Martella, Cargo and Conveyance Security, Office of Field Operations, U.S. Customs & Border Protection, by telephone at 646-315-4330 or by email at <E T="03">Joseph.Martella@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="FP-2">III. Background and Purpose</FP> <FP SOURCE="FP1-2">A. Regulatory History</FP> <FP SOURCE="FP1-2">B. Statutory Authority</FP> <FP SOURCE="FP1-2">C. CBP Regulatory Requirements</FP> <FP SOURCE="FP1-2">1. 19 CFR 122.48a—Electronic Information for Air Cargo Required in Advance of Arrival</FP> <FP SOURCE="FP1-2">2. 19 CFR 122.48b—ACAS</FP> <FP SOURCE="FP1-2">D. TSA Requirements</FP> <FP SOURCE="FP1-2">E. Air Cargo Security Risks</FP> <FP SOURCE="FP1-2">F. The Enhanced ACAS Program Development Process</FP> <FP SOURCE="FP-2">IV. ACAS Program Revisions</FP> <FP SOURCE="FP1-2">A. Enhanced ACAS Data Element Definitions</FP> <FP SOURCE="FP1-2">B. Mandatory Data Elements</FP> <FP SOURCE="FP1-2">C. Conditional Data Element: Master Air Waybill Number</FP> <FP SOURCE="FP1-2">D. Conditional Data Element: Verified Known Consignor Information</FP> <FP SOURCE="FP1-2">E. Conditional Data Elements That May Be Required When There Is Not a Verified Known Consignor</FP> <FP SOURCE="FP1-2">F. Optional Data Elements</FP> <FP SOURCE="FP1-2">G. Retention of Government-Issued Photo Identification Document Copies</FP> <FP SOURCE="FP1-2">H. Exemption of ACAS Data From Disclosure</FP> <FP SOURCE="FP1-2">I. Phased Enforcement</FP> <FP SOURCE="FP1-2">J. Severability</FP> <FP SOURCE="FP-2">V. Statutory and Regulatory Reviews</FP> <FP SOURCE="FP1-2">A. Administrative Procedure Act</FP> <FP SOURCE="FP1-2">B. Executive Orders 12866, 13563, and 14192</FP> <FP SOURCE="FP1-2">C. Regulatory Flexibility Assessment</FP> <FP SOURCE="FP1-2">D. Unfunded Mandates Reform Act</FP> <FP SOURCE="FP1-2">E. Privacy Act of 1974 and E-Government Act of 2002</FP> <FP SOURCE="FP1-2">F. Paperwork Reduction Act</FP> <FP SOURCE="FP1-2">G. International Trade Impact Assessment</FP> <FP SOURCE="FP1-2">H. Congressional Review Act</FP> </EXTRACT> <HD SOURCE="HD1">Table of Abbreviations</HD> <EXTRACT> <FP SOURCE="FP-1">ABI—Automated Broker Interface</FP> <FP SOURCE="FP-1">ACAS—Air Cargo Advance Screening</FP> <FP SOURCE="FP-1">APA—Administrative Procedure Act</FP> <FP SOURCE="FP-1">ATS—Automated Targeting System</FP> <FP SOURCE="FP-1">BLS—Bureau of Labor Statistics</FP> <FP SOURCE="FP-1">CBP—U.S. Customs and Border Protection</FP> <FP SOURCE="FP-1">CFR—Code of Federal Regulations</FP> <FP SOURCE="FP-1">CRA—Congressional Review Act</FP> <FP SOURCE="FP-1">DHS—Department of Homeland Security</FP> <FP SOURCE="FP-1">DNL—Do-Not-Load</FP> <FP SOURCE="FP-1">EIA—Energy Information Administration</FP> <FP SOURCE="FP-1">E.O.—Executive Order</FP> <FP SOURCE="FP-1">EU—European Union</FP> <FP SOURCE="FP-1">FDM—Flight Departure Message</FP> <FP SOURCE="FP-1">FR—Federal Register</FP> <FP SOURCE="FP-1">GDP—Gross Domestic Product</FP> <FP SOURCE="FP-1">HAWB—House Air Waybill</FP> <FP SOURCE="FP-1">IFR—Interim Final Rule</FP> <FP SOURCE="FP-1">IG—Implementation Guide</FP> <FP SOURCE="FP-1">IP—Internet Protocol</FP> <FP SOURCE="FP-1">IT—Information Technology</FP> <FP SOURCE="FP-1">MAC—Media Access Control</FP> <FP SOURCE="FP-1">MAWB—Master Air Waybill</FP> <FP SOURCE="FP-1">NCSP—National Cargo Security Program</FP> <FP SOURCE="FP-1">OMB—Office of Management and Budget</FP> <FP SOURCE="FP-1">PNR—Passenger Name Record</FP> <FP SOURCE="FP-1">PRA—Paperwork Reduction Act</FP> <FP SOURCE="FP-1">RFA—Regulatory Flexibility Act</FP> <FP SOURCE="FP-1">SBA—U.S. Small Business Administration</FP> <FP SOURCE="FP-1">SKU—Stock Keeping Unit</FP> <FP SOURCE="FP-1">SSI—Sensitive Security Information</FP> <FP SOURCE="FP-1">TSA—Transportation Security Administration</FP> <FP SOURCE="FP-1">UMRA—Unfunded Mandates Reform Act</FP> <FP SOURCE="FP-1">URL—Uniform Resource Locator</FP> <FP SOURCE="FP-1">U.S.