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Safety Assurance System (SAS)

What is sas.

In 2016, the Safety Assurance System (SAS) was rolled out to create a standardized risk-based, data-supported oversight system across Flight Standards Service (FS), Office of Hazardous Materials Safety (AXH), and other Aviation Safety (AVS) Offices. SAS is the Federal Aviation Administration's (FAA's) oversight tool to perform certification, surveillance, and Continued Operational Safety (COS). SAS includes policy, processes, and associated software that FS, AXH, and other AVS Offices use to capture data when conducting oversight. SAS is not a separate safety standard and does not impose additional requirements on Certificate Holders. SAS helps accomplish the following objectives:

  • Standardizes  the work being accomplished across FS and AXH
  • Improves  consistency and collaboration between FAA and industry
  • Helps  FAA aviation safety inspectors (ASIs) determine risk-based, data-supported oversight decisions
  • Provides  the standardized protocols to evaluate whether Certificate Holder operations are in compliance with regulations
  • Assists  with reducing risk and increasing aviation safety

Additional Information about SAS

The SAS policy and procedure provide ASIs with standardized protocols to evaluate Certificate Holder programs required by regulations to be approved or accepted. It scales and tailors oversight to the size and complexity of Certificate Holders. SAS implements FAA policy by providing safety controls (i.e., regulations and their application) of business organizations and individuals that fall under FAA regulations.

SAS was developed to:

  • Support the evolution of a system safety approach to a single oversight system
  • Build connections between what is in policy, why it is done, and how automation continues to evolve
  • Allow for the use of consistent, risk-based, and data-supported approaches
  • Provide tools for collecting, recording, and analyzing data
  • Allow inspectors to be more effective in their role so they can focus their work on the highest area of risk

SAS is being developed and implemented in Phases over time. It is broken down as such because of the scope and size of this initiative. There are over 8,800 operating certificates managed in SAS. In addition, there are other 14 CFR parts for which the work is documented in SAS.

The evolution of SAS began in 2006 with programming and development. Phase 2 began in 2010 and included the implementation of 14 CFR parts 121, 135, and 145 for certification and surveillance. Phase 3 began in 2016 and involved the implementation of 14 CFR parts 141, 142, and 147. This phase also introduced some new functionality, including Risk Profile and Activity Recording. Phase 4 began in 2022 and continues integration with other lines of business and business areas; for example, the Foreign Air Carriers (FAC), Unmanned Aircraft Systems (UAS), and the Aircraft Evaluation Division (AED). Phase 5 is slated to begin in 2027 and is focused on Operational Support.

As SAS continues to evolve and improve, additional enhancements will be implemented to meet the ever-evolving needs of the FAA mission.

SAS Phased Development Approach

  • Air Transportation Oversight System (ATOS)
  • Planning and Engineering
  • Incorporated Office of Hazardous Material Safety (AXH) functionality into SAS
  • Activity Recording & Office Workload List (OWL)
  • Initial Risk Profile
  • Maintenance Provider Coordinated Surveillance (MPCS)
  • Certification Services Oversight Process (CSOP)
  • 14 CFR parts 141, 142, 147 and link with Designee Management System (DMS) for 14 CFR part 183
  • Industry Collaboration and Outreach (ICO)
  • HTML5 and Tableau Implementation
  • Enhanced Flight Standards Automation System (eFSAS)
  • Mobile Devices/IT Enhancements (Mobile/IT)
  • Data Repository for Certificate Holder Documents (Document Storage)
  • Operations Approval Portal System (OAPS)/Operations Safety System (OPSS)
  • Foreign Air Carriers (FAC)
  • Aerospace Medicine/Certificate Holder Risk Profile Enhancement (AAM/Risk)
  • Unmanned Aircraft Systems (UAS)
  • Flight Standards Inspector Resource Program (FSIRP)
  • Hazardous Materials Safety (AXH Integration)
  • Aircraft Evaluation Division (AED)
  • Operational Support - Tech Refresh

SAS and System Safety

The goal of system safety is to optimize safety by the identification of hazards within an environment and to eliminate or control their associated risk. FAA does this by performing Design Assessments (DA) and Performance Assessments (PA) based on system safety principles. Certificate Holders fulfill their responsibilities by designing operations systems that manage hazard-related risks and by providing service with the highest degree of safety in the public interest. These concepts are fundamental to SAS. SAS is based on system safety principles, safety attributes, and risk management process (RMP).

SAS fulfills the goals of system safety to:

  • Optimize safety by identifying safety-related risks
  • Eliminate or control risks through design and/or performance oversight

