Trusted traveler programs allow for expedited processing of preapproved, low-risk travelers at certain ports of entry. Individuals who apply for membership in the programs provide certain biographic, and in some cases biometric, data. These data are used to conduct security threat assessments of individuals using terrorist and criminal databases. If determined that they present a low security risk, approved travelers may use dedicated lanes and kiosks at select ports of entry. This expedites the security screening process and allows the applicable government agency—the Transportation Security Administration (TSA) or U.S. Customs and Border Protection (CBP)—to expend fewer resources screening low-risk travelers and thereby reserve resources for the screening of travelers for whom risk levels are unknown. The security benefits of trusted traveler programs are designed to increase with scale because moving more travelers into expedited lanes leaves fewer unknown travelers, thus mitigating the "needle in the haystack" challenge of enforcement at ports of entry.

By distinguishing between known, low-risk travelers and lesser-known, potentially higher-risk travelers, these programs aim to enhance national security without disrupting the flow of travel and commerce. Border officials are dually responsible for facilitating the lawful flow of people and goods while preventing unauthorized entries, criminals, terrorists, and contraband from entering the United States. These policy goals are inherently in tension, as efforts to identify and prevent bad actors may delay the flow of legitimate travelers and commerce, while efforts to expedite the admissions queue may increase the risk that illicit travelers or goods are overlooked. Congress and the Department of Homeland Security (DHS) may consider deciding how to balance border security and facilitation of legitimate trade and travel. Trusted traveler programs are part of a risk management approach to address that dilemma.

This report discusses the five major trusted traveler programs in the United States—TSA's PreCheck and four programs run by CBP: Global Entry, NEXUS (not an acronym), Secure Electronic Network for Travelers Rapid Inspection (SENTRI), and Free and Secure Trade (FAST).¹ It provides an overview of these five programs, including each one's eligibility requirements and application processes, as well as key program data points such as annual screenings or admissions, membership, and applications. It also explains the legal and regulatory authority for these programs. The report concludes with a discussion of recent legislative activity related to trusted traveler programs.

TSA PreCheck

TSA PreCheck is an expedited security screening process at U.S. airports that began in October 2011 and became fully operational in 2012. PreCheck was initially available to frequent fliers of select airlines,² but starting in December 2013 most individuals were able to apply for the PreCheck program. PreCheck screens passengers upon departure, for both domestic and international flights. PreCheck passengers are processed through specially designated screening lanes where they can keep laptops and liquids inside their carry-on bags and they do not need to remove shoes, belts, or light jackets.³ PreCheck is available at more than 200 airports in the United States when traveling on one of the 73 participating airlines.⁴

Legal Authority

In 2001, the Aviation and Transportation Security Act (P.L. 107-71) authorized TSA to "establish requirements to implement trusted passenger programs and use available technologies to expedite the security screening of passengers who participate in such programs, thereby allowing security screening personnel to focus on those passengers who should be subject to more extensive screening." PreCheck is a cornerstone of TSA's risk-based initiatives created under this authority.

Provisions in the FAA Extension, Safety, and Security Act of 2016 (P.L. 114-190) included language to expand the PreCheck program by involving private-sector entities in marketing and enrollment. The act mandates that PreCheck screening lanes be open and available during peak times and high-volume travel periods.

In the FAA Reauthorization of 2018 (P.L. 115-254), Congress directed TSA to work with at least two private-sector entities to expand PreCheck enrollment options and set an enrollment target of 15 million by the end of FY2021.⁵ The act required TSA to ensure that PreCheck expedited screening lanes are open and available to program participants during peak and high-volume travel times and take steps to provide expedited screening at standard screening lanes when PreCheck lanes are not available. It also instructed TSA to ensure that only trusted traveler program members and members of the U.S. Armed Forces are permitted to use PreCheck screening lanes.⁶

Eligibility Requirements and Application Process

TSA accepts PreCheck applications from U.S. citizens, U.S. nationals,⁷ and U.S. lawful permanent residents (LPRs). There are no age restrictions. Eligible travelers may apply online and at a TSA enrollment center to join PreCheck. There is a fee of $85 for each application, including renewal applications.

