ELECTRONI C PRIVAC Y INFORMATIO N CENTE R 

cfiic.org 

March 8, 2012 '?' » Conneciicui Ave MW 

Suite 200 

U.S. Department of Transportation, ^^^^.^^^^^ „^ ^^^^^ 

Docket Operations, 

West Building Ground Floor, Room W12-140, "^* 

1200 New Jersey Avenue, SE. +' 2fl2 -fBa IMC m 

Washington, DC 20590 ^i 2oz 403 mi [\u] 

www.epic.org 

To Whom It May Concern: 

Per 14 C.F.R. § 11.63(a)(2), I am forwarding the enclosed petition, which was 

sent to the FAA Acting Administrator on February 24, 2012. 

Amie StepanovicI 

National Security Counsel 

Electronic Privacy Information Center 
February 24, 2012 

Michael P. Huerta 

Acting Administrator 

United States Federal Aviation Administration 

800 Independence Avenue, SW 

Washington, D.C 20591 

Facsimile (202)-267-5289 

Dear Administrator Huerta, 

We the undersigned consumer rights, human rights, technology, and civil 

liberties organizations, members of the EPIC Advisory Board, and members of the 

general public submit this Petition to the Federal Aviation Administration ("FAA") to 

urge the Agency to conduct a rulemaking to address the threat to privacy and civil 

liberties that will result from the deployment of aerial drones within United States.^ 

The FAA Modernization and Reform Act of 2012 provides a timely opportunity for 

you to address this critical question,^ 

Drone Use in the United States is Increasing 

A "drone," or "unmanned aircraft," is an aerial vehicle designed to fly without 

a human pilot onboard. Current regulations only permit civil organizations to 

operate drones within the United States with an "experimental" designation.^ 

Despite this limitation, many individuals have found the means to operate drones 

within the course of business.* 

The Bureau of Customs and Border Protection ("CBP") currently operates 

nine drone vehicles, which were procured specifically to monitor the United States 

borders.^ In 2011, CBP allowed a local law enforcement unit in North Dakota the use 

^ This is a petition under the Administrative Procedure Act 5 U.S.C. § 553(e) (2011). 

2 FAA Modernization and Reform Act of 2012, Pub. L 112-95 (2012), available at 

http;//www.gpo.gov/fdsys/pkg/BILLS-112hr658enr/pdf/BILLS-112hr658enr.pdf. 

3 Unmanned Aircraft Operations in the National Airspace System, 14 C.F.R. 91 (2007), available at 

https://www.federalregister.gov/articies/2007/02/13/E7-2402/unmanned-aircraft-operations-inthe-national-airspace-system#p-12 ("Under FAA policy, operators who wish to fly an unmanned 

aircraft for civil use must obtain an FAA airworthiness certificate the same as any other type aircraft. 

The FAA is currently only issuing special airworthiness certificates in the experimental category."). 

^ Drones: Who is Watching You (ABC News 2012), available at http://news.yahoo.com/video/us15749625/drones-who-is-watching-you-28326842.html. 

^ Press Release, United States Bureau of Customs and Border Protection, CBP Receives Fourth 

Predator-B in Arizona; Agency Now Operates 9 Unmanned Aircraft (Dec. 27, 2011), available at 

http://www.cbp.gov/xp/cgov/newsroom/news releases/national/2011,news archjve/12272011.x 

ml. 

Petition to the FAA 1 Drones and Privacy 
of a drone within the unit's normal operations.^ This incident represented the first 

occasion where drone use resulted in an arrest of a U.S. Citizen.^ 

Many law enforcement agencies are acquiring drones that permit new forms 

of aerial surveillance.^ In 2011, the Miami-Dade Police Department purchased a 

Honeywell T-hawk with funds from the federal stimulus.^ Later that year, The 

Montgomery County Sheriffs Office in Texas purchased a ShadowHawk with a grant 

from the Department of Homeland Security ("DHS"}.io Drones are also used by 

police in South Carolina and Colorado, and drones may soon be used for surveillance 

in New York City.^^ Experts estimate that up to 30,000 new drones could be 

launched in the United States in the next decade.^^ 

Drones Pose Snhstantial Threats to Privacy 

Drones greatly increase the capacity for domestic surveillance.^^ Gigapixel 

cameras used to outfit drones are among the highest definition cameras available, 

and can "provide real-time video streams at a rate of 10 frames a second."^* On 

some drones, operators can track up to 65 different targets across a distance of 65 

square miles.i^ Drones may also carry infrared cameras, heat sensors, GPS, sensors 

* Brian Bennett, Police Employ Predator Drone Spy Planes on Home Front, Los Angeles Times (Dec. 10, 

2011), http://articles.latimes.com/2011/dec/l0/nation/la-ni-drone-arrest-20111211. 