Policy Areas

  • What's new
  • Quality Standards for Programming
  • Social and Environmental Standards
  • Knowledge Product Production and Quality Assurance
  • Formulate Programmes and Projects
  • Engagement Facility
  • Multi-Country and South-South Cooperation Projects
  • Development Services
  • Select Implementing Partners
  • Select Responsible Parties and Grantees
  • Performance Based Payments
  • Appraise and Approve
  • Annual Planning
  • Deliver Results
  • Provide Oversight
  • Manage Change
  • Close and Transition
  • Standard Operating Procedure for Crisis Response and Recovery
  • Allocation of TRAC 3 Resources for Crisis Engagements
  • Inventory Management
  • Designation and Responsibilities of Signatories
  • Procurement of Banking Services
  • Opening and Closing of Bank Accounts
  • Establishment and Use of Electronic Banking Systems
  • Supplier Banking Information Set-up for IBAN
  • UNFCU Share Account Management
  • Management of Cash Planning/Forecasting of Cash Flows
  • Management of Cash in Crisis or Emergency Situations
  • Management of Zero-Balance Account System
  • Bank Account Reconciliation
  • Issuing Letters of Credit
  • Management of Local Investments
  • Safe Management
  • Handling of Cash and Receipts Treasury
  • Management of Petty Cash
  • Petty Cash Fund for Management Project (PCF)
  • Project Petty Cash Fund (PPCF)
  • Project Cash on Hand for DIM Projects (PCH)
  • Project Cash Advance (PCA)
  • Cash Operations
  • Financial Closure of Development Projects
  • Financial Closure of Trust Funds
  • Refunds to Donors
  • Harmonized Approach to Cash Transfers (HACT)
  • Direct Payments
  • Direct Cash Transfers and Reimbursements
  • UNDP Support Services to National Implementation (NIM)
  • Combined Delivery Report (CDR)
  • National Implementation
  • Non-Governmental Organizations (NGO) Implementation
  • Parallel Fund Management
  • Pooled Fund Management
  • Pass-Through Fund Management: UNDP as a Participating UN Organization
  • Pass-Through Management: UNDP as Administrative Agent (AA)
  • Agency Implementation Finances
  • Direct Implementation (DIM) Modality
  • UNDP-supported Guarantees
  • EU Reporting
  • Financial Accountability and Internal Controls
  • Maintenance and Usage of Chart of Accounts
  • Record Retention, Data Security and Contingency
  • Financial Statements
  • Executive Board Papers
  • Certified Financial Reports
  • Core Contributions
  • Government Contribution to Local Office Costs (GLOC) from LIC and MIC
  • Government Local Office Cost (GLOC) Valuation of the In-Kind Contribution
  • Government Contributions from Net Contributing Countries (NCCs) and High Middle-Income Countries (High-MICs)
  • Non-Core Contributions
  • Revenue Management for Joint Programming
  • Accounts Receivable
  • Memorandum for Provision of Services (formerly Management Service Agreements)
  • US Letter of Credit (LOC) Agreements
  • Trust Fund Management
  • Pipeline Management
  • Country Co-Financing Cost Sharing Interest (Fund 11888), Non-Earmarked Programme Cost Sharing (Fund 30083), Country Co-Financing Project Residual balances (Fund 11890)
  • Purchase Orders (Obligations, Maintenance and Closure)
  • Prepayments
  • Accounts Payable
  • Disbursing Funds (Making Payments)
  • Regular Maintenance Accounts Payable
  • Hospitality Expense
  • Receipt of Goods, Services and Works
  • Raising E-requisitions
  • Quantum Financial Closure Instructions
  • Supplier Management
  • Write-Off Requests, Excluding Property, Plant and Equipment and Intangible Assets
  • Harmonized Conceptual Funding Framework and Cost Recovery Methodology
  • Cost Recovery from Other Resources - GMS
  • GMS Fee Set-up and Collection
  • Universal Price List (UPL) and Local Price List (LPL)
  • Expenditure of Income Accrued from Cost Recovery
  • Planning and Paying for Delivery Enabling Services to Projects
  • Multiple Funding Lines for Positions
  • Use of UPL and LPL
  • UN Agency Services
  • Service Clearing Account (SCA): Charging, Billing and Fee Collection
  • Common Services Project Management
  • Working with External Auditors
  • UNDP Legal Framework for Addressing Non-Compliance with UN Standards of Conduct
  • Harassment, Sexual Harassment, Discrimination, and Abuse of Authority
  • Job Evaluation​
  • Settling-In Grant
  • Extended Monthly Evacuation Allowance (EMEA)
  • Language Allowance
  • Mobility and Hardship
  • Post Adjustment
  • Safe Driving Bonus (SDB)
  • Dependency Status and Allowances
  • Rental Subsidy
  • Deductions and Contributions
  • Recovery of Overpayments
  • Retroactivity of Payments
  • Currency of Payments
  • Elements of Remuneration
  • Night Differential
  • Principles of Remuneration
  • Staff Assessment
  • Salary Increments
  • Salary Advance
  • Salary Surveys
  • Overtime Compensation
  • Pensionable Remuneration
  • Temporary Appointment
  • Career Transitions
  • Eligibility for International Benefits and Entitlements and Determination of Official UN Nationality
  • Family Relationships
  • Recruitment and Selection Framework Policy
  • Selection and Reassignment Policy for International Rotational Posts
  • Experience and Academic Qualifications
  • Rules and Procedures for the UNDP Compliance Review Panel (CRP)
  • Interim Roster Rules of Procedure
  • Rank-in-Post
  • Hours of Work
  • Annual Leave
  • Family Leave
  • Parental Leave
  • Special Leave
  • Flexible Working Arrangements
  • Time off for Breastfeeding
  • Compensation for Death, Injury or Illness – Appendix D
  • Medical insurance: UN NY Empire Blue Cross PPO Medical Insurance
  • Malicious Acts Insurance Policy (MAIP)
  • Medical Insurance: UN NY Aetna Medical Insurance
  • Medical Insurance: UN NY HIP Health Plan
  • Medical Insurance : UN Worldwide Medical Insurance Plan
  • After-Service Health Insurance: ASHI MIP
  • Dental Insurance: UN NY Cigna Dental Plan
  • After-Service Health Insurance: ASHI UN
  • Medical Insurance: Medical Insurance Plan (MIP)
  • Group Life Insurance Plan (GLIP)
  • Pension Fund
  • Family Visit
  • Medical Evacuation Travel (MET)
  • Chartered Medical Evacuation Travel (CMET)
  • Rest and Recuperation
  • Relocation Shipment
  • Certificate of Service
  • Commutation of Annual Leave
  • Death Benefit
  • Last Day for Pay Purposes
  • Repatriation Grant
  • Entitlements upon Separation
  • Mandatory Age of Separation
  • Termination of Appointment
  • Abandonment of Post
  • Expiration of Fixed-term Appointment
  • Termination of Appointment for Reasons of Health
  • International Personnel Services Agreement
  • National Personnel Services Agreement
  • Partner Personnel Services Agreement
  • Service Contract
  • Non-Reimbursable Loan Agreements
  • Organizational Unit Restructuring
  • Performance Management and Development
  • Probation upon Appointment
  • Sustainable Procurement
  • Procurement Overview and Principles
  • Procurement Ethics, Fraud and Corrupt Practices
  • Procurement Authority and Increased Delegated Procurement Authority
  • Procurement Forecasting and Delivery
  • Transactional Procurement Strategies and Procurement Planning
  • Requisition and Procurement of Goods, Civil Works and Services
  • Sourcing and Market Research
  • Vendor Sanctions
  • Procurement Methods
  • Innovation Challenges
  • Quality Assurance for Health Products
  • Engaging CSO/NGO as a Responsible Party
  • Solicitation
  • Use of Online Quantum System
  • Submission and Receipt of Offers
  • Evaluation of Offers
  • Pre-Award Negotiations
  • Procurement Oversight and Procurement Review Committees
  • Contract Management
  • General Considerations of Contracting
  • Shipping and Insurance
  • Handling of Procurement Complaints
  • Payment and Taxes
  • Construction Works
  • Individual Contract
  • Long Term Agreements (LTAs) and Cooperation with UN Entities
  • Managing Partnerships
  • Policy on Due Diligence and Partnerships with the Private Sector
  • Private Sector Partnerships
  • Foundations
  • Property, Plant and Equipment
  • Acquisition and Maintenance (Furniture and Equipment)
  • Depreciation, Reconciliations Reports and Centralized Functions (Furniture and Equipment)
  • Disposal and Write-Off (Furniture and Equipment)
  • Acquisition and Maintenance (Plant and Property)
  • Depreciation, Reconciliations Reports and Centralized Functions (Plant and Property)
  • Disposal and Write-Off (Plant and Property)
  • Acquisition and Maintenance (Leasehold Improvements)
  • Depreciation, Reconciliations Reports and Centralized Functions (Leasehold Improvements)
  • Disposal and Write-Off (Leasehold Improvements)
  • Amortizations, Reconciliations, Reports and Centralized Functions
  • Intangible Assets: Acquisition, Development and Maintenance
  • Intangible Assets: Disposal and Write-Off
  • Vehicle Management
  • Type of Leases and Treatment in UNDP Books
  • Acquisition, Renewal and Termination of Premise Leases
  • Equipment Leases
  • Developing a Business Case for Local Presence
  • Clearing a Local Presence
  • Setting Up a Local Presence
  • Closing a Local Presence
  • Inoculations and Malaria Prevention
  • Medical Clearance
  • Security Clearance
  • UN Travel Documents and National Passport
  • Visas at Headquarters (New York)
  • Authorizing Official Business Travel
  • Daily Subsistence Allowance (DSA)
  • Post Travel
  • Other Travel Allowances and Expenses
  • Route, Mode of Transportation, and Standard of Accommodation
  • Corporate Purchasing Card
  • Accountability System Policy
  • Information Disclosure
  • Internal Control Framework
  • Anti-Fraud Policy
  • Enterprise Risk Management
  • Anti-Money Laundering and Countering the Financing of Terrorism Policy
  • Business Continuity Management
  • Delegation of Authorities
  • Participation and Role of UNDP Delegates at Major International Conferences and Events
  • Gifts Policy
  • Protection against Retaliation
  • Financial Disclosure
  • Evaluation Policy
  • Managing Prescriptive Content
  • Information Classification and Handling
  • Information Security Policy
  • Personal Data Protection and Privacy Policy
  • Electronic Signatures Policy
  • System Acquisition, Development and Maintenance Standards
  • ICT Disaster Recovery Standards for UNDP Offices
  • System Logon Banner Standards
  • Bring Your Own Device and Acceptable Usage of ICT Resources
  • Change Control and Release Management Standards
  • Application Development Standards & Scaling Framework
  • Electronic Funds Transfer Standards
  • Quantum User Access Standards
  • UNDP ICT Standards
  • Framework of Accountability for Security
  • Security Policy

Commercial Air Travel Safety Guidelines

  • Select Language English

Programme and Project Management

Crisis response, financial resources management, human resources management, procurement, partnerships, administrative services, accountability, information and communications technology.

Focal Point

Andrei Voicu, Nurana Sadikhova

Effective Date

Planned Review Date

Latest updates

May 13, 2022 - The UNDP Air Travel Safety Guidelines has been revised to align with the United Nations Security Management System (UNSMS) policy changes, namely the replacement of the UNSMS Air Travel Safety Policy with Guidance as well as updating roles and responsibilities in UNDP’s air travel decision-making process. These guidelines are applicable to all UNDP personnel on official travel via commercial air operators, and donated flights as defined in the UNSMS Commercial Air Travel Safety Guidance.

January 25, 2022 - The UNDP Security Office launched its new Intranet webpage, and therefore links to documents referenced therein have been updated in the policy in the following paragraphs: 13, 22b, 26.

January 31, 2021 - In line with the UNSMS Commercial Air Travel Safety Policy requiring that each UNSMS entity establishes an internal mechanism in its decision-making process to determine whether an air operator should be used for the official travel of their personnel, the UNDP Commercial Air Travel Safety Guidelines have been revised in alignment to the revision of the UNSMS policy. The guidelines further define the role of UNDP Managers approving air travel of UNDP personnel, clarifies responsibilities, and introduces the ad-hoc approval process for the use of commercial air operators, in addition to time-limited blanket authorization approval process of a commercial air operator, not included in the UNDP global booking list.