While applicants can apply online by providing certain biographic data, they also need to schedule an appointment with TSA to complete the enrollment process, which includes submitting biometric data (i.e., fingerprints and identity verification documentation containing a photograph, such as a passport or driver's license). TSA uses the submitted information to conduct security threat assessments of individuals using law enforcement, immigration, and intelligence databases, including a fingerprint-based criminal history records check through the FBI.

Once vetted and approved, a traveler receives a notification letter from TSA with an assigned PreCheck Known Traveler Number that they are to use when booking and checking in for commercial airline flights to be eligible for expedited screening. PreCheck participation is generally valid for five years,⁸ and travelers can apply to renew their membership six months before expiration.

Certain individuals can utilize PreCheck expedited screening lanes even if they are not enrolled in the PreCheck program. For example, if a child under the age of 12 is not enrolled in the program, they may participate in the program's expedited screening if they are traveling with a parent or guardian who is enrolled in PreCheck. In addition, PreCheck expedited screening lanes can by utilized by certain members of select CBP trusted traveler programs (including Global Entry, SENTRI, and NEXUS).

Individuals are ineligible for PreCheck if, within specified time periods (generally seven years since court determination or five years since release from prison), they have been convicted of, found not guilty by reason of insanity of, or are under want, warrant, or indictment for certain crimes.⁹ Further, TSA may reject an applicant with extensive foreign or domestic criminal convictions, even if the crimes are not specifically disqualifying, and may reject an applicant based on information in government terrorist watchlists, International Criminal Police Organization (INTERPOL) databases, and other international law enforcement and counterterrorism databases.

Screening, Membership, and Enrollment Data

Table 1 displays screening, membership, and enrollment data from FY2014 through FY2020. PreCheck screened 1.4 billion air travelers during this period.¹⁰ Membership in the PreCheck program rose each year. New (initial) enrollments in the program rose from FY2014 through FY2016, dropped in FY2017, and rose again in FY2018 and FY2019. Enrollments dropped again in FY2020, possibly due to the impacts of the Coronavirus Disease 2019 (COVID-19) pandemic.¹¹ The application approval rate from FY2014 through FY2020 held constant at 99%. From FY2013 through FY2020, approximately 8,000 individuals in total were denied membership in PreCheck.¹²

Authority for CBP's Trusted Traveler Programs

CBP's trusted traveler programs—Global Entry, NEXUS, SENTRI, and FAST—are authorized by various statutes, including

• Section 7208 of the Intelligence Reform and Terrorism Prevention Act of 2004 (IRTPA; P.L. 108-458), as amended, 8 U.S.C. §1365b(k);
• Section 215 of the Immigration and Nationality Act, as amended, 8 U.S.C. §1185;
• Section 402 of the Homeland Security Act of 2002 (P.L. 107-296), as amended, 6 U.S.C. §202;
• Section 404 of the Enhanced Border Security and Visa Reform Act of 2002 (P.L. 107-173), 8 U.S.C. §1753; and
• Section 433 of the Tariff Act of 1930, as amended, 19 U.S.C. §1433.¹³

FAST, which is a program for commercial truck drivers, is also authorized by the National Customs Automation Program, established in Subtitle B of the Customs Modernization Act (Title VI of the North American Free Trade Agreement Implementation Act (P.L. 103-182), 19 U.S.C. §§1411-1414).¹⁴

The regulations that permit and define these programs include 8 C.F.R. §§103.2, 103.7, 103.16, 235.1, 235.2, 235.7,¹⁵ and 235.12. Testing of the FAST program is authorized in 19 C.F.R. §101.9(b).¹⁶

