Implementation of PNRGOV Standard Message for International Flights Within the Asia-Pacific

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2013/SOM1/SCCP/008

Agenda Item: 11

Implementation of PNRGOV Standard Message for International Flights Within the Asia-Pacific Region

Purpose: Consideration

Submitted by: Indonesia

IMPLEMENTATION OF PNRGOV STANDARD MESSAGE FOR INTERNATIONAL FLIGHTS WITHIN THE ASIA-PACIFIC REGION

INTRODUCTION

Drug trafficking is one of the persistent trans-national organized crimes which continues to develop in various forms and mode, with air transport as the most preferred method used by the traffickers.

This phenomenon requires customs to develop specific risk management technique to improve customs control toward air transport passengers crossing the border, and assist in targeting high-risk passengers without hindering foreign travellers, especially tourists and businessmen.

One of the methods employed by Customs is analysis of passenger information retrieved from airlines, namely Advance Passenger Information (API). Through API, passenger data is electronically delivered to border authorities before departure of the aircraft, or interactively transmitted between APIs.

The more advanced model of passenger information system is Passenger Name Record (PNR). PNR serves more complete data and information on the passengers, including flight itinerary, associated travellers, ticketing data and other air travel-related data.

The use of advanced passenger information systems (API/PNR) for risk assessment provides significant benefits in terms of:

•  Preventing high risk passengers from travelling as they would pose a security threats to air transportation;

•  Allowing immigration to prevent the entry of persons who do not deserve to be granted entry on arrival. This would prevent government spending for detention and repatriation;

•  Intervening only high risk passengers would at the same time facilitate the legitimate travellers;

•  Allowing border authorities to effectively allocate their human resource allocation in conducting passenger control airports, even during peak seasons;

The only problem encountered by customs in using the PNR is that the airlines submitted the PNR data in various format depending on the information system developed by the respective airlines due to the lack of standard for PNR data. Hence, Customs strongly recommends the standardization of PNR data to facilitate Customs in processing and analysing the data.

RECOMMENDATION

Taking the above difficulty into consideration, the International Air Transport Association (IATA) suggests the utilisation of PNRGOV as the standard for PNR data provided by airlines to border authorities. PNRGOV is jointly developed by IATA with several border control agencies and airline service providers. Besides by IATA, PNRGOV has also been adopted by ICAO (International Civil Association Organization) and WCO (World Customs Organization) under tripartite agreement.

Indonesia would like to recommend APEC Economies to make it mandatory for the airlines operating in their respective countries to implement PNRGOV. This initiative is expected to assist Customs in analysing passenger profiles, and anticipating the entry of illicit, high-risk, and dangerous goods, caried by passengers crossing the state’s border.

The working Plan for the initiatives are as follows:

1.  To discuss and identify the benefit and requirements when adapting the PNRGOV during the SCCP 2013 meeting.

2.  Conducting studies (surveys) to identify passenger manifest administration and analyzing system at APEC economies’ customs administration.

3.  Conducting workshop/seminar for knowledge sharing/capacity building on the implementation of the PNRGOV.

FINAL NOTE

What is expected from the realization of a resilient Asia Pacific is that the region shall not only be resilient against economic and financial crisis, but terrorism and illicit goods that threaten the existence of all mankind and environment as well. Drug trafficking poses significant threat to human's body and mind, thus, to combat the imminent danger, strong commitment and effort from all countries in the world are required.

If the economies do not cooperate and work hand-in-hand, Asia Pacific region which comprises 40% of the world's population will become a very vulnerable market for drug trafficking. We strongly believe that the simple idea on implementing PNRGOV will be a beneficial risk management that would enable Customs to conduct an efficient and effective passenger control, while, at the same time, providing travel facilitation for business and tourism.