September 29, 2016 - The Air Travel Risk Management Guidelines have been revised to reflect the 2015 UN Security Management System/Air Travel Policy. These guidelines are applicable to all UNDP Personnel on official travel via Commercial Air (Transport) Operators, UN Chartered Flights and Donated Flights. For Airlines which are not pre-approved (and therefore not included in the UNDP Global Booking List), the guidelines provide for an evidence-based risk assessment methodology, enabling informed decision making by the UNDP Managers with Signature Authority

Main Policy

DOCX (268.1 KB)

S. 2888 (117 th ): U.S. Air Travel Public Safety Act

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A bill to reduce passenger, crewmember, and airport personnel risk of exposure to COVID-19, decrease the risk of transmission of COVID-19 on board aircraft and to United States destination communities through air travel, and protect children and other vulnerable individuals by preventing further spread of COVID-19 in the United States.

The bill’s titles are written by its sponsor.

Sponsor and status

Photo of sponsor Dianne Feinstein

Dianne Feinstein

Sponsor. Senator for California. Democrat.

Thumbnail of bill text

This bill was introduced on September 29, 2021, in a previous session of Congress, but it did not receive a vote.

Although this bill was not enacted, its provisions could have become law by being included in another bill. It is common for legislative text to be introduced concurrently in multiple bills (called companion bills), re-introduced in subsequent sessions of Congress in new bills, or added to larger bills (sometimes called omnibus bills).

S. 2888 (117th) was a bill in the United States Congress.

A bill must be passed by both the House and Senate in identical form and then be signed by the President to become law.

Bills numbers restart every two years. That means there are other bills with the number S. 2888. This is the one from the 117 th Congress.

This bill was introduced in the 117 th Congress, which met from Jan 3, 2021 to Jan 3, 2023. Legislation not passed by the end of a Congress is cleared from the books.

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GovTrack.us. (2024). S. 2888 — 117th Congress: U.S. Air Travel Public Safety Act. Retrieved from https://www.govtrack.us/congress/bills/117/s2888

“S. 2888 — 117th Congress: U.S. Air Travel Public Safety Act.” www.GovTrack.us. 2021. June 8, 2024 <https://www.govtrack.us/congress/bills/117/s2888>

U.S. Air Travel Public Safety Act, S. 2888, 117th Cong. (2021).

{{cite web |url=https://www.govtrack.us/congress/bills/117/s2888 |title=S. 2888 (117th) |accessdate=June 8, 2024 |author=117th Congress (2021) |date=September 29, 2021 |work=Legislation |publisher=GovTrack.us |quote=U.S. Air Travel Public Safety Act }}

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Fact Sheet: Biden Administration Releases Additional Detail for Implementing a Safer, More Stringent International Air Travel   System

As we continue to work to protect people from COVID-19, today, the Biden Administration is releasing additional detail around implementation of the new international air travel policy requiring foreign national travelers to the United States to be fully vaccinated. This updated policy puts in place an international travel system that is stringent, consistent across the globe, and guided by public health. Starting on November 8, non-citizen, non-immigrant air travelers to the United States will be required to be fully vaccinated and to provide proof of COVID-19 vaccination status prior to boarding an airplane to fly to the U.S., with only limited exceptions. The updated travel guidelines also include new protocols around testing. To further strengthen protections, unvaccinated travelers – whether U.S. Citizens, lawful permanent residents (LPRs), or the small number of excepted unvaccinated foreign nationals – will now need to test within one day of departure. Today, the Administration is releasing the following documents to implement these requirements: 1) a Presidential Proclamation to Advance the Safe Resumption of Global Travel During the COVID-19 Pandemic; 2) three Centers for Disease Control and  Prevention (CDC) Orders on vaccination, testing, and contact tracing; and 3) technical instructions to provide implementation details to the airlines and their passengers.  With science and public health as our guide, the United States has developed a new international air travel system that both enhances the safety of Americans here at home and enhances the safety of international air travel. The additional detail released today provides airlines and international air travelers with time to prepare for this new policy ahead of the November 8 implementation date. As previously announced, fully vaccinated foreign nationals will also be able to travel across the Northern and Southwest land borders for non-essential reasons, such as tourism, starting on November 8. Additional detail on amendments to restrictions with respect to land borders will be available in the coming days. Travelers can find full details about today’s air travel announcement on the CDC and Department of State websites.  A summary is below: Fully Vaccinated Status:

  • Starting on November 8, non-citizen, non-immigrant air travelers to the United States will be required to be fully vaccinated and to provide proof of vaccination status prior to boarding an airplane to fly to the U.S.

Proof of Vaccination:

  • For foreign nationals, proof of vaccination will be required – with very limited exceptions – to board the plane.
  • Match the name and date of birth to confirm the passenger is the same person reflected on the proof of vaccination;
  • Determine that the record was issued by an official source (e.g., public health agency, government agency) in the country where the vaccine was given;
  • Review the essential information for determining if the passenger meets CDC’s definition for fully vaccinated such as vaccine product, number of vaccine doses received, date(s) of administration, site (e.g., vaccination clinic, health care facility) of vaccination.
  • The Biden Administration will work closely with the airlines to ensure that these new requirements are implemented successfully.

Accepted Vaccines:

  • CDC has determined that for purposes of travel to the United States, vaccines accepted will include FDA approved or authorized and World Health Organization (WHO) emergency use listed (EUL) vaccines.
  • Individuals can be considered fully vaccinated ≥2 weeks after receipt of the last dose if they have received any single dose of an FDA approved/authorized or WHO EUL approved single-dose series (i.e., Janssen), or any combination of two doses of an FDA approved/authorized or WHO emergency use listed COVID-19 two-dose series (i.e. mixing and matching).
  • More details are available in the CDC Annex here .

Enhanced Testing:

  • Previously, all travelers were required to produce a negative viral test result within three days of travel to the United States.
  • Both nucleic acid amplification tests (NAATs), such as a PCR test, and antigen tests qualify.
  • As announced in September, the new system tightens those requirements, so that unvaccinated U.S. Citizens and LPRs will need to provide a negative test taken within one day of traveling.
  • That means that all fully vaccinated U.S. Citizens and LPRs traveling to the United States should be prepared to present documentation of their vaccination status alongside their negative test result.
  • For those Americans who can show they are fully vaccinated, the same requirement currently in place will apply – they have to produce a negative test result within three days of travel.
  • For anyone traveling to the United States who cannot demonstrate proof of full vaccination, they will have to produce documentation of a negative test within one day of departure.

Requirements for Children:

  • Children under 18 are excepted from the vaccination requirement for foreign national travelers, given both the ineligibility of some younger children for vaccination, as well as the global variability in access to vaccination for older children who are eligible to be vaccinated.
  • Children between the ages of 2 and 17 are required to take a pre-departure test.
  • If traveling with a fully vaccinated adult, an unvaccinated child can test three days prior to departure (consistent with the timeline for fully vaccinated adults). If an unvaccinated child is traveling alone or with unvaccinated adults, they will have to test within one day of departure.

Limited Exceptions from the Vaccination Requirement:

  • There are a very limited set of exceptions from the vaccination requirement for foreign nationals. These include exceptions for children under 18, certain COVID-19 vaccine clinical trial participants, those with medical contraindications to the vaccines, those who need to travel for emergency or humanitarian reasons (with a US government-issued letter affirming the urgent need to travel), those who are traveling on non-tourist visas from countries with low-vaccine availability (as determined by the CDC), and other very narrow categories.
  • Those who receive an exception will generally be required to attest they will comply with applicable public health requirements, including, with very limited exceptions, a requirement that they be vaccinated in the U.S. if they intend to stay here for more than 60 days.

Contact Tracing:

  • The CDC is also issuing a Contact Tracing Order that requires all airlines flying into the United States to keep on hand – and promptly turn over to the CDC, when needed – contact information that will allow public health officials to follow up with inbound air travelers who are potentially infected or have been exposed to someone who is infected.
  • This is a critical public health measure both to prevent the introduction, transmission, and spread of new variants of COVID-19 as well as to add a critical prevention tool to address other public health threats.

