[Federal Register Volume 83, Number 246 (Wednesday, December 26, 2018)]
[Rules and Regulations]
[Pages 66125-66128]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2018-27798]


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DEPARTMENT OF JUSTICE

28 CFR Part 16

[CPCLO Order No. 006-2018]


Privacy Act of 1974; Implementation

AGENCY: Office of the Inspector General, United States Department of 
Justice.

ACTION: Final rule.

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SUMMARY: The Office of the Inspector General (OIG), a component within 
the United States Department of Justice (DOJ or Department), is 
finalizing its Privacy Act exemption regulations for the system of 
records titled, ``Data Analytics Program Records System,'' JUSTICE/OIG-
006, which were published as a Notice of Proposed Rulemaking (NPRM) on 
March 28, 2018. Specifically, the Department's regulations will exempt 
the records maintained in JUSTICE/OIG-006 from one or more provisions 
of the Privacy Act and implement other administrative changes. The 
exemptions are necessary to avoid interference with the law enforcement 
functions and responsibilities of OIG. The Department received 21 
comments on the NPRM, none of which addressed the substance of the 
proposed Privacy Act exemption regulations for JUSTICE/OIG-006.

DATES: This final rule is effective January 25, 2019.

FOR FURTHER INFORMATION CONTACT: Jonathan M. Malis, General Counsel, 
Office of the Inspector General, Department of Justice, 950 
Pennsylvania Avenue NW, Washington, DC 20530, phone: (202) 514-3435.

SUPPLEMENTARY INFORMATION: Pursuant to the Inspector General Act of 
1978, as amended, Inspectors General, including the DOJ Inspector 
General, are responsible for conducting, supervising, and coordinating 
audits and investigations to recognize and mitigate fraud, waste, and 
abuse by programs and operations of the Federal agency for which their 
office is established. On March 28, 2018, OIG published a System of 
Records Notice (SORN) for its system of records titled, ``Data 
Analytics Program Records System,'' JUSTICE/OIG-006, 83 FR 13309 (March 
28, 2018), for the records collected to implement its data analytics 
(DA) program. The DA program will assist with the performance of OIG 
audits, investigations, and reviews, and accommodate the requirements 
of the Digital Accountability and Transparency Act of 2014, Public Law 
113-101, 128 Stat. 1146. Specifically, the DA program will provide OIG: 
timely insights from the data already stored in DOJ databases that OIG 
has legal authorization to access and maintain; the ability to monitor 
and analyze data for patterns and correlations that signal wasteful, 
fraudulent, or abusive activities impacting Department performance and 
operations; the ability to find, acquire, extract, manipulate, analyze, 
connect, and visualize data; the capability to manage vast amounts of 
data; the ability to identify significant information that can improve 
decision quality; and the ability to mitigate risk of waste, fraud, and 
abuse.

[[Page 66126]]

    On the same day OIG published JUSTICE/OIG-006, OIG published a 
Notice of Proposed Rulemaking (NPRM), 83 FR 13208 (March 28, 2018), 
proposing to exempt records maintained in JUSTICE/OIG-006 from certain 
provisions of the Privacy Act pursuant to 5 U.S.C. 552a(j) and (k). 
Additionally, as an administrative matter, OIG proposed replacing the 
current regulations promulgated in paragraphs (c) and (d) of 28 CFR 
16.75 with the proposed regulations for JUSTICE/OIG-006. The current 
regulations promulgated in paragraphs (c) and (d) exempt from certain 
provisions of the Privacy Act a previously rescinded OIG SORN, ``Office 
of the Inspector General, Freedom of Information/Privacy Acts (FOI/PA) 
Records,'' JUSTICE/OIG-003, 66 FR 29994 (June 4, 2001), and are no 
longer needed. The Department invited public comment on the proposed 
regulations. The comment period was open through April 27, 2018. DOJ 
received 21 comments on the NPRM, none of which addressed the substance 
of the proposed Privacy Act exemption regulations for JUSTICE/OIG-006. 
Two of the comments mentioned concerns with ``data mining,'' but those 
concerns were expressed in the context of applications on web servers 
collecting information about shoppers' and users' habits, which is not 
relevant to the use or purpose of the DA program. The remaining 
comments touched on numerous other, unrelated topics such as the 
Environmental Protection Agency and environmental concerns, Russia's 
attempt to stop American oil and gas drilling, the commodities 
exchange, and the Consumer Financial Protection Bureau.
    After consideration of these public comments, the Department will 
codify in this final rule the regulations proposed in the NPRM to 
protect the ability of the OIG to properly engage in its law 
enforcement functions. Three administrative changes have been made to 
the regulations proposed in the NPRM. First, in Sec.  16.75(d)(1), the 
term ``interest'' in the second sentence is revised to read, 
``interests.'' Second, in Sec.  16.75(d)(3), the term ``his'' in the 
first sentence is revised to read, ``the subject's.'' Third, in Sec.  
16.75(d)(8), a duplicative use of the word ``could'' has been removed.