^ Ana Campoy, The Lava's New Eye in the Sky; Police Departments' Use of Drones is Raising Concerns 

Over Privacy and Safety. Wall Street Journal (Dec. 13, 2011], 

http://online.wsj.com7article/SB1000l4240529702043l9004577088891361782010.html("Asof 

September, there were 285 active permits requested by 85 government groups, including public 

universities, federal law enforcement agencies, and police departments."}. 

9 Drone May be Coming to Miami-Dade, WSVN-TV (Jan. 6, 2011), 

http://www.wsvn.eom/news/articles/local/21003198189967/; The Law's New Eye in the Sky, supra 

note 8. 

^° Clay Dil]ow,yl Texas Sheriff s Department is Launching an Unmanned Helodrone that Could Carry 

Weapons, PopSci (Nov. 3, 2011, 8:27'AM), available at 

http://www.popsci.com/technology/artide/2011-ll/texas-sheriffs-department-launchingunmanned-helo-could-:carry-weapons. 

" The Law's New Eye in the Sky, supra note Q; Brian Nay\or, Look, Upin the Sky! It's a Drone, Looking at 

Kou, NPR (Dec. 5, 2011), http://wfww.npr.org/2011/12/05/143144146/drqne-technolb5y-finding-. 

its-way-to-american-skies. 

^2 Lynn Herman, 30,000 Drones in American Skies, Civil Liberties iri Jeopardy, digital Journal (Feb. l3,' 

2012), http://www.digitaljourn^.'com/article/319564. One report attributes the number to the FAA 

itself. Shaun Waterman, Drongs'over U.S. get OK from Congress, The Washington Times (Feb. 7, 2012), 

http://www.washingtohtimes.eom/news/2C12/feb/7/coming-to-a-sky-near-you/. 

" See Jay Stanley andfCatherine Crump, Protecting Privacy From Aerial Surveillance: 

Recommendations ibr Government Use of prone Aircraft 4-6,10-13 (American Civil Liberties Union 

2011), ava//ab/eal4ittp://www.aclu.org/files/assets/proteccingprivacyh-omaerialsurveillance.pdf. 

^^ US Armyynvei/s 1.8 Gigapixel Camera Helicopter Drone, BtiC News Technology (Dec. 29, 2011,1:11 

PM), http:j'/www.bbc.co.uk/niews/technology-l6358851. 

Petition to the FAA 2 Drones and Privacy 
that detect movement, and automated license plate readers.i^ in the near future 

these cameras may include facial recognition technology that would make it 

possible to remotely identify individuals in parks, schools, and at political 

gatherings.i^ 

In addition, drones present a ,4niaue.threat to privacy. Drones are designed 

to undertake constant, persistent surveillance to a degree that former methods of 

aerial surveillance were unable to achiey.e.^? Also,, "by virtue of their design, their 

size, and how high.they c^n fly, (dirpnes] c^n operate undetected in urban and rural 

environments,"^^ . ,,, /^ , ' . 

The increased use of drones poses an ongoing threat to every person residing 

within the United States.^o Companies are <;leveloping "paparazzi drpnes" in order to 

follow and photograph celebrities.21 Private detective's "are starting to use drones to 

track their targpts,?^ GoQgle, inc. has deployed street-levej drones in 9ther countries 

to supplenient.the images of Street View.^.^ Crifninals and'others.mayuse.drones for 

purposes of ;Stalking and harassment.2'* , ,, ,-

The conseq^e^ices of ii)creased governnient surveillance through the use of 

drones are everi more troubling, the ability to link facial recognition capabilities on 

drone cameras to the FBI's Next Generation Identification database or DHS' IDENT 

" Custom's arid Border Protection today , Unmarined Aerial Vel]icl,es Support i^drder Security 

(July/Aug. 2004j,'6rva//ai7/eat ^ "'' '" ' ' • ^ ''••' ' 

http://www.(;bp.gOpV/xp/CustomsTpday/20p4/Aug/ot;her/aeriaLvehicIes.xm , 

^7 Clay Dillow, Army Developing Drones tha t Can Recognize^ Your Face From apistance , PopSci (Sept. 