Global Entry

Global Entry (GE) allows for expedited clearance for preapproved, low-risk travelers when they arrive in the United States by air. GE began as a pilot program in 2008 with kiosks in three airports. The program became permanent in 2012 and continued to expand. Currently, there are GE kiosks in 61 U.S. airports and 15 foreign airports (preclearance locations).¹⁷

In general, GE members are eligible for expedited processing at participating ports of entry. Instead of the normal primary inspections,¹⁸ GE members present their machine-readable travel documents (via a card-swipe system), fingerprints (via a scanner), and customs declarations (via a touchscreen) at an automated GE kiosk. In most cases, the kiosk issues a receipt, and travelers may claim their bags and exit into the airport without further inspection. GE members may still be selected for secondary inspection on the basis of derogatory information during the screening process or at random.¹⁹

Certain members²⁰ receive GE cards with radio frequency identification (RFID) chips.²¹ These cards are compliant with the Western Hemisphere Travel Initiative (WHTI),²² and they enable reciprocal privileges to use Ready Lanes,²³ NEXUS, and SENTRI travel lanes when entering the United States at land borders.²⁴ In order to utilize SENTRI lanes, GE members must register their vehicle. GE members are also allowed to utilize PreCheck expedited screening lanes.

Eligibility Requirements and Application Process

GE is open to U.S. citizens and LPRs, as well as citizens of Argentina, Colombia, Germany, India, the Netherlands, Panama, Singapore, South Korea, Switzerland, Taiwan, and the United Kingdom, and nationals²⁵ of Mexico.²⁶ Additionally, CBP has pilot agreements with Brazil, Israel, Japan, Qatar, and Saudi Arabia.²⁷ Canadian citizens and residents may also receive GE benefits by joining NEXUS. Applicants under age 18 must have a parent's or legal guardian's consent.²⁸

Eligible individuals can apply online through the Global Online Enrollment System and pay a $100 fee per application for a membership that is valid for five years. Applicants are required to participate in an in-person interview at a GE enrollment center. At the interview, applicants must present a valid passport and another form of identification; LPRs must present their LPR card. Applicants must also provide biometric data (e.g., fingerprints and photographs). Members can apply for renewal one year before their membership expires.²⁹

Applicants are checked against a variety of national security and criminal databases during the initial application and upon each return or visit to the United States.

To receive a membership in GE, applicants must not

• provide false or incomplete application information;
• have any previous criminal convictions, pending criminal charges, or outstanding warrants in any country (this includes driving under the influence);
• have any previous customs, immigration, or agriculture violations in any country;
• be the subject of an ongoing investigation by any federal, state, or local law enforcement agency in any country;
• be inadmissible to the United States;³⁰
• have any known or suspected terrorist connections; or
• be unable to satisfy CBP that they are low risk.³¹

Admissions, Membership, and Application Data

Table 2 presents data for the GE program from FY2011 through FY2020. GE admissions increased steadily from FY2011 through FY2019 before a sharp decrease in FY2020, coinciding with decreased international travel as a result of the COVID-19 pandemic.

Membership in the program increased steadily each year from FY2011 through FY2019; membership continued to increase in FY2020, but at a slightly slower rate. This may have been partially due to CBP closing trusted traveler program enrollment centers on March 19, 2020, in order to "minimize the risk of exposing travelers and CBP personnel to the novel coronavirus."³² On September 8, 2020, CBP resumed in-person interviews of conditionally approved GE applicants at most enrollment centers.

The total number of applications for GE increased every year from FY2011 through FY2019, but decreased for the first time in a decade in FY2020. Renewals as a percentage of total applications have grown exponentially since FY2012. In FY2020, renewals as a percentage of total applications were at a 10-year high (41%).

The data in Table 2 represent all GE members. For information that parses out partner country citizens' enrollment in the program, see Table A-1 in the Appendix.

