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### Viewing cable 05PARIS5374, FRANCE: DHS ACTING U/S BEARDSWORTH MEETS

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
05PARIS5374 | 2005-08-05 13:43 | 2011-08-24 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Paris

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 04 PARIS 005374

    SIPDIS

    SENSITIVE

    STATE FOR EB/TRA, EUR/WE, EUR/ERA, AND S/CT
    DHS FOR U/S BEARDSWORTH, TSA-INTL AFFAIRS-DTIEDGE
    BRUSSELS FOR TSA

    E.O. 12958:  N/A
    TAGS: EAIR PTER FR
    SUBJECT:  FRANCE: DHS ACTING U/S BEARDSWORTH MEETS
    OFFICIALS ON PNR DATA AND NO-FLY ISSUES

    REF: PARIS 4921

    NOT FOR INTERNET DISTRIBUTION

    ¶1. (SBU) Summary.  In his meetings with French officials,
    U/S Beardsworth highlighted the positive uses of Passenger
    Name Record (PNR) data and engendered an appreciation of
    how PNR data can help advance our mutual interest of
    denying terrorists freedom to travel while protecting
    privacy and facilitating the legitimate movement of people
    and goods.   U/S Beardsworth also responded to French
    concerns about the No-Fly system, pointing to its overall
    success and committed to take steps to improve the
    communications and processes in place with respect to
    French No Fly situations. End Summary

    ¶2.  (SBU) In addition to meeting with Ambassador Stapleton
    and members of the country team, Department of Homeland
    Security (DHS) Acting Under Secretary for Border and
    Transportation Security Randy Beardsworth met with French
    officials in Paris July 20, 2005.  U/S Beardsworth attended
    two separate meetings, the first hosted by the Secretariat
    Gnrale de la Defense Nationale (SGDN) with officials
    primarily from SGDN and the Ministry of Interior (MOI); the
    second with Claude Gueant, MOI Chief of Cabinet.  The
    meeting at the SGDN, the Prime Minister's coordinating body
    for national defense and counter-terrorism, included the
    following officials: Francis Delon, SGDN Secretary General;
    Jerome Leonnet, the PM's Technical Counselor for Security
    (SGDN); Col. Gratien Maire, the PM's Deputy Director of
    Military Affairs(SGDN);  Eric Lebedel, Director of
    International and Strategic Affairs(SGDN); Alain Coursaget,
    ,
    Deputy Director of Protection and State Security(SGDN);
    Jean-Philippe Grelot, Counselor for Defense Affairs(SGDN);
    Col. Henri Schlienger, Protection and State Security(SGDN);
    Michel Gaudin, Director General of the National Police
    (MOI); Stephane Fratacci, Director of the Office of Public
    Liberties and Legal Affairs (MOI); Pierre Debue, Central
    Director of the Border Police (MOI); Christophe Chaboud,
    head of the Anti-Terrorist Co-Ordination Cell (MOI);
    Francois Darcy, head of the Office of International and
    European Affairs (MOI); Pascal-Jean Perron, Director of
    Economic and Financial Affairs (Ministry of Finance);
    Michel Wachenheim, Director General of Civil Aviation; and
    Paul Schwach, Director of Strategic and Technical Affairs,
    Civil Aviation.

    ¶3. (SBU) The most substantive discussions took place at the
    meeting hosted by the SGDN.  The French began by a
    discussion of their anti-terrorist planning system, noting
    that they had raised the threat level after the London
    subway bombings.  It consisted of five warning levels and a
    "toolkit" of around 500 measures that could be applied
    either globally or sector-specifically in response to
    threats.  They were currently considering whether and when
    to change the warning level, and how to balance increased
    security against the extra costs and danger of creating
    complacency in the public.  U/S Beardsworth described the
    U.S. system as very similar, and noted that the U.S. was
    grappling with the same kind of issues in setting its
    threat levels.

    ¶4. (SBU) U/S Beardsworth then described the recent re-
    organization of DHS as a result of its second-stage review
    process, which involved 18 working groups in 5 strategic
    areas: Preparedness, Border Control and Immigration,
    Transportation Security, Information Sharing, and Business
    Processes.  He emphasized a number of changes that would
    lead to increased efficiency and coherence: the creation of
    a Director of Preparedness, a new Department level Policy
    office, and of a new Intelligence position reporting
    directly to the Secretary.  He reassured the French
    officials that TSA would continue to have operational
    responsibility for transportation security issues.