28, 2011,4:01 PM), http;//www.popsci.com/t9chnoloK?/articIe/2pll'-09/army-wants-dr'6nes-canrecognize-your-face-and-read-your-mind. , ...;• . 

i8 5eeNoeI McKeegan, ffove^ UAV Dep^ohstrates 30;hour Persistent Surveillance, dizMag [Apr. 2,2009, 

6:35 AM), http://www.glzmag.com/ravej1-uay-derTioristrateS73O-hour-persistentsurveillance/,11.385/. _ ;' ' , ' ,' ' . ' "'. ' .' 

^^ Jennifer Lynch, Are Drones Watching Vou, Electronic Frontier Foundation (J^in. 10,2012), available 

at https://www.eff.0rg/deeplinks/2Oi2./Ol/drones-are-watching-you. 

20 See M. Ryan Calo, The Drone as a Privacy Caialyst,^!^ Stan. L Rev. Online i9\26 i I'i.'^avqflqble a t 

http://wvv^.stanfordlawreyiew.org/online/dr6rie-privacy-c.atalysL, 

21 Clay Dillow,'p/an/or Celebrity-Stalking'Paparazzi Drone Reveals New Roles for Unrhanhe'd Civilian 

Aircraft, PopSci (Nov.,11, 2010,12;0 1 PMJ, http://wvvw.popsc^com7technoJogy/articie/2.pI0- . 

li/paparazziT(irone-reyeals-emergin§-roles-civilian-drone-aircraft , . . 

^^SeeNeal Ongerleideri Unmanned drone s Go From Afghanistan to Hollywood, FastCompany (Feb. 15, 

2012), http://www.fastpompany,com/181^578/unmanned-drones-go-from-afghanistan-tonoilywood. ^ , ,_. ., _ , ^ .^ , 

" Micro Drones for Google?, Google B^bgoscopei^ tAiig. 7, 2010), 

http://blogoscopeaxqm/arciiive/2010-08-p7-q43^ to von Sebastian Matthes and Bernd 

Mertens,Zivile Drdnns^jii'r Google, Wirtschafts Woche (Aug. 7, 2010), ' , 

http://www.wiwp.d^/technologip/luftueberwachung-zivile-drohnen-fuer^^oogle/5156046.html. 

2* W.J. Hennigan, idea of Civilians Usin^ Qrone, Aircraft May Soon Fly with FAAi Los Angeles Times 

[Nov. 27, 2011), http://articles."ratimes.com/2pli/n9Y/27/business/la-^^^ 

20111127; Plan for Celebrity-Stalking Paparazzi rfronV tieveals New Roles for Unmanned Civilian 

Aircraft, supra note 21 . 

Petition to the FAA 3 Drones and Privacy 
database, two of the largest collections of biometric data in the world,2s increases 

the First Amendment risks for would-be political dissidents. In addition, this Use of 

drones implicates significant Fourth Amendment interests and well established 

common law privacy rights.^^ With special capabilities and enhanced equipment, 

drones are able to conduct far-more detailed surv'elllan'ce, obtaining high-resolution 

picture and video, peering inside high-level wiiidows, and through solid barriers, 

such as fences, trees, and even walls. 

FAA Regulation of Drones ' ' . 

The FAA is required to "promote safe flight of civil aircraft."^^ The FAA 

Modernization and Reform Act requires the FAA to, within a certain amount of time, 

"develop a comprehensive plan" to impletnerit drohes into civil commerce.^s The 

plan must "defme the acceptable standards for operation" for civil drone use.29 in 

addition, the FAA is required to "provide guidance on a public entity's responsibility 

when oper'ating an unmanned aircraft."3o Before l^ay 14, 2012, the FAA must 

"simplify the process" by which government Entities operate drones in the national 

airspace.3i jhe p ^ should also assess the privacy problems associated with the 

highly intrusive nature of drone aircraft, and the ability of operators to gain access 

to private areas and to track individuals over large distances.^z 

25 See Next Generation Identification, Federal Bureau of Investigation, http://www.fbi.gov/aboutus/cjis/fingerprints_biometrics/ngi (last visited Feb. 17, 2012); Elizabeth Mcntalbano, DHSExpands 

US-VlSITBiometric Capabilities, Information V/eek (Dec. 22,2011, 8:00 AM), •.; • 

http-.//www.informationweek.com/news/goverr.Tpent/securit5'/Z32300.942. . , 

2* Many state governnrents have enacted legislation to protect indiwduals from the type o/persistent 

surveillance that drones would facilitate. Sometimes called "Peeping Tom" laws, each state prohibits 

the intrusion upon a person's seclusion. See Elements of an Intrusion Claim, Citizen Media Law 

Project, http://www.citmedialaw.org/legal-guide/elements-intrusion-claim (last visited Feb. 21, 