Executive Orders 12866 and 13563--Regulatory Review

    This regulation has been drafted and reviewed in accordance with 
Executive Order 12866, ``Regulatory Planning and Review'' section 1(b), 
Principles of Regulation, and Executive Order 13563 ``Improving 
Regulation and Regulatory Review'' section 1(b), General Principles of 
Regulation.
    The Department of Justice has determined that this rule is not a 
``significant regulatory action'' under Executive Order 12866, section 
3(f), and accordingly this final rule has not been reviewed by the 
Office of Management and Budget, Office of Information and Regulatory 
Affairs, in accordance with Executive Order 12866.

Regulatory Flexibility Act

    This regulation will only impact Privacy Act-protected records, 
which are personal and generally do not apply to an individual's 
entrepreneurial capacity, subject to limited exceptions. Accordingly, 
the Chief Privacy and Civil Liberties Officer, in accordance with the 
Regulatory Flexibility Act (5 U.S.C. 605(b)), has reviewed this 
regulation and by approving it certifies that this regulation will not 
have a significant economic impact on a substantial number of small 
entities.

Executive Order 13132--Federalism

    This regulation will not have substantial direct effects on the 
States, on the relationship between the national government and the 
States, or on distribution of power and responsibilities among the 
various levels of government. Therefore, in accordance with Executive 
Order 13132, it is determined that this rule does not have sufficient 
federalism implications to warrant the preparation of a Federalism 
Assessment.

Executive Order 12988--Civil Justice Reform

    This regulation meets the applicable standards set forth in 
sections 3(a) and 3(b)(2) of Executive Order 12988 to eliminate 
drafting errors and ambiguity, minimize litigation, provide a clear 
legal standard for affected conduct, and promote simplification and 
burden reduction.

Executive Order 13175--Consultation and Coordination With Indian Tribal 
Governments

    This regulation will not impact Indian Tribal governments. More 
specifically, it does not have substantial direct effects on one or 
more Indian tribes, on the relationship between the Federal government 
and Indian tribes, or on the distribution of power and responsibilities 
between the Federal government and Indian tribes. Therefore, the 
consultation requirements of Executive Order 13175 do not apply.

Unfunded Mandates Reform Act of 1995

    This regulation will not result in the expenditure by State, local, 
and tribal governments, in the aggregate, or by the private sector, of 
$100,000,000, as adjusted for inflation, or more in any one year, and 
it will not significantly or uniquely affect small governments. 
Therefore, no actions were deemed necessary under the provisions of the 
Unfunded Mandates Reform Act of 1995.

Congressional Review Act

    This rule is not a major rule as defined by 5 U.S.C. 804 of the 
Congressional Review Act.

Paperwork Reduction Act

    This rule imposes no information collection or recordkeeping 
requirements.

List of Subjects in 28 CFR Part 16

    Administrative practices and procedures, Courts, Freedom of 
information, and the Privacy Act.

    Pursuant to the authority vested in the Attorney General by 5 
U.S.C. 552a and delegated to me by Attorney General Order 2940-2008, 
the Department of Justice amends 28 CFR part 16 as follows:

PART 16--PRODUCTION OR DISCLOSURE OF MATERIAL OR INFORMATION

0
1. The authority citation for part 16 continues to read as follows:

    Authority:  5 U.S.C. 301, 552, 552a, 553; 28 U.S.C. 509, 510, 
534; 31 U.S.C. 3717.

Subpart E--Exemption of Records Systems Under the Privacy Act

0
2. Amend Sec.  16.75 by revising paragraphs (c) and (d) to read as 
follows:


Sec.  16.75  Exemption of the Office of the Inspector General Systems/
Limited Access.

* * * * *
    (c) The Data Analytics Program Records System (JUSTICE/OIG-006) 
system of records is exempt from 5 U.S.C. 552a(c)(3) and (4); (d); 
(e)(1), (2), (3), (5) and (8); and (g) of the Privacy Act. These 
exemptions apply only to the extent that information in this system is 
subject to exemption pursuant to 5 U.S.C. 552a(j) and/or (k). Where 
compliance would not appear to interfere with or adversely affect the 
law enforcement process, and/or where it may be appropriate to permit 
individuals to contest the accuracy of the information collected, e.g., 
public source materials, the applicable

[[Page 66127]]