    ¶5. (SBU) U/S Beardsworth began his presentation on PNR data
    by providing an overview of how it related to the No-Fly
    (NF) list, which is a compilation of individuals suspected
    of having a terrorist nexus.  He explained that PNR data is
    not used to populate the NF list, nor has it been used to
    divert aircraft.  APIS data, a manifest of passengers
    traveling to the U.S., is checked against the NF list in
    determining potential diversions of aircraft.  While APIS
    data is a highly successful tool for identifying known
    persons of interest, it does not identify those who are
    unknown.  The PNR database develops relationships between
    these knowns and unknowns through common patterns and
    relationships between data elements.  For example, the PNR
    database is able to red flag passengers who have a
    questionable travel itinerary or who paid for their travel
    through questionable sources.

    ¶6. (SBU) U/S Beardsworth pointed out how successful the No-
    Fly screening process has been overall.  Of the 750 million
    passengers flying into or within the U.S., U/S Beardsworth
    noted that there were 202 "encounters" from the 30,000
    names on the NF list, a sub-set of the 400,000 names on
    terrorist watch lists.  Of the 202 cases, in 120 cases the
    individual did not board the aircraft.  Of the remaining 82
    who flew, DHS had reviewed its information and had
    downgraded the individual for that flight, allowing the
    flight to proceed.  As for the remaining 28 cases, only
    eight resulted in diversion of the aircraft.  Of those
    eight cases, six involved individuals the United States
    categorically did not want to be on board the aircraft.
    One case involved an individual in the unfortunate
    circumstance of having the same name and date of birth as a
    terrorist; and in the final case a passport known to be
    stolen and in use by terrorists was used - but in this case
    the rightful original holder was the passenger in question.
    U/S Beardsworth summarized that DHS had avoided flight
    diversions in all but a very few cases of grave concern.

    ¶7. (SBU) Michel Wachenheim, DGAC stated that the most
    recent NF diversion on July 8 of an Air France flight also
    raised a number of questions (Reftel): Why did it take so
    long to identify a problem with the passenger involved,
    since the U.S. had AMADEUS reservation data "days" ahead of
    time and three APIS transmissions before departure?  What
    was the explanation for three Air France NF incidents in
    the past three months?  What of the economic implications
    of repeated diversions of Air France flights?  France
    wanted to respect its obligations under the NF system, but
    we needed to look at how it was being implemented, and to
    avoid wherever possible last-minute decisions to divert
    aircraft.  He suggested that perhaps the U.S. and French
    intelligence services needed to share more information on
    NF nominees, especially since they could well pose a danger
    beyond air transportation.

    ¶8. (SBU) U/S Beardsworth replied that these were all
    excellent points.  He elaborated that it was very important
    to share information to the maximum extent possible, and we
    had already agreed to provide the NF list to the French.
    We also needed to look at terrorist travel as a broader
    issue.  Just as the international community works together
    to deny financial resources to terrorist organizations, so
    does the international community need to prevent terrorists
    from international travel without the appropriate scrutiny
    and oversight.

    ¶9. (SBU) SG Delon said that nonetheless the system had to
    be credible, and that he felt the image of Air France was
    at stake in these repeated diversions.  U/S Beardsworth
    replied that he understood this concern, and that he was
    going to explore adopting special measures to help minimize
    future diversions of French flights, and to provide full
    and accurate information as quickly as possible in
    potential NF cases.

    ¶10. (SBU) Turning to PNR data, U/S Beardsworth discussed
    the ongoing case of a suspected cell of terrorists in Lodi,
    California.  The case demonstrated that the unique aspects
    of the PNR database allowed for queries that uncovered key
    linkages between individuals that otherwise would not have
    been made, thus expanding the Joint Terrorism Task Force
    (JTTF) investigation.  In response to the recent terrorist
    incident in London on July 7, a PNR database search was
    configured in a matter of hours that was tailored to
    identifying potential terrorists linked to those attacks.
    PNR data had also proved its worth identifying travel
    agencies with a history of facilitating the travel of those
    using lost or stolen passports, or other fraudulent
    documents.

    ¶11. (SBU) SG Delon said he fully understood the value of
    the database, but pointed out that it raised privacy
    concerns in European countries.  U/S Beardsworth replied
    that he had recently met with EU parliamentarians to
    address these concerns, and that the U.S. was fully
    committed to the Undertakings, a set a agreements for data
    privacy measures agreed to by the U.S. and EU.  These
    included various safeguards that have been built into the
    PNR database, such as filters and audit functions, that
    ensure PNR data is protected from those without a need to
    see it.  In fact, our rules offered a stronger system of
    protection than that available in many European countries.
    DGPN Gaudin for his part said the French police authorities
    looked on using PNR in France with "a favorable eye,"
    provided issues of judicial supervision and privacy of data
    could be resolved.