—United States</FP> <FP SOURCE="FP-1">U.S.C.—United States Code</FP> <FP SOURCE="FP-1">VPN—Virtual Private Network</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 all aspects of this interim final rule (IFR). CBP also invites comments that relate to the economic, environmental, or federalism effects that might result from this IFR. Comments that will provide the most assistance to CBP will reference a specific portion of the IFR, explain the reason for any recommended change, and include data, information, or authority that support such recommended change. <HD SOURCE="HD1">II. Executive Summary</HD> Intentional attacks on international aviation continue to pose a significant threat to the security of aircraft and individuals entering the United States. For example, in July 2024, incendiary devices caused fires at several air cargo facilities in Europe. If the devices had ignited mid-air, the resulting fires could have caused the catastrophic loss of an aircraft, threatening the safety and security of all individuals and property in the vicinity of the incident. The Department of Homeland Security (DHS) was established, in part, to prevent such attacks, and to ensure aviation safety and security. Within DHS, U.S. Customs and Border Protection (CBP) and the Transportation Security Administration (TSA) have responsibilities for securing international air cargo bound for the United States. Working together, CBP and TSA employ a layered security approach to secure aircraft entering the United States, which includes risk assessment methods that identify high-risk cargo for further screening. As part of this layered security approach, CBP's Air Cargo Advance Screening (ACAS) program requires inbound air carriers or other eligible filers to transmit specified air cargo data as early as practicable, but no later than prior to the loading of the cargo onto an aircraft. This data is analyzed as part of a joint CBP-TSA targeting operation that identifies high-risk cargo for further interventions before the cargo can be loaded onto an aircraft bound for the United States. In response to the July 2024 incidents, CBP, in coordination with TSA, determined that it is necessary to modify the ACAS program to more effectively identify high-risk air cargo. CBP, in collaboration with TSA, established the ACAS program in response to an October 2010 attack in which terrorists placed concealed explosive devices in cargo on board two aircraft destined for the United States. The devices, disguised as printers, were designed to detonate mid-air over the continental United States with enough explosive potential to cause catastrophic damage to the two aircraft. The attack was ultimately thwarted when the devices were discovered through the combined efforts of multiple foreign and domestic intelligence agencies. If not discovered, the devices could have caused significant loss of life and damage to property on board any of the aircraft that the devices transited on, including passenger aircraft that carry air cargo. Despite the positive conclusion, the attack highlighted significant vulnerabilities in air cargo security as the devices had flown on board several flights prior to discovery. To address vulnerabilities identified in CBP's analysis of the October 2010 attack, CBP, in c ━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━━ Preview showing 10k of 298k characters. 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