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Executive Order on Promoting COVID-19 Safety in Domestic and International Travel

Executive Order 13988 of January 21, 2021 , Executive Order on Promoting COVID-19 Safety in Domestic and International Travel. Published in the Federal Register at 86 FR 7205 (January 26, 2021).

President Biden's Executive Order 13988 of January 21, 2021 , Executive Order on Promoting COVID-19 Safety in Domestic and International Travel , directs relevant agencies to incorporate CDC recommendations on public modes of transportation and at ports of entry to the United States, including recommendations such as mask-wearing, physical distancing, appropriate ventilation, timely testing, and possibly self-quarantine after U.S. entry. It also directs relevant agencies to assess the January 12, 2021 CDC order requiring a negative COVID-19 test result for airline passengers traveling into the United States, and, based on that assessment, take any further appropriate actions and planning regarding air, land, and sea travel.

Detailed Summary

Section 1 . Policy.

Supports "science-based public health measures" as "critical to preventing the spread of coronavirus disease 2019 (COVID-19) by travelers within the United States and those who enter the country from abroad," specifically citing the following measures recommended by the CDC: "mask-wearing, physical distancing, appropriate ventilation, and timely testing." Then describes the Administration's policy of implementing "these public health measures consistent with CDC guidelines on public modes of transportation and at ports of entry to the United States."

Section 2 . Immediate Action to Require Mask-Wearing on Certain Domestic Modes of Transportation.

Directs the heads of federal agencies and departments with relevant regulatory authority to immediately take action consistent with applicable law to require masks to be worn in compliance with DCD guidelines in or on airports, commercial aircraft, trains, public maritime vessels including ferries, intercity bus services, and all forms of public transportation as defined at 49 USC 5302 paragaph 14 .

Section 5 . International Travel.

Section 5(a) provides:

"to the extent feasible, travelers seeking to enter the United States from a foreign country shall be: (i)   required to produce proof of a recent negative COVID-19 test prior to entry; and (ii)  required to comply with other applicable CDC guidelines concerning international travel, including recommended periods of self-quarantine or self-isolation after entry into the United States."

Section 5(b) Air Travel.

Section 5(b)(i), regarding air travel, provides that HHS/CDC, in coordination with DOT/FAA, and DHS/TSA, "shall assess the CDC order of January 12, 2021 , regarding the requirement of a negative COVID-19 test result for airline passengers traveling into the United States, in light of subsection (a) of this section," and then "take any further appropriate regulatory action, to the extent feasible and consistent with CDC guidelines and applicable law." Section 5(b) states that this assessment and regulatory action:

"shall include consideration of: (A)  the timing and types of COVID-19 tests that should satisfy the negative test requirement, including consideration of additional testing immediately prior to departure; (B)  the proof of test results that travelers should be required to provide; (C)  the feasibility of implementing alternative and sufficiently protective public health measures, such as testing, self-quarantine, and self-isolation on arrival, for travelers entering the United States from countries where COVID-19 tests are inaccessible, particularly where such inaccessibility of tests would affect the ability of United States citizens and lawful permanent residents to return to the United States; and (D)  measures to prevent fraud."

Section 5(b)(ii) requires HHS, DOT/FAA, and DHS/TSA to promptly provide to the President, through the COVID-19 Response Coordinator, "a plan for how the Secretary and other Federal Government actors could implement the policy stated in subsection (a) of this section with respect to CDC-recommended periods of self-quarantine or self-isolation after a flight to the United States from a foreign country, as he deems appropriate and consistent with applicable law. The plan shall identify agencies' tools and mechanisms to assist travelers in complying with such policy."

Section 5(b)(iii) requires DOS, in consultation with HHS/CDC, DOT/FAA, and DHS to "consult with foreign governments, the World Health Organization, the International Civil Aviation Organization, the International Air Transport Association, and any other relevant stakeholders to establish guidelines for public health measures associated with safe international travel, including on aircraft and at ports of entry. Any such guidelines should address quarantine, testing, COVID-19 vaccination, follow-up testing and symptom-monitoring, air filtration requirements, environmental decontamination standards, and contact tracing."

Section 5(c) Land Travel.

Section 5(c) requires DOS, in consultation with HHS and CDC, DOT, DHS to "immediately commence diplomatic outreach to the governments of Canada and Mexico regarding public health protocols for land ports of entry," and to submit a plan to the President "to implement appropriate public health measures at land ports of entry," that implements CDC guidelines, is consistent with applicable law, and takes into account operational considerations.

Section 5(d) Sea Travel.

Section 5(d) requires DHS, through the Coast Guard and in consultation with HHS and CDC, to submit a plan to the President to implement appropriate public health measures at sea ports, that implements CDC guidelines, is consistent with applicable law, and takes into account operational considerations.

Section 5(e) International Certificates of Vaccination or Prophylaxis.

Section 5(e) directs DOS, HHS, and DHS/TSA, in coordination with relevant international organizations, to assess "the feasibility of linking COVID-19 vaccination to International Certificates of Vaccination or Prophylaxis (ICVP) and producing electronic versions of ICVPs."

Notes on this executive order's reference to "periods of self-quarantine or self-isolation after entry into the United States"

Does this executive order impose a mandatory period of self-quarantine on travelers after they entry the United States?

Section 5(a) requires that "to the extent feasible, travelers seeking to enter the United States from a foreign country shall be ... required to comply with other applicable CDC guidelines concerning international travel, including recommended periods of self-quarantine or self-isolation after entry into the United States." Section 5(b)(D)(2) then directs relevant agencies to develop a plan for how the U.S. government "could implement the policy stated in subsection (a) of this section with respect to CDC-recommended periods of self-quarantine or self-isolation after a flight to the United States from a foreign country."

This wording is confusing, in that:

  • It states travelers "shall be... required " to comply with "CDC- recommended periods of self-quarantine..." The concept of mandatory adherence to a recommendation is somewhat obtuse.
  • The executive order requires this "to the extent feasible," without identifying concrete measures of feasibility
  • Recognizing the challenges of implementing and enforcing a self-quarantine requirement, the executive order tells relevant agencies to develop an implementation plan, meaning that there was no such plan at the time the executive order was issued.

The reference to CDC self-quarantine recommendations is also not specified. The CDC maintains a web page titled After You Travel Internationally (last updated January 4, 2021), which is a likely referent. That page contains recommendations for all travelers and for higher-risk travelers, and is periodically updated. As of January 4, 2021 the page says:

"Regardless of where you traveled or what you did during your trip, take these actions to protect others from getting COVID-19," then lists social distancing, mask wearing, hand washing, and watching for symptoms.

The page then says:

"If you participated in higher-risk activities during your international travel, take the actions listed above AND do the following after travel: Get tested 3-5 days after travel AND stay home for 7 days after travel. Even if you test negative, stay home for the full 7 days. If your test is positive, isolate yourself to protect others from getting infected. If you don't get tested, it's safest to stay home for 10 days after travel. Avoid being around people who are at increased risk for severe illness for 14 days, whether you get tested or not. Always follow state and local  recommendations or requirements related to travel."

The page then lists the following "higher-risk activities" that would trigger the heightened recommendations:

"The following are some activities that put you at higher risk for COVID-19 : Travel from a country or U.S. territory with a Level 2, Level 3, or Level 4 Travel Health Notice . Going to a large social gathering like a wedding, funeral, or party. Attending a mass gathering like a sporting event, concert, or parade. Being in crowds like in restaurants, bars, fitness centers, or movie theaters. Taking public transportation like trains or buses or being in transportation hubs like airports. Traveling on a cruise ship or river boat."

The CDC page also tells travelers to "[a]lways follow state and local  recommendations or requirements related to travel." Many states, counties, and cities or towns have imposed state or local quarantine rules for people entering the state or locality. For example, New York's interim policy dated November 3, 2020 said: "All travelers entering New York from a state that is not a contiguous state, or from a CDC Level 2 or 3 Travel Health Notice country, shall quarantine for a period of 14 days, consistent with Department of Health regulations for quarantine, unless…", but then the New York advisory dated December 26, 2020 says: "Consistent with recent CDC guidance, quarantine for individuals exposed to COVID-19 can end after ten days without a testing requirement if no symptoms have been reported during the quarantine period."

Because airlines fly into so many countries and U.S. states which have such varied rules that are frequently updated, there are reports that some airlines require passengers to sign a blanket "contract" where the passenger promises that they will self quarantine after arrival, likely to proactively avoid having any problems landing in any city, state, or country.