NEXUS

NEXUS (not an acronym), is a trusted travel program jointly managed by the United States and Canada. It began in 2002 and allows prescreened travelers expedited processing when entering the United States and Canada.³³ NEXUS members can use dedicated NEXUS lanes at 21 land ports of entry on the U.S.-Canada border,³⁴ and at NEXUS kiosks when entering Canada by air or marine reporting locations.³⁵ To use NEXUS travel lanes, members receive an identification card that has an RFID chip³⁶ and is WHTI-compliant.³⁷

NEXUS members receive reciprocal privileges enabling them to utilize PreCheck expedited screening lanes and Global Entry kiosks when entering the United States via Canadian preclearance airports. They are also allowed to use SENTRI lanes and Ready Lanes.³⁸

Eligibility Requirements and Application Process

U.S. citizens and LPRs, Canadian citizens and lawful permanent residents, and Mexican nationals³⁹ who are members of Mexico's trusted traveler program, Viajero Confiable, are eligible for NEXUS. Applicants under 18 must have a parent's or legal guardian's consent.

Individuals can apply online through the Global Online Enrollment System or mail a completed application, along with photocopies of supporting documentation, to a Canadian Processing Center. A NEXUS membership is valid for five years. Members can apply for renewal 90 days prior to the expiration of their membership. The application fee for both first time and renewal applications is $50 (USD) for adults if applying online or $50 (CAD) if applying by mail. Children under 18 do not pay an application fee.

A NEXUS applicant undergoes a risk assessment by CBP and the Canada Border Services Agency. Applicants who are conditionally approved must then be interviewed at a NEXUS enrollment center to complete the application process. Both the United States and Canada issue the final approval. Approved applicants can only utilize NEXUS kiosks to enter Canada if they have images of their irises captured by the Canadian government.⁴⁰

To receive a membership in NEXUS, applicants must not

• provide false or incomplete application information;
• have any previous criminal convictions, pending criminal charges, or outstanding warrants (this includes driving under the influence);
• have any previous customs, immigration, or agriculture violations in any country;
• be the subject of an ongoing investigation by any federal, state, or local law enforcement agency in any country;
• be inadmissible to the United States;⁴¹
• have any known or suspected terrorist connections; or
• be unable to satisfy CBP or Canada Border Services Agency that they are low risk.⁴²

Admissions, Membership, and Application Data

Table 3 displays admissions, membership, and application data for NEXUS for the past 10 fiscal years. Admissions under NEXUS doubled from FY2011 through FY2014 before stabilizing through FY2019 at between 6 million and 7 million annual admissions. FY2020 saw a sharp decline in admissions, likely due to reduced international travel because of the COVID-19 pandemic.

Membership in NEXUS increased every year during the last decade. While membership did not decrease in FY2020, it increased less than in the previous years, possibly due to the inability of applicants to complete the enrollment process. Interviews of conditionally approved NEXUS applicants at trusted traveler program enrollment centers have been suspended since March 19, 2020, and, unlike those for Global Entry, have not yet resumed.⁴³

NEXUS applications increased steadily from FY2011 through FY2019, before a sharp decline in FY2020. Renewals as a subset of total applications increased annually over the last decade. In FY2020, renewals as a percentage of total applications were at a 10-year high (nearly 65%).

SENTRI

The Secure Electronic Network for Travelers Rapid Inspection (SENTRI) program, which began in 1995, allows for expedited clearance for preapproved, low-risk travelers at certain land ports of entry along the U.S.-Mexico border.⁴⁴ Its members may utilize dedicated pedestrian and vehicle processing lanes, which reduce wait times. While SENTRI provides benefits similar to what NEXUS provides at the U.S.-Canada border, unlike NEXUS, SENTRI is not jointly managed by the United States and the neighboring government (i.e., Mexico). SENTRI is available at 12 land ports of entry located in Arizona, California, and Texas.