2012) See also, e.g. Cal. Civ. Code § 1708.8 (West 2011); Neb. Rev. Stat. § 20-203 (2011). Unlike 

trespass laws, intrusion does not require a physical trespass. Id. This is important since the United 

States has established that a person has no property rights in the airspace over their property. See 

U.S v. Causby, 328 U.S. 256 (1946); See also 49 U.S.C. § 40103 (2011) ("The United States Government 

has exclusive sovereignty of airspace of the United States."). However, there is a possibility that 

certain drone operators may be guilty of common law trespass, particularly in regard to small-sized 

drones flying at low altitudes. Id. Many states have laws with even higher levels of privacy protection, 

such as California's regulation on the use of telephoto lenses to photograph private property. Cal. Civ. 

Code §1708.8 (West 2011). 

2M9 U.S.C. § 44701(a). 

28 FAA Modernization an d Reform Act § 322(a)(1). 

29 FAA Modernization an d Reform Act § 32 2 (a)(2)(B)(i}. 

30 FAA Modernization an d Reform Act § 324(a)(4). .' .. 

3iFAAModerni2ationand Reform Act § 324(e)(li. ,. 

32 See, e.g.. Vehicle Safety Communications r.Applications VSC-A 17 (National Highway Traffic Safety 

Administration 2011), ava//aWe at http://www.nhtsa.gov/DOT/NHTSA/NVS/.../20U/811466.pdf 

(Stating, "privacy of vehicle owners will need to be a primary component of DSRC-based vehicular 

communication." NHTSA is tasked with carrying oiit safety programs related tohighways. This is 

NHTSA: People Saving People, National Highway Traffic Safety Administration, 

http://www.nhtsa.gov/About (last visited Feb. 22, 2012)); See also Caroline Broder, Privacy Concerns 

Accompany Push for EM Rs, Healthcare IT News'(Feb. 28, 2005), ' 

http://healthcareitnews.com/news/privacy-concerns-accompany-push-emrs ("Ensuring the privacy 

Petition to the FAA 4 Drones and Privacy 
Request for Agency Action 

The privacy threat posed by the deployment of drone aircraft in the United 

States is great. The public should be given the opportunity to comment on this 

development. In light of the aforerneptipned considerations, the undersigned 

petition the FAA as follows: 

1. The FAA should conduct a notice and comment rulemaking on the impact of 

privacy and civil liberties related to the use of drones in the United States. In 

order to adequately address all of,the potential threats, the FAA should 

examine and report on the impact on privacy to individuals within the scope 

. of their cpmpTehensive plan to safejy integrate ^Ivil drones into the national 

airspace, required under § 322(a) of the jFAA Modernization ^nd Reform Act. 

2. The pAA should conduct a noticeaiid comment rulemaking on the, iinpact of 

.privacy and civil liberties related to th,^ use of drones by government, 

operators pursuant to the agency actions,required under § 324(c] of the FAA 

Modernization and Reform Act. .,, 

••.;'••'.••. . 1,1 - ' . . , 

3. The notice and comment rul^malcings should take into consideration the use 

and retention of data acquired by drope operators; the i:e)ation.,l?.etween 

drpne operation and prpperty rights; the ability of an, individual to obtain a 

restraining order against a dtone vehicle; and use limitations on drone ' 

vehicles and requffements for enforcement of those h'mitations. In relationfo 

the government ii'se of drones, th^ rulemakings shourdaVsy Consider the ' 

application of the i^rivacy Act of 1974 to the information ga^tiliered by drone 

operators.•'• I •,,,].,• •• :..; • . ,, . •,.!•.•.•:;• ^ 

•Contact: Marc Rotenberg, EPIG Executive Director and Amie Stepanovich, • 

EPIC National Se'curify CounM EPIC, lyiS.Corinectitut Ave., NW, Si^ite 200, 

Washington^ DC 20db9. Vl'20i 483rll40. , ,.^ ^ ; ' _,;''': ., , ^ ,,' ' 

Sincerely, • :• .: -; ' ".. -

Organisations 

American Civil Liberties Union •. :> • 

American Library Association - • , - ,, 

Bill of Rights Defense Comnhittee • 

CeritiVfor Pieijid.cracy arid Technology ' '. 

Cei;iterfdr biRita] Jfexnocracy :.. . . , 

Center for Financial Privacy and Human Rights, w. •'•,•.,•. 

and security of electronic medical records could be one 67 tli'e biggest challeriges to pi^blic acceptance 

ofEMRs.") . . " ' ••; ''"' . ] ' ' ' • ;. 