    ¶12. (SBU) SG Delon said that it would be helpful to have
    more information in writing on how the U.S. system actually
    worked; there were many points that needed to be clarified
    on what data the USG wanted and how we would use it. In
    particular, more information on physical and electronic
    access, audit and tracability, and retention of records
    could help resolve European privacy concerns.  Michel
    Wachenheim worried that providing PNR data would create an
    additional economic burden on French airlines, and might
    increase the number of potential no-fly cases. U/S
    Beardsworth replied that economic issues were indeed
    important, and that we were working to ease the burden on
    airlines by moving to a system of earlier transmission of
    APIS data, and by trying to encourage harmonization of EU
    and U.S. standards on PNR data.  There was however no
    systematic link between PNR data and the no-fly system, or
    indeed to other law enforcement or intelligence databases.

    ¶13. (SBU) U/S Beardsworth said he would provide written
    material that would address SG Delon's questions, and
    suggested that the French might benefit from sending
    someone for a week in order to observe exactly how we use
    PNR data, as well as the effective implementation of
    protective safeguards for privacy of data.  SG Delon
    thanked him for the offer, concluding that there was still
    much work to do to improve our cooperation on air security
    and anti-terrorism.

    ¶14. (SBU) In a separate meeting at the Ministry of the
    Interior, U/S Beardsworth discussed PNR issues with Claude
    Guant, Head of the Interior Minister's Cabinet.  David
    Martinon, the Minister's Diplomatic Advisor was also
    present.  He made the same points regarding PNR detailed in
    the paragraphs above.  Mr. Guant commented that France was
    conscious of the changing nature of the terrorist threat:
    terrorists had moved to a more "industrial" organization
    that required new and more systematic tools than
    traditional investigative work could provide.  Tracking
    travel was potentially of great interest in this respect.

    ¶15. (SBU) U/S Beardsworth replied that the U.S. was
    increasingly making a distinction between identifying
    people who were threats through intelligence, and screening
    g
    larger numbers of people who could be worth interviewing
    because they might possess useful information.  It was
    important to deny terrorists access to travel, he noted, as
    we are denying them access to financial resources.  He
    emphasized his willingness to consider special arrangements
    if necessary to improve the handling of no-fly cases in
    France.  He repeated his suggestion that the French
    consider sending a technical person to see how the PNR
    system worked in practice.  Mr. Guant expressed interest
    in this idea.

    ¶16. (SBU) Mr. Guant also indicated that the French had
    recently decided to meet VWP deadlines for passports with
    digital photos, and that an e-passport would eventually
    follow.  He also hinted that the ministry may have more
    ambitious plans, and might be looking at whether they could
    meet the October 2005 VWP deadline for beginning production
    of a passport with an electronic chip.
    ¶17. (SBU) Finally, in a short meeting with Air France Vice-
    -
    President for External Relations Guy Tardieu, U/S
    Beardsworth responded to a number of concerns provoked by
    the latest no-fly diversion of an Air France flight.
    Tardieu emphasized that it was very important for Air
    France to avoid future diversions if possible, and wanted
    to work with TSA more intensively and at an earlier stage
    of the process.  Air France's reputation was at stake, and
    the USG needed to be especially careful about public
    communication during diversions, so that Air France was not
    unfairly blamed.  U/S Beardsworth reassured Tardieu that he
    would look into developing special measures to respond to
    his concerns.  Tardieu suggested that more French-speaking
    TSA staff in France could be helpful.  Air France had found

    SIPDIS
    direct communications with English-speaking staff at TSA's
    operations center difficult during flight diversions.
    ¶18. (U) Acting U/S Beardsworth was accompanied to the
    meetings by: Dennis Sequeira, Director, Europe &
    Multilateral Affairs, DHS Office of International Affairs;
    Erik Shoberg, Policy Advisor, DHS Office of Customs and
    Border Protection; Jill Drury, Policy Advisor and TSA
    liaison to Brussels; and Executive Assistant David von
    Damm.  Deirdre Mahon, DHS Representative, Embassy Paris;
    Nouri Larbi, TSA Representative, Embassy Paris; and Mark
    Motley, Embassy Paris, (notetaker) also participated.

    ¶19. (U) This message has been cleared by U/S Beardsworth.
    STAPLETON

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