SENTRI members receive a WHTI-compliant⁴⁵ RFID card.⁴⁶ A SENTRI membership provides reciprocal privileges to use Global Entry kiosks when entering the United States by air and NEXUS lanes when entering the United States from Canada by land. SENTRI members are also allowed to use PreCheck expedited screening lanes.

Eligibility Requirements and Application Process

SENTRI does not have citizenship requirements or age limitations. However, applicants under age 18 must have a parent's or legal guardian's consent.⁴⁷

Applications can be submitted online through the Global Online Enrollment System or by completing the SENTRI Application paper form (Form 823S). Applicants who are conditionally approved must then be interviewed at a SENTRI enrollment center and must register the vehicles they intend to use with the program. SENTRI applicants are subject to more stringent application requirements than other trusted traveler program applicants and must provide the following:

• a valid passport;
• another form of identification (e.g., a driver's license or state ID document);
• an LPR card (if an LPR);
• original evidence of admissibility to the United States (for non-U.S. citizens);
• vehicle registration and proof of insurance or a notarized letter authorizing use of the vehicle if the SENTRI applicant is not the vehicle owner;
• evidence of employment or financial support; and
• evidence of place of residence.

The SENTRI fee includes an application fee of $25 per person (or a maximum of $50 for parents and minor children), a fingerprint fee of $14.50 (for applicants age 14 and older), and a system cost fee of $82.75 per person (or a maximum of $165.50 for parents and minor children). For an individual applying alone, the SENTRI fee totals $122.25, paid upon initial application and renewal applications. There is no fee for the first vehicle registered in the initial application. It costs an additional $42 per car to register more cars or to register oneself to more than one car. Furthermore, if no vehicles are registered at the time of initial application, it costs $42 to register a vehicle later. In addition, SENTRI members may only use SENTRI lanes while driving registered vehicles. A SENTRI membership is valid for five years. Members can apply for renewal one year prior to their membership expiration date.⁴⁸

To receive a membership in SENTRI, applicants must not

• provide false or incomplete application information;
• have any previous criminal convictions, pending criminal charges, or outstanding warrants (this includes driving under the influence);
• have any previous customs, immigration, or agriculture violations in any country;
• be the subject of an ongoing investigation by any federal, state, or local law enforcement agency in any country;
• be inadmissible to the United States;⁴⁹
• have any known or suspected terrorist connections; or
• be unable to satisfy CBP that they are low risk.⁵⁰

Admissions, Membership, and Application Data

Table 4 provides SENTRI admissions, membership, and application data for FY2011 through FY2020. SENTRI admissions increased from FY2011 through FY2018, held steady in FY2019, and then dropped in FY2020, likely due to reduced travel because of the COVID-19 pandemic.

Annual SENTRI membership increased steadily over the past 10 fiscal years. It did not drop in FY2020, but it did not increase at the same rate, likely due to the reduction in applications. The number of total SENTRI applications each fiscal year fluctuated in the first part of the decade, but FY2016-FY2019 saw a steady increase. Applications dropped significantly in FY2020, likely due to the impact of the COVID-19 pandemic on international travel.⁵¹

Renewals as a subset of total applications increased most years from FY2013 through FY2018. In FY2020, renewals as a percentage of total applications were at a 10-year high (51.36%).

FAST

The Free and Secure Trade (FAST) program, which began in 2002,⁵² is a commercial truck clearance program that provides expedited processing for known, low-risk shipments entering the United States from Canada and Mexico. FAST lanes allow shipments to be processed more quickly because they are granted priority CBP inspection processing and are subject to a reduced number of inspections.⁵³

FAST lanes process commercial cargo vehicles at 15 land ports of entry. On the U.S.-Canada border, FAST North lanes are located in Michigan, New York, and Washington. On the U.S.-Mexico border, FAST South lanes are located in Arizona, California, New Mexico, and Texas.

