Template revised January 10, 2019.
COMMISSION
AGENDA MEMORANDUM
Item No.
8a
ACTION ITEM
Date of Meeting
March 10, 2020
DATE: February 26, 2019
TO: Stephen P. Metruck, Executive Director
FROM: Eric Schinfeld, Sr. Manager, Federal & International Government Relations
Dave Wilson, Director, Airport Innovation
SUBJECT: Direction to Implement Biometric Air Exit Policies and Authorize a Request for
Proposal for a Biometric Air Exit System for Up To 30 International Boarding Gates (CIP
#C801150)
Amount of this request:
$5,715,000
Total estimated project cost:
$5,715,000
ACTION REQUESTED
Request Commission authorization for the Executive Director to (1) award and execute a contract
for a Biometric Air Exit system for up to 30 international boarding gates at Seattle-Tacoma
International Airport; and (2) implement Executive policies for regulating the use of biometric air
exit systems at Port facilities.
Contract authorization includes (1) procuring hardware, software, vendor implementation
services, and recurring maintenance fees for up to ten years; and (2) using port staff for
construction and implementation; Total project cost for authorization of $5,715,000 is comprised
of project costs of $2,715,000 and recurring maintenance costs for up to ten years estimated at
$3,000,000 budgeted in annual operating budgets.
EXECUTIVE SUMMARY
On December 10, the Port Commission passed a motion establishing seven principles to govern
biometric technology at Port facilities, and directing staff to develop tangible, enforceable
policies to ensure the application of those principles.
Since that time, an internal Port staff working group and an External Advisory Group have been
meeting to develop those policies; ultimately, there will be five sets of policies proposed by staff
– one for each “use case” of biometrics at Port facilities:
• Biometric Air Exit
• Biometric Air and Cruise Entry
• Non-Federal Biometric Passenger Processing
• Biometrics for Customer Functions
• Biometrics for Law Enforcement and Security Functions
COMMISSION AGENDA – Action Item No. 8a Page 2 of 5
Meeting Date: March 10, 2020
Template revised June 27, 2019 (Diversity in Contracting).
At this point, the Biometric Air Exit policies are the only use case that has been finalized by staff
and vetted by the External Advisory Group. On February 18, the Port Commission Biometrics
Special Committee reviewed the Biometric Air Exit Policies and recommended them to the full
Commission; the Commission was briefed on February 25 in public session on those policies.
Given the preferences stated by Commissioners at those meetings, Executive Director Metruck
is prepared to implement the Biometric Air Exit Policy Recommendations as Executive Policy –
aligning with the Commission’s December 10 Biometric Principles Motion calling for policy before
any implementation of new biometric technologies.
As discussed at the February 25 meeting, the Port Commission can approve the implementation
of a “common use” biometric air exit technology for departing international passenger
processing, which has both policy and operational benefits relative to U.S. Customs and Border
Protection (CBP) or airline implementation of biometric air exit. If authorized, this project will
competitively procure and implement a system to facilitate passenger departures on
international flights at thirty (30) Seattle Tacoma International Airport (Airport) gates servicing
international flights using facial recognition technology that meets CBP standards. Both common
use and preferential boarding gates would be included in the 30 gates.
The contract award will be contingent on full compliance with the Port’s Biometric Air Exit Policies
as implemented.
JUSTIFICATION
CBP has been mandated by Congress to implement biometric entry and exit systems for
international passenger processing. As part of that effort, CBP is planning for the use of facial
recognition technology as the primary processing procedure for arriving passengers into the new
International Arrivals Facility (IAF) when it opens at the end of 2020. CBP promotes this
technology as more accurate than today’s manual process of a human comparison of a photo
and a face, offering increased security and a more efficient entry process.
At its February 25 meeting, Commissioners expressed a preference for a “common use” biometric
air exit solution, to maximize control over implementation of biometric air exit, rather than defer
to CBP or airlines. Biometric air exit will happen at SEA one way or the other – either by CBP
exerting their federal jurisdiction, or the Port taking it on – it is better for travelers for the Port
to have control over ensuring that traveler rights are protected and customer service standards
are upheld.
The system selected for use at the Airport will utilize the CBP Traveler Verification Service (TVS),
a single source of images scheduled for a given international flight. Images captured by the
Airport’s biometric air exit system will be encrypted and securely transmitted to the TVS for
immediate identity verification only. Biometric information captured in the Airport’s biometric
air exit system will be purged once the transmission is complete per CBP requirements.
COMMISSION AGENDA – Action Item No. 8a Page 3 of 5
Meeting Date: March 10, 2020
Template revised June 27, 2019 (Diversity in Contracting).
Airport Innovation, Information and Communications Technology (ICT), Aviation Maintenance
(AVM), Port Construction Services (PCS), Aviation Operations, Central Procurement Office (CPO),
External Relations, other Port staff and the Airport’s international airline partners will be
collaborating on this project. Total capital costs for this project are estimated in the amount of
$2,715,000. Annual software and maintenance costs are estimated initially at $420,000 and will
be budgeted within the AVM operating budget.