Agency Responses to Executive Order 13988 of January 21, 2021

On February 4, 2021, CBP announced :

" Effective Feb. 2, U.S. Customs and Border Protection (CBP) is enforcing the requirement that travelers wear face masks at all air, land and sea ports of entry in the United States in accordance with President Biden’s Executive Order on Promoting COVID-19 Safety in Domestic and International Travel and the Centers for Disease Control and Prevention (CDC) Order Regarding the Requirement for Persons to Wear Masks While on Public Conveyances and at Transportation Hubs...With limited exceptions, travelers must wear a face mask while physically present at a U.S. air, land, or sea port of entry. CBP Officers will require travelers to temporarily lower their mask during the inspection process to verify their identity. The new requirement applies to all persons older than 2 years of age. Per CDC guidelines: A properly worn mask completely covers the nose and mouth. Cloth masks should be made with two or more layers of a breathable fabric that is tightly woven (i.e., fabrics that do not let light pass through when held up to a light source). Masks should be secured to the head with ties, ear loops, or elastic bands that go behind the head. If gaiters are worn, they should have two layers of fabric or be folded to make two layers. Masks should fit snugly but comfortably against the side of the face. Masks should be a solid piece of material without slits, exhalation valves, or punctures. With limited exceptions, travelers must wear a face mask while physically present at a U.S. air, land, or sea port of entry. CBP Officers will require travelers to temporarily lower their mask during the inspection process to verify their identity. The mask requirement does not apply to persons with disabilities who cannot wear, or cannot safely wear, a mask due to a disability as defined by the Americans with Disabilities Act. The mask requirement also does not apply to individuals for whom wearing a mask would create a risk to workplace health, safety, or job duty. Individuals on private conveyances such as personal vehicles are not required to wear a mask while driving, but must don a mask once they enter an air, land, or sea port facility. Drivers of commercial vehicles and trucks are also not required to wear a mask while driving if the driver is the sole occupant of the vehicle. The mask requirement will remain in effect until further notice. Failure to comply with the mask requirement can result in denial of transport or other civil/criminal penalties under 18 U.S.C. 3559, 3571. CBP urges all travelers to closely follow the CDC’s COVID-19 travel guidelines ."

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Implementation of Aviation Safety Reforms

STATEMENT OF STEPHEN M. DICKSON, ADMINISTRATOR FEDERAL AVIATION ADMINISTRATION

HEARING BEFORE THE UNITED STATES SENATE  COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION :

NOVEMBER 3, 2021

Good morning Chair Cantwell, Ranking Member Wicker, and Members of the committee:

Thank you for the opportunity to be here with you today to discuss the Federal Aviation Administration’s (FAA) approach to aviation safety oversight and our activities to implement changes to strengthen the aircraft certification process. Certifying aviation products is a critical aspect of the FAA’s safety mission. We are committed to improving the certification process, including our oversight of functions delegated to aircraft designers and manufacturers. We have undertaken a number of initiatives to address this goal, as well as to comprehensively implement the requirements of the bipartisan Aircraft Certification, Safety, and Accountability Act (“Act”).

Before we begin to discuss the specifics of certification reform implementation, on behalf of the United States Department of Transportation and everyone at the FAA, I would like to recognize, as we have before, the families of the victims of the Lion Air and Ethiopian Airlines accidents and extend our deepest sympathies and condolences to them. It has been 3 years since the Lion Air accident, and we have made significant progress on addressing the findings and recommendations that resulted from the numerous investigations and independent reviews of both accidents involving the Boeing 737 MAX. We will continue to prioritize our work to improve aviation safety to make sure this never happens again.

As mentioned, our efforts to implement certification reform are well underway. I want to thank Congress for enacting this landmark aviation safety legislation and for this committee’s continued leadership on aviation safety matters. The Act has more than one hundred unique requirements that we are implementing in a holistic, systematic, transparent, and efficient manner to improve aircraft certification and safety oversight. The FAA is working diligently to implement the requirements while also ensuring that we are approaching our efforts as systemically and effectively as possible.  Specific agency actions taken to implement the requirements of the Act are discussed more fully below; however, I also wish to note that, in general, our approach to aircraft certification and safety oversight has changed.  The FAA’s relationship with manufacturers is evolving. We are prioritizing oversight of manufacturers and working to focus that oversight on safety critical areas. We are delegating fewer responsibilities and demanding more transparency from them, and evaluating key assumptions prior to delegating functions in certain areas.    While we continue to value their technical expertise, we are also committed to enforcing the highest safety standards for the manufacturers that we regulate. Our work to fully implement the Act is still in the early stages, and we are carrying it out with the urgency that it requires.  The discussion below provides an overview of some of our accomplishments to date.   