A driver's FAST membership is valid for five years. Members receive a WHTI-compliant⁵⁴ RFID card.⁵⁵ FAST North provides full benefits at both borders. If an applicant is approved for FAST North, he/she does not need to apply for FAST South. However, if an applicant is approved for FAST South, he/she would still need to apply for FAST North in order to use FAST processing on the Canadian border.

Eligibility Requirements and Application Process

FAST enrollment is open to truck drivers who are U.S. citizens, U.S. lawful permanent residents, Canadian citizens, Canadian lawful permanent residents, and Mexican nationals. Applicants must be age 18 or older and have a valid driver's license.

The FAST application fee is $50 for a membership that is valid for five years. Members can apply for renewal up to one year prior to their membership expiration date.⁵⁶

Participation in FAST requires that every link in the supply chain (e.g., manufacturer, carrier, driver, and importer) be certified under the Customs Trade Partnership Against Terrorism (C-TPAT) program.⁵⁷

To become a member in FAST, applicants must not

• provide false or incomplete application information;
• have any previous criminal convictions, pending criminal charges, or outstanding warrants (this includes driving under the influence);
• have any previous customs, immigration, or agriculture violations in any country;
• be the subject of an ongoing investigation by any federal, state, or local law enforcement agency;
• be inadmissible to the United States;⁵⁸
• have any known or suspected terrorist connections; or
• fail to meet other requirements of the FAST Commercial Driver Program.

Admissions, Membership, and Application Data

CBP records FAST North and FAST South data separately. Table 5 summarizes annual admissions, membership, and application data under FAST North for FY2011 through FY2020. Admissions increased most years from FY2012 through FY2019, and then dropped in FY2020, likely due to the impacts of the COVID-19 pandemic on international travel and trade.⁵⁹

Over the past 10 fiscal years, membership in FAST North declined every year except FY2014. Applications fluctuated over this period, as did renewals (a subset of total applications) in both raw numbers and as a percentage of total applications. In FY2020, renewals as a percentage of total applications were at a 10-year high (61.15%). This may be partially due to the fact that from March 19, 2020, until the cover date of this report, FAST North interviews of new applicants at enrollment centers have been suspended "due to the temporary restrictions on nonessential travel at U.S. land borders" related to the COVID-19 pandemic.⁶⁰

As Table 6 indicates, there are fewer members of FAST South than FAST North, but FAST South has more admissions. As mentioned previously, FAST North members can utilize FAST South lanes, but not vice-versa.

From FY2011 through FY2019, admissions under FAST South rose fairly steadily. They dropped in FY2020, likely due to the impacts of the COVID-19 pandemic on international travel and trade.

Membership also generally increased over the past 10 years, except for a slight dip in FY2015 (approximately 100 fewer members than in FY2014) and a larger decrease in FY2020 (over 500 fewer members than FY2019). According to CBP, "FAST South enrollments on the southern border may also be limited" due to restrictions on nonessential travel in light of the COVID-19 pandemic.⁶¹

Total applications increased most years from FY2011 through FY2019 before dropping in FY2020. Renewals display more variation. In FY2020, renewals as a percentage of total applications were at a 10-year high (49.39%).

Selected Legislative Activity

In recent Congresses, legislative proposals related to trusted traveler programs have promoted enrollment as a means to increase security. As previously mentioned, the security benefits of trusted traveler programs are designed to increase with scale because moving more travelers into expedited lanes speeds overall processing times, and fewer unknown travelers mitigates the "needle in the haystack" challenge of enforcement at ports of entry. For example, some bills have sought to expand eligibility to specific populations or automatically enroll specific populations (e.g., veterans or law enforcement officers).⁶² Others have proposed redress for individuals whose membership may have been revoked erroneously.⁶³

Some lawmakers have focused on the enrollment process. Proposals have ranged from requiring online enrollment for PreCheck to standardizing enrollment processes for individuals applying to multiple trusted traveler programs.⁶⁴ Other bills