This project was not included in the 2019-2023 capital budget and plan of finance. The amount
of $2,600,000 will be transferred from the Aeronautical Allowance #C800753 resulting in no net
change to the Aviation Division capital budget
Diversity in Contracting
Through Port Construction Services (PCS) for construction and implementation of the project,
PCS will be utilizing small works contracts that will provide opportunities for WMBE utilization.
Project staff is working with the Diversity in Contracting Department to determine if a direct
WMBE aspirational goal should be assigned. Typically, subcontracting opportunities under small
works projects are limited.
DETAILS
Scope of Work
(1) Procure, design, configure and implement a Biometric Air Exit system at 30 international
gates – including both common use and preferential gates – providing 2 positions per gate
for a total of 60 positions. The solution will meet the biometric regulatory and
performance requirements established by the Department of Homeland Security (DHS)
for Biometric Air Exit as well as the additional policy requirements set by the Port.
(2) Provide vendor-developed interface with the Departure Control Systems (DCS) of airlines
operating international flights from SEA for a one-step process. While most airlines will
participate, those that opt out of providing an interface, will still utilize the system in a
two-step process.
Schedule
2020 Quarter 1
2020 Quarter 3
2021 Quarter 2
Cost Breakdown
This Request
Total Project
Project
Hardware/Software/Vendor Services
$1,765,000
$1,765,000
Port of Seattle Labor
$950,000
$950,000
Total Project
$2,715,000
$2,715,000
Recurring
Maintenance
Annual maintenance fees for up to
ten years
$3,000,000
$3,000,000
COMMISSION AGENDA – Action Item No. 8a Page 4 of 5
Meeting Date: March 10, 2020
Template revised June 27, 2019 (Diversity in Contracting).
Authorization
$5,715,000
$5,715,000
ALTERNATIVES AND IMPLICATIONS CONSIDERED
Alternative 1 – Postpone project.
Project Cost Implications: $0
Pros:
(1) Budget is available for other capital projects.
Cons:
(1) CBP will implement instead, without the need to comply with Port Biometric Air Exit
Policies.
(2) CBP implementation will impact international arrivals processing, due to diversion of
staff and resources.
This is not the recommended alternative.
Alternative 2 – Procure and implement a Biometric Air Exit solution at thirty (30) SEA
international departure gates.
Project Cost Implications: $2,715,000
Pros:
(1) Maximize Port control over implementation, ensuring alignment with Port Biometric Air
Exit Policies.
(2) Provides a common use biometric air exit solution for all international flight departure
gates which is more efficient than each carrier providing its own proprietary solution.
Cons:
(1) Potential reluctance of airline adoption and adaptation to gate procedures.
(2) Reception by passengers concerned about privacy issues.
(3) Adds layer of hardware, software and maintenance to the airport facility and passenger
process.
(4) Implements relatively new technology that could have initial issues during deployment
requiring additional support from internal and external resources.
This is the recommended alternative.
FINANCIAL IMPLICATIONS
Cost Estimate/Authorization Summary
Capital
Expense
Total
COST ESTIMATE
Original estimate
$2,600,000
$3,115,000
$5,715,000
AUTHORIZATION
Previous authorizations
0
0
0
COMMISSION AGENDA – Action Item No. 8a Page 5 of 5
Meeting Date: March 10, 2020
Template revised June 27, 2019 (Diversity in Contracting).
Current request for authorization
$2,600,000
$3,115,000
$5,715,000
Total authorizations, including this request
$2,600,000
$3,115,000
$5,715,000
Remaining amount to be authorized
$0
$0
$0
Annual Budget Status and Source of Funds
This project C801150 was not included in the 2020-2024 capital budget and plan of finance. The
capital budget of $2,600,000 will be transferred from the Aeronautical Allowance #C800753
resulting in no net change to the Aviation Division capital budget. The funding source would be
Airport Development Fund (ADF). Recurring maintenance fees estimated at $3,000,000 for up to
ten years will be budgeted annually in the Aviation Maintenance operating budget.
Financial Analysis and Summary
Project cost for analysis
$2,715,000
Business Unit (BU)
Terminal Gates
Effect on business performance
(NOI after depreciation)
NOI after depreciation will increase due to inclusion of
capital (and operating) costs in airline rate base.
IRR/NPV (if relevant)
NA
CPE Impact
$0.03 in 2021
Future Revenues and Expenses (Total cost of ownership)
Recurring costs for Aviation Maintenance support of the new system is estimated at $120,000
annually. This will be budgeted in the Aviation Maintenance operating budget.
ATTACHMENTS TO THIS REQUEST
Presentation slides
Draft Biometric Air Exit Policy Recommendations
PREVIOUS COMMISSION ACTIONS OR BRIEFINGS
February 25, 2020 – Biometric Working Group Progress Update
December 10, 2019 – Motion 2019-13 adopted: Biometrics Principles & establishing a
working group.
October 29, 2019 – Second Biometrics Technology Study Session.
September 10, 2019 – First Commission Study Session on Biometrics.