  • Safety Management Systems. To ensure a holistic and proactive assessment and mitigation of hazards, and to support further improvement in safety performance, we continue to work with industry to increase transparency, strengthen risk management practices, and improve feedback channels between industry and the FAA.  We believe that enhancing and promoting the use of safety management systems (SMS)—where safety issues are actively looked for and identified, and then the root cause is addressed—is integral to achieving this objective, and we have taken a number of steps toward increasing the use of SMS  in the design and manufacturing environment. As required by the Act, we have initiated a rulemaking that contemplates requiring aircraft manufacturers that hold both a type certificate and a production certificate to adopt SMS, consistent with international standards and practices. [1] As part of this rulemaking, we will also evaluate potential SMS requirements for repair stations, certificate holders that conduct common carriage operations under part 135, and certain air tour operators under part 91. [2] We also created guidance for the development of voluntary SMS programs and are working closely with industry to encourage participation in voluntary SMS programs to further enhance safety across the entire aviation system. Currently, four design and manufacturing organizations have voluntarily adopted SMS with six others in progress. Boeing also established an SMS under the FAA’s Voluntary SMS program as part of the settlement agreement. The voluntary programs have enabled the FAA to gain valuable experience on oversight of SMS for design and manufacturing organizations, and the lessons learned will help inform FAA’s SMS rulemaking and policy development.
  • System Safety and Human Factors.   We are working on several initiatives to ensure system safety assessments and human factors assumptions are incorporated into the FAA’s aviation safety policy and oversight. We have initiated a rulemaking to standardize regulations and guidance for conducting system safety assessments on transport category airplanes. [3]  In addition, the expert safety review panel that we established pursuant to the Act is meeting regularly to review the assumptions relied upon in aircraft design and certification of transport category aircraft—including assumptions regarding pilot response times.  We are also developing new guidance for industry on the submission of safety critical information. There are several interrelated provisions regarding human factors and human systems integration. To address these, we have taken a number of steps to strengthen the foundation of aviation human factors safety research and to bolster the technical expertise within the Aviation Safety (AVS) organization. This includes developing a human factors education and training program, doubling the number of human factors staff within AVS, and realigning the hiring of technical advisors with the necessary technical expertise involved in critical safety decisions.  
  • Global Collaboration. To further international harmonization and collaboration with respect to aircraft type certification and continued operational safety, the FAA established the Changed Product Rule International Authority Working Group and held the first meeting in July 2021. This working group will develop recommendations for international policy and guidance to ensure proposed changes to an aircraft are evaluated from an integrated whole aircraft system perspective. The FAA is working closely with the International Civil Aviation Organization and other international stakeholders to influence and adjust the maintenance and pilot training requirements for U.S. products operating under the oversight of another civil aviation authority. In addition, FAA representatives have presented at and attended several webinars, work group meetings, and seminars, including a presentation at the 2021 Zhuhai International Flight Training and Safety seminar on topics of competency based pilot training and automation dependency. The FAA plans to continue this global engagement into the future, including seeking new opportunities to collaborate with civil aviation authorities and other international stakeholders to foster improvements in international safety standards and practices for aircraft design and certification, pilot training, and operational safety management.  Additionally, to fulfill the requirement to ensure that pilot operational evaluations for aircraft type certifications utilize pilots from air carriers that are expected to operate such aircraft, the FAA has already begun to incorporate air carrier pilots into such evaluations. 
  • Data.   We are actively expanding our oversight capabilities by advancing data collection and analytics tools to share safety data within the FAA and between industry stakeholders and international partners. These efforts include technological enhancements to the Aviation Safety Information Analysis and Sharing system to integrate new data sources and methods for safety analysis, which will improve data quality and accessibility to support risk-based decision-making. In addition, the FAA’s new contract with the Transportation Research Board, established pursuant to the Act in June 2021, will aid the agency’s effort to conduct annual analysis and reporting on current and emerging safety trends in aviation.  As the aviation landscape continues to evolve, it will be increasingly necessary to bolster the FAA’s use of safety data and collaboration with industry to identify potential hazards and safety problems and to solve these problems before they give rise to an accident or incident.
  • Integration of Certification and Oversight.  The Act requires the FAA to convene an interdisciplinary integrated project team upon the agency’s receipt of every application for a new type certificate for a transport category airplane. The FAA previously commissioned the Integrated Program Management team comprised of subject matter experts from Flight Standards and the Aircraft Certification Service to assess current practices and policies and make recommendations for improving FAA oversight through the integration of design and operations. The best practices identified from this process are being applied to ongoing certification projects, and we intend to enhance the current procedures to incorporate additional requirements contained in the Act.  The FAA is also revising our current Technical Advisory Board (TAB) process to use the TAB in all new and amended type certification projects. We anticipate implementing this policy next spring. The Act also directs FAA to establish an executive council to oversee the FAA Compliance Program. This program provides a framework for how the agency returns a regulated entity to compliance through comprehensive safety data sharing between the FAA and regulated entities. Pursuant to the Act’s requirements, we established the FAA Compliance Program Executive Council to monitor the operation and effectiveness of the Compliance Program, and held the first meeting in August 2021. We also updated the Compliance Program order to reflect the implementation of the Executive Council and the Compliance Program Steering Committee. [4]
  • Culture of Safety and Excellence. The FAA is committed to fostering a just safety culture, while providing transparency to improve safety, operational excellence, and efficiency. These efforts include promoting voluntary safety reporting, increasing workforce competencies, and attracting talented staff. In April 2021, we implemented the Voluntary Safety Reporting Program (VSRP) to provide a mechanism for employees to voluntarily report potential hazards and safety concerns without fear of reprisal or other repercussions. [5] Preliminary data on VSRP usage indicates that employees are comfortable using the system and they are regularly using it to raise safety concerns. An added bonus of VSRP is that it promotes collaboration between employees and management for proactively addressing safety concerns and developing corrective action recommendations. To assess the effectiveness of these efforts and to meet the requirements of the Act, we will conduct annual internal safety culture assessments that include surveys of AVS employees in order to evaluate the safety culture and the implementation of VSRP programs. 
  • Accountability. A critical part of fostering a just safety culture is ensuring that we hold our people to the highest safety standards. In response to requirements in the Act, we have taken a critical look at our own internal oversight processes and taken steps to enhance accountability. This includes re-designating the Office of Investigations to the new Office of Investigations and Professional Responsibility and establishing investigative processes that are based on best practices identified from similar offices at other federal agencies and from the FAA’s experience, expertise, and other sources. Although our work is not yet done, we believe that incorporating these best practices will improve the effectiveness, efficiency, and transparency of the FAA’s investigative process.
  • Delegation.  The Act requires the FAA to institute extensive and meaningful changes to the Organization Designation Authorization (ODA) program and our oversight of that program. To address these legislative requirements, we expect to implement significant changes to our policies and procedures for delegating certification authority to private entities. These changes include policy requiring FAA approval of individual ODA unit members for certain ODA types, and policy aimed at preventing interference with ODA unit members in performance of their duties.  We are also standing up an expert panel to conduct a review of ODAs for transport category airplanes and make recommendations to the FAA based on that review. Additionally, as required under the FAA Reauthorization Act of 2018, we previously established the ODA Office to provide oversight and to ensure consistency of the FAA’s audit functions under the ODA program. In April 2021, the FAA realigned the ODA Office to report directly to the Associate Administrator for Aviation Safety. This reporting structure reflects the FAA’s priority to oversee, standardize, and ensure consistency in the ODA system, as well as to facilitate many of the ODA reform requirements contained in the Act. To that end, the ODA Office anticipates adding more employees in Fiscal Year 2022, and hiring has already begun. The additional staff will allow the office to perform more outreach, identify best practices, and implement measures to maintain consistent oversight.
  • Certification and Continued Operational Safety Processes. Ensuring the safety of aviation products through certification is an important function of the FAA, and we are continuously taking steps to enhance the type certification process. This includes revising guidance and criteria used for determining significant changes to best ensure that proposed changes to an aircraft are evaluated from a whole aircraft-level perspective, including human interface elements. We have also commissioned external reviews to evaluate our Transport Airplane Risk Assessment Model and type certification process. To address the Act’s requirements to establish an appeal and issue resolution processes for certification decisions, we are developing an implementing order.
  • Innovation.   Aviation is incredibly dynamic, and it is imperative for the FAA to take steps to accelerate and expand the deployment of new technologies in order to reduce barriers and actively promote innovation that enhances the safety and efficiency of the National Airspace System. We recently established and staffed the Center for Emerging Concepts and Innovation to support certification of new aircraft and technologies by providing pre-application engagement with companies to identify a preliminary path to compliance. We are also taking steps to foster enhanced coordination across the FAA on emerging products and concepts.

Chair Cantwell, Ranking Member Wicker, I want to assure you, and each member of the committee, that the FAA is fully committed to thorough and complete implementation  of the Aircraft Certification, Safety, and Accountability Act. As we continue this process, we remain committed to our transparent and accountable approach, which includes regular briefings on our progress with staff of the committees of jurisdiction, labor partners, industry stakeholders, and more. We will continue to assess our entire certification and oversight framework in light of past experience, industry growth, technological advancements, and innovation as we carry out our responsibilities for public safety. We approach all of this work with humility and do not take safety for granted. We are confident that we are making substantial and meaningful progress, and will continue to keep Congress apprised throughout this work.

[1] RIN 2120-AL60, Safety Management System (SMS) for Parts 21, 91, 135 and 145 issued. https://www.reginfo.gov/public/do/eAgendaViewRule?pubId=202104&RIN=2120-AL60

[2] The FAA is developing a final rule to require the use of SMS at airports certificated under Part 139. RIN 2120-AJ38, Airport Safety Management System. https://www.reginfo.gov/public/do/eAgendaViewRule?pubId=202104&RIN=2120-AJ38

[3] RIN 2120-AJ99, System Safety Assessments for transport category airplanes issued.

https://www.reginfo.gov/public/do/eAgendaViewRule?pubId=202104&RIN=2120-AJ99

[4] Federal Aviation Administration, Federal Aviation Administration Compliance Program, Order 8000.373B, April 22, 2021, at http://www.faa.gov/documentLibrary/media/Order/FAA_Order_8000.373B.pdf .

[5] Federal Aviation Administration, Aviation Safety Voluntary Safety Reporting Program, Order 800.375, February 02, 2021, at http://www.faa.gov/documentLibrary/media/Order/VS_8000.375.pdf .

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U.S. Government Accountability Office

Air Travel and Communicable Diseases: Status of Research Efforts and Action Still Needed to Develop Federal Preparedness Plan

COVID-19 is only the latest disease to raise concerns over contagions spread through air travel. In 2015, during the Ebola epidemic, we recommended that the Department of Transportation develop a comprehensive national aviation-preparedness plan for communicable disease outbreaks.

However, it has yet to do so. Such a plan could have improved coordination between public-health and aviation sectors during COVID-19 to address issues like passenger screening.

We also found that FAA has conducted limited research on disease transmission during air travel or in airports. We earlier recommended FAA improve how it sets research priorities.

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Hand sanitizer and sign saying "Leave Space. Stay Safe" at airport

What GAO Found

The United States still lacks a comprehensive plan for national aviation preparedness to limit the spread of communicable diseases through air travel. In December 2015 during the Ebola epidemic, GAO recommended that the Department of Transportation (DOT) work with relevant stakeholders, such as the Department of Health and Human Services (HHS), to develop a national aviation-preparedness plan for communicable disease outbreaks. GAO concluded that the absence of a national plan undermined the ability of the public-health and aviation sectors to coordinate on a response or to provide consistent guidance to airlines and airports. Moreover, Annex 9 to an international aviation treaty to which the United States is a signatory contains a standard that obligates member states to develop such a plan. DOT is now confronting an even more widespread public health crisis—the Coronavirus Disease (COVID-19) global pandemic—without having taken steps to implement this recommendation. Not only could such a plan provide a mechanism for the public-health and aviation sectors to coordinate to more effectively prevent and control a communicable disease threat, it could also help minimize unnecessary disruptions to the national aviation system, disruptions that to date have been significant. Some aviation stakeholders have publicly highlighted the resulting piecemeal approach to adopting standards during the response to COVID-19, such as various airline and airport policies regarding facemasks, as demonstrating the need for a more coordinated response. The existence of a national plan might have reduced some of the confusion among aviation stakeholders and passengers. While DOT agrees that a national aviation preparedness plan is needed, the agency continues to suggest that HHS and the Department of Homeland Security have responsibility for communicable disease response and preparedness planning. GAO continues to believe that DOT is in the best position to lead this effort given its oversight responsibilities and ties with relevant aviation stakeholders.