exemption may be waived, either partially or totally, by OIG.
    (d) Exemptions from the particular subsections are justified for 
the following reasons:
    (1) From subsection (c)(3), the requirement that an accounting be 
made available to the named subject of a record, because release of 
disclosure accounting could alert the subject of an investigation of an 
actual or potential criminal, civil, or regulatory violation to the 
existence of an investigation and the fact that the individual is the 
subject of the investigation. Such a disclosure could also reveal 
investigative interests by not only OIG, but also by the recipient 
agency or component. Since release of such information to the subjects 
of an investigation would provide them with significant information 
concerning the nature of the investigation, release could result in the 
destruction of documentary evidence, improper influencing of witnesses, 
endangerment of the physical safety of confidential sources, witnesses, 
and law enforcement personnel, the fabrication of testimony, flight of 
the subject from the area, and other activities that could impede or 
compromise the investigation. In addition, providing the individual an 
accounting for each disclosure could result in the release of properly 
classified information which would compromise the national defense or 
disrupt foreign policy.
    (2) From subsection (c)(4) notification requirements, for the same 
reasons that justify exempting this system from the access and 
amendment provisions of subsection (d), and similarly, from the 
accounting of disclosures provision of subsection (c)(3). The DOJ takes 
seriously its obligation to maintain accurate records despite its 
assertion of this exemption, and to the extent it, in its sole 
discretion, agrees to permit amendment or correction of DOJ records, it 
will share that information in appropriate cases.
    (3) From subsection (d), the access and amendment provisions, 
because access to the records contained in this system of records could 
inform the subject of an investigation of an actual or potential 
criminal, civil, or regulatory violation, of the existence of the 
investigation; of the nature and scope of the information and evidence 
obtained as to the subject's activities; of the identity of 
confidential sources, witnesses, and law enforcement personnel, and of 
information that may enable the subject to avoid detection or 
apprehension. These factors would present a serious impediment to 
effective law enforcement where they prevent the successful completion 
of the investigation, endanger the physical safety of confidential 
sources, witnesses, and law enforcement personnel, and/or lead to the 
improper influencing of witnesses, the destruction of evidence, or the 
fabrication of testimony. In addition, granting access to such 
information could disclose security-sensitive or confidential business 
information or information that would constitute an unwarranted 
invasion of the personal privacy of third parties. Finally, access to 
the records could result in the release of properly classified 
information that would compromise the national defense or disrupt 
foreign policy. Amendment of the records would interfere with ongoing 
investigations and law enforcement activities and impose an impossible 
administrative burden by requiring investigations to be continuously 
reinvestigated.
    (4) From subsection (e)(1), because the application of this 
provision could impair investigations and interfere with the law 
enforcement responsibilities of the OIG for the following reasons:
    (i) It is not possible to determine the relevance or necessity of 
specific information in the early stages of a civil, criminal or other 
law enforcement investigation, case, or matter, including 
investigations in which use is made of properly classified information. 
Relevance and necessity are questions of judgment and timing, and it is 
only after the information is evaluated that the relevance and 
necessity of such information can be established.
    (ii) During the course of any investigation, the OIG may obtain 
information concerning actual or potential violations of laws other 
than those within the scope of its jurisdiction. In the interest of 
effective law enforcement, the OIG should retain this information in 
accordance with applicable record retention procedures, as it may aid 
in establishing patterns of criminal activity, and can provide valuable 
leads for Federal and other law enforcement agencies.
    (iii) In interviewing individuals or obtaining other forms of 
evidence during an investigation, information may be supplied to an 
investigator which relates to matters incidental to the primary purpose 
of the investigation but which may also relate to matters under the 
investigative jurisdiction of another agency. Such information cannot 
readily be segregated.
    (5) From subsection (e)(2), because, in some instances, the 
application of this provision would present a serious impediment to law 
enforcement for the following reasons:
    (i) The subject of an investigation would be placed on notice as to 
the existence of an investigation and would therefore be able to avoid 
detection or apprehension, to improperly influence witnesses, to 
destroy evidence, or to fabricate testimony.
    (ii) In certain circumstances the subject of an investigation 
cannot be required to provide information to investigators, and 
information relating to a subject's illegal acts, violations of rules 
of conduct, or any other misconduct must be obtained from other 
sources.
    (iii) In any investigation it is necessary to obtain evidence from 
a variety of sources other than the subject of the investigation in 
order to verify the evidence necessary for successful litigation.
    (6) From subsection (e)(3), because the application of this 
provision would provide the subject of an investigation with 
substantial information which could impede or compromise the 
investigation. Providing such notice to a subject of an investigation 
could interfere with an undercover investigation by revealing its 
existence, and could endanger the physical safety of confidential 
sources, witnesses, and investigators by revealing their identities.
    (7) From subsection (e)(5), because the application of this 
provision would prevent the collection of any data not shown to be 
accurate, relevant, timely, and complete at the moment it is collected. 
In the collection of information for law enforcement purposes, it is 
impossible to determine in advance what information is accurate, 
relevant, timely, and complete. Material that may seem unrelated, 
irrelevant, or incomplete when collected may take on added meaning or 
significance as an investigation progresses. The restrictions of this 
provision could interfere with the preparation of a complete 
investigative report, and thereby impede effective law enforcement.
    (8) From subsection (e)(8), because to require individual notice of 
disclosure of information due to compulsory legal process would pose an 
impossible administrative burden on OIG and may alert the subjects of 
law enforcement investigations, who might be otherwise unaware, to the 
fact of those investigations. Such notice could also reveal 
investigative techniques, procedures, or evidence.
    (9) From subsection (g), to the extent that this system is exempt 
from the access and amendment provisions of subsection (d), pursuant to 
subsections

[[Page 66128]]

(j)(2), (k)(1), and (k)(2) of the Privacy Act.

    Dated: December 18, 2018.
Peter A. Winn,
Acting Chief Privacy and Civil Liberties Officer, United States 
Department of Justice.
[FR Doc. 2018-27798 Filed 12-21-18; 8:45 am]
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