Petition to the FAA 5 Drones and Privacy 
Center for National Security Studies 

. Center for the Study of Responsive Law 

The Constitution Project 

Consumer Watchdog 

Council of American-Islamic Relations 

Cyber Privacy Project 

Defending Dissent Foundation 

Demand Progress 

Electronic Frontier Foundation 

Electronic Privacy Information Center 

Essential Information 

Global Justice Clinic (New York University School of Law] 

, Gpyernment Accountability Project 

Liberty Coalition 

Muslim Public Affairs Council 

National Association of Criminal Defense Lawyers 

National Immigration Project at the National Lawyers Guild 

OneAmerica 

Patient Privacy Rights 

Prinppled Action in Government ' 

Privacy Activism 

Privacy Camp i 

Privacy Rights Clearinghouse .'. [ ^ 

Rights Working Group ., j . 

Rutherford Institute .' 

TakeBackWashington.org 

U.S. Bill of Rights Foundation 

World Privacy Forum 

Members of the EPIC Advisory Board 

Alessandro Acquisti 

Steven Aftergood 

James Bamford 

Grayson Barber 

Francesca Bignami 

Christine Borgman 

dan ah boyd 

Addison Fischer 

David Flaherty 

Deborah Hurley 

Jerry Kang 

Ian Kerr 

Chris Larsen 

Rebecca MacKinnon 

Gaiy Marx 

Mary Minow 

Pablo Molina 

Peter G. Neumann 

Helen.Nissenbaum 

Ray Ozzie 

Deborah Peel 

Chip Pitts 

Bruce Schneier 

Robert Ellis Smith 

Sherry Turkle 

Petition to the FAA Drones and Privacy 
Individuals 

Tim Alten 

Peter Asaro 

Courtney Barclay 

Debra E. Barnard 

David Barnes 

(Former) Rep. Bob Barr 

Margaret Bartley 

Andrew Bashi 

M. Edward Borasky 

Kathy Brandt 

Charles E. Breitkreutz 

Betty L. Brooks 

Kyle Broom 

Robin Carr 

Chris Casper 

Gary M. Cope 

Catherine Crump 

Shawn Lee Doyel 

Andrea Ferrari 

Gregory Foster 

Ted Gaudette 

Glen Goleburn 

Mark Gould 

Trevor Griffey 

Mark Griffin 

Mary L. Griffin 

William Griffin 

Theodore Griffiths 

John Hailey 

EricHananoki 

Stephen Herbert 

'Keith Huss 

Mark Huss 

Richard W. Hyatt 

Joel Inbody ' Marcojacoboni 

Fred Jennings 

Joseph R.Jones 

James J, Kisilewicz 

. Joseph Labiak 

Douglas Lamb 

Stephanie Lockwood 

Harold Long 

Luis Lugo 

James W-Macey 

Rommel Marquez 

James Mattix 

David McKinney 

Jalaine Molina 

Bridgette Moore 

Ralph Nadar 

Kimberley Nielsen 

Sharon Goott Nissim 

Carl Rbhzheimer 

Vern Rose 

leramieD. Scott 

Clara Searcy 

Michael V. Sebastiano 

Anirban Sen 

CJregbi^ Sertic 

Gina Sharbowski 

Daniel, Louis Shulman 

Emily Sibltzky 

Lisa Jinfieone 

NabihaSyed 

MariatuTejan 

SaadiaTdor 

Brian Tyler 

jejennifer Tyler 

RobbdeVournai 

Rebecca Welch 

, Jaihes Wiggins 

)^ay Withrow 

Annette Woodmark 

Robin Woods 

Eleanor Wynn 

Brian youngstrom 

D^vid ZaWislak 

\. Patii ZOccali 

Petition to the FAA Drone

s and Privacy 
Signatures Added Subsequent to February 24. 2012 

Individuals: 

Nadia Abdullah 

Jay Clark Bulgier 

Vincent Della-Fera 

Christine Dooiittle 

Adam Gilliam 

Chris Graham 

Richard Hernandez 

Geoffrey Kirk 

Albert Maniscalco 

Bill Michtom 

Wendy Ouellette 

Emil Sandmann 

John Therman 

Patrick Thronson 

Shawn Tippie 

Organizations: 

South Asian Americans Leading Together (SAALT) 

Cc: U.S. Department of Transportation 

Docket Operations 

West Building Ground Floor, Room W12-140 

1200 New Jersey Ave. SE 

Washington, D.C. 20590 

Petition to the FAA 8 Drones and Privacy