The Federal Aviation Administration (FAA) has sponsored limited federal research into disease transmission onboard aircraft and in airports. FAA's research goals focus on areas like improving airport operations and air space management, and developing new technologies, which FAA has aligned to DOT's strategic goals related to safety, infrastructure, and innovation. Based on prior work and interviews with FAA officials, GAO found that FAA's research in cabin safety for crew and passengers does not focus on disease transmission. For example, according to FAA officials, ongoing research that most closely relates to disease contamination is research related to monitoring the quality of “bleed air,” which is outside air that is drawn through jet engines into an aircraft cabin. In 2017, GAO found that FAA could be more strategic in how it develops its research and development (R&D) portfolio, chiefly in identifying long-term research needs and explaining how FAA selects projects. Of the three recommendations GAO made in that report to improve FAA's management of its R&D portfolio, FAA fully addressed one, issuing guidance in 2018 on prioritizing and selecting R&D projects. While FAA has made some progress addressing GAO's recommendations on research portfolio development and reporting, further attention to these recommendations could help ensure that FAA strategically identifies research priorities across the agency.

Why GAO Did This Study

The transmission of COVID-19 has been greatly aided by air travel. In light of the pandemic and warnings about the risks of air travel, U.S. passenger airline traffic fell by 96 percent in April 2020 as compared to April 2019. COVID-19 is only the latest communicable disease threat to raise public health concerns regarding the spread of contagion through air travel. Ensuring that the United States is prepared to respond to disease threats from air travel, as well as conducting the necessary research to reduce the risks of contagion, are two vital responsibilities of the federal government.

This statement provides information on (1) the U.S. aviation system's preparedness to respond to communicable disease threats and (2) FAA's management of its R&D portfolio, including the extent to which disease transmission on aircraft and at airports has been the focus of FAA research. This statement is based on GAO-16-127 issued in December 2015 and GAO-17-372 issued in April 2017. GAO conducted updates to obtain information on the actions agencies have taken to address these reports' recommendations.

Recommendations

GAO made several recommendations in its prior work, including that DOT develop a comprehensive national aviation-preparedness plan, and that FAA identify long-term R&D priorities, among other things. Progress has been made in addressing some of the recommendations. Continued attention is needed to ensure that the remainder of these recommendations are addressed.

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Heather Krause Managing Director [email protected] (202) 512-2834

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Sarah Kaczmarek Acting Managing Director [email protected] (202) 512-4800

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Safety of air travel during the ongoing COVID-19 pandemic

K.c. bhuvan.

a School of Pharmacy, Monash University Malaysia, Subang Jaya, Selangor, Malaysia

d College of Public Health, Medical and Veterinary Sciences, James Cook University, Townsville, Australia

Ranish Shrestha

b Infection Control Unit, Nepal Cancer Hospital and Research Center, Harisidhhi, 44700, Lalitpur, Nepal

c Nepal Health Research and Innovation Foundation, Lalitpur, Nepal

Peter A. Leggat

e School of Public Health, Faculty of Health Sciences, University of the Witwatersrand, Johannesburg, South Africa

P. Ravi Shankar

f IMU Center for Education, International Medical University, Kuala Lumpur, Malaysia

Sunil Shrestha

Dear editor

During the continuing COVID-19 pandemic, countries have partially resumed air travel; however, strict COVID-19 guidelines have been implemented to control the spread. Travelling with a passenger with an unknown infection status or getting infected from a co-passenger seem to be the biggest concerns for air travelers. However, as more information regarding COVID-19 becomes available, public perception regarding air travel safety is also changing. An older International Air Transport Association (IATA) survey showed a significant reduction in the willingness of passengers to travel by air, with 30% of passengers willing to wait at least six months before they consider flying while 10% were unwilling to fly for at least a year [ 1 ]. However, as the COVID-19 pandemic progresses with the roll-out of vaccines against COVID-19, more people have resumed air travel for essential activities. A study by Graham et al. among the aged population (>65 years) in the United Kingdom, showed that social distancing, regular disinfection and mandatory use of masks were the preferred measures, while most participants were concerned that they could acquire the virus on-board the airplane [ 2 ].

Respiratory infections spread primarily via droplets with size ≥5 μm, released while breathing, speaking, singing, coughing or sneezing; these travel short distances (≤1 m) [ 3 ]. Guidelines suggest that the sphere of transmission of COVID-19 is most likely to be within a distance of 2 rows or 2 m from the infected person [ 3 ]. Risk of transmission of droplet infections for passengers within the 2-row distance is approximately 6%, while the risk beyond this distance is about 2% [ 3 ]. This suggests that seating proximity to the infected passenger is not the sole factor influencing transmission. Other factors such as the movement of other passengers or flight crew and physical proximity before or after the flight could also lead to potential transmission. Transmission could also occur via fomites and contaminated hands. Aerosol (respiratory particles < 5 μm) transmission could occur during the closing and opening of cabin doors. A study by Olsen et al. on the in-flight transmission of Severe Acute Respiratory Syndrome (SARS) during a flight from Hong Kong to Beijing exhibited airborne transmission due to a dysfunctional air filtration system and infection before or after the flight as possible transmission mechanisms [ 4 ]. Large numbers of people have travelled by air to different locations during various respiratory infection outbreaks in the past, and the overall reported incidence of airborne respiratory infection among airline passengers and crew is very low.

Overall ( Table 1 ), the risk of transmission of respiratory tract infections such as SARS, COVID-19, influenza, and tuberculosis during a flight varies according to the nature and mode of transmission of that disease.

Reports of COVID-19 Transmission on board Aircraft [ 6 ].

NS – Not stated.

The air quality within modern commercial aircraft is enhanced by frequent air changes, with a complete air change every 2–4 minutes [ 5 ]. The air travels into the cabin through overhead inlets and is removed through outlets near the floor [ 5 ]. This maintains a constant, unidirectional flow of air downwards toward the passengers. The airflow occurs at the row level, without significant forward or backward flow, reducing the possibility of transmission between rows [ 5 ]. About 60% of the air circulating within the plane is drawn from outside and is fresh, while 40% of the air is filtered via the high-efficiency particulate air (HEPA) filters and re-circulated [ 5 ]. HEPA filters have the capacity of filtering 99.7% particles above the 0.3-μm sizes [ 5 ]. The use of HEPA filter is less frequent in small aircrafts carrying less than 100 passengers as the cost to retrofit the filters may be high [ 5 ]. However, most modern (bigger) aircraft contain HEPA filters, and there are strict guidelines from the International Civil Aviation Organization (ICAO) regarding servicing and operation of HEPA filters in an aircraft. Furthermore, air flow exchange rate and direction seem to be less conducive for droplet spread, and seating arrangement with a passenger facing forward has been linked to a lower risk of in-flight transmission of COVID-19.

Air travel is becoming increasingly necessary as the pandemic continues into the second year. The evidence so far suggests a minimal risk of in-flight transmission of COVID-19 because of the air-flow management mechanisms, especially if the travelers, crew members, and airlines follow adequate COVID-19 safety measures. Recent reports suggest that together with stringent in-flight safety measures for air travelers during COVID-19, proper standards and care should be given to the ground handling of passengers and crew. All stakeholders must ensure information regarding air travel is regularly updated and communicated to the travelers.

Ethical approval

Not required.

Author contributions

BKC and RS authors contributed to the conception of the review, reviewed the literature, and drafted the manuscript. PL, PRS and SS critically reviewed the manuscript. All authors contributed to the revision of the manuscript.

No funding was received for this study.

Declaration of competing interest

All authors report no potential conflicts.

Acknowledgements

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Fact Sheet: Presidential Proclamation to Suspend and Limit Entry and Joint DHS-DOJ Interim Final Rule to Restrict Asylum During High Encounters at the Southern Border

Today, the Biden-Harris Administration took decisive new action to strengthen border security, announcing a series of measures that restrict asylum eligibility, and significantly increase the consequences for those who enter without authorization across the southern border. These extraordinary steps, which will be in effect during times when high levels of encounters exceed our ability to deliver timely consequences, will make noncitizens who enter across the southern border ineligible for asylum with certain exceptions, raise the standard that is used to screen for certain protection claims, and speed up our ability to quickly remove those who do not qualify for protection.

These actions follow a series of steps that the Administration has taken over the past three years as it prepared for the end of the Title 42 public health Order, and since it was lifted last year, including surging personnel, infrastructure, and technology to the border, issuing the Circumvention of Lawful Pathways Rule, and referring record numbers of noncitizens into expedited removal. Over the past year, we have removed or returned more than three quarters of a million people, more than in any fiscal year since 2010. Despite these efforts, our outdated and broken immigration and asylum system, coupled with a lack of sufficient funding, make it impossible to quickly impose consequences on all noncitizens who cross irregularly and without a legal basis to remain in the United States.

The Administration has repeatedly called on Congress to provide the resources and legal authorities needed to secure our border. The measures announced today will better enable the Department to quickly remove individuals without a legal basis to remain in the United States, strengthening enforcement and change the calculus for those considering crossing our border irregularly. However, they are no substitute for Congressional action. We continue to call on Congress to provide the new tools and resources we have asked for to support the men and women on the frontlines.

President Biden issued a Presidential Proclamation to temporarily suspend the entry of noncitizens across the southern border. The Secretary of Homeland Security and the Attorney General also jointly issued an interim final rule that, consistent with the Proclamation, generally restricts asylum eligibility for those who irregularly enter across the southern border – including the Southwest land and the southern coastal borders. The rule also limits fear screenings to those who manifest a fear or express a desire to file for protection and heightens the screening standard for statutory withholding and claims under the Convention Against Torture. Taken together, these measures will significantly increase the speed and scope of consequences for those who cross our borders irregularly or who attempt to present themselves at Ports of Entry without authorization, allowing the Departments to more quickly remove individuals who do not establish a legal basis to remain in the United States. The restriction on asylum eligibility will be discontinued when encounters fall below certain levels but will come back into effect if encounters rise again.

The rule makes three key changes to current processing under Title 8 immigration authorities during periods of high border encounters:

  • First, noncitizens who cross the southern border unlawfully or without authorization will generally be ineligible for asylum, absent exceptionally compelling circumstances and unless they are excepted by the Proclamation.
  • Second, noncitizens who cross the southern border and are processed for expedited removal while the limitation is in effect will only be referred for a credible fear screening with an Asylum Officer if they manifest or express a fear of return to their country or country of removal, a fear of persecution or torture, or an intention to apply for asylum.  
  • Third, the U.S. will continue to adhere to its international obligations and commitments by screening individuals who manifest a fear as noted above and do not qualify for an exception to the Rule for withholding of removal and Convention Against Torture protections at a reasonable probability of persecution or torture standard – a new, substantially higher standard than is currently applied under the Circumvention of Lawful Pathways rule.  

Like the Proclamation, the rule provides for an end to these enhanced measures following a sustained reduction in southern border encounters. Specifically, these measures are in effect until 14 calendar days after there has been a 7-consecutive-calendar-day average of less than 1,500 encounters between the ports of entry. The measures would again go into effect, or continue, as appropriate, when there has been a 7-consecutive-calendar-day average of 2,500 encounters or more.

During periods of high encounters, the Proclamation will apply across the southern border. Lawful permanent residents, unaccompanied children, victims of a severe form of trafficking, and other noncitizens with a valid visa or other lawful permission to enter the United States are excepted from the Proclamation.

In addition, the suspension and limitation on entry and rule will not apply to noncitizens who use a Secretary-approved process—such as the CBP One mobile app—to enter the United States at a port of entry in a safe and orderly manner or pursue another lawful pathway.

Noncitizens who cross the southern border and who are not excepted from the Proclamation will be ineligible for asylum unless exceptionally compelling circumstances exist, including if the noncitizen demonstrates that they or a member of their family with whom they are traveling:

  • faced an acute medical emergency;
  • faced an imminent and extreme threat to life or safety, such as an imminent threat of rape, kidnapping, torture, or murder; or
  • satisfied the definition of “victim of a severe form of trafficking in persons” currently provided in 8 CFR 214.11.

Consequences

Noncitizens who are subject to the rule’s limitation on asylum eligibility and who manifest or express a fear of return to their country or country of removal, express a fear of persecution or torture or an intention to apply for asylum, but do not establish a reasonable probability of persecution or torture in the country of removal will be promptly removed.

Those ordered removed will be subject to at least a five-year bar to reentry and potential criminal prosecution.

The Proclamation and rule will significantly enhance the security of our border by increasing the Departments’ ability to impose swift consequences for individuals who cross the southern border irregularly and do not establish a legal basis to remain in the United States.  Together, the Proclamation and rule make critical changes to how the Departments operate during times when encounters are at historically high levels—levels that, in the absence of these changes, undermine the government’s ability to process individuals through the expedited removal process. These changes will enable the Departments to quickly return those without a lawful basis to stay in the United States and thereby free up the asylum system for those with legitimate claims.

These extraordinary measures are a stop gap. Even with these measures in place, the Departments continue to lack the authorities and resources needed to adequately support the men and women on the frontlines. The Administration again calls on Congress to take up and pass the bipartisan reforms proposed in the Senate, which provide the new authorities, personnel, and resources that are needed to address the historic global migration that is impacting countries throughout the world, including our own. Until Congress does its part, we will continue to take any actions needed under current law and within existing resources to secure the border.

  • Border Security
  • Immigration
  • Biden-Harris Administration
  • Department of Homeland Security (DHS)
  • Department of Justice (DOJ)

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How to Protect Yourself and Others

CDC’s Respiratory Virus Guidance  provides strategies you can use to help protect yourself and others from health risks caused by COVID-19 and other respiratory viruses. These actions can help you lower the risk of COVID-19 transmission (spreading or catching COVID-19) and lower the risk of severe illness if you get sick.

Core Prevention Strategies

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CDC recommends that all people use core prevention strategies to protect themselves and others from COVID-19:

  • Although vaccinated people sometimes get infected with the virus that causes COVID-19, staying up to date on COVID-19 vaccines significantly lowers the risk of getting very sick, being hospitalized, or dying from COVID-19.
  • Practice good hygiene  (practices that improve cleanliness)
  • Take steps for cleaner air

When you are sick:

  • Learn when you can go back to your normal activities .
  • Seek health care promptly for testing and/or treatment if you have risk factors for severe illness . Treatment may help lower your risk of severe illness, but it needs to be started within a few days of when your symptoms begin.

Additional Prevention Strategies

In addition, there are other prevention strategies that you can choose to further protect yourself and others.

  • Wearing a mask and putting distance between yourself and others  can help lower the risk of COVID-19 transmission.
  • Testing for COVID-19 can help you decide what to do next, like getting treatment to reduce your risk of severe illness and taking steps  to lower your chances of spreading COVID-19 to others.

Key Times for Prevention

Using these prevention strategies can be especially helpful when:

  • Respiratory viruses, such as COVID-19, flu, and RSV, are causing a lot of illness in your community
  • You or those around you have risk factors  for severe illness
  • You or those around you were recently exposed to a respiratory virus, are sick, or are recovering

Check Your Community

Find out if respiratory viruses are causing a lot of illness in your community. Data updated weekly.

Learn more about all three of these respiratory viruses, who is most at risk, and how they are affecting your state right now. You can use some of the same strategies to protect yourself from all three viruses.

Get the Latest on COVID-19, Flu, and RSV

  • COVID-19 Testing
  • COVID-19 Vaccines
  • COVID-19 Treatments and Medications
  • Preventing Respiratory Viruses
  • Protect Yourself from COVID-19, Flu, and RSV

Additional Resources

  • Respirators and Masks
  • Improving Ventilation in Your Home
  • Improving Ventilation In Buildings

Search for and find historical COVID-19 pages and files. Please note the content on these pages and files is no longer being updated and may be out of date.

  • Visit archive.cdc.gov for a historical snapshot of the COVID-19 website, capturing the end of the Federal Public Health Emergency on June 28, 2023.
  • Visit the dynamic COVID-19 collection  to search the COVID-19 website as far back as July 30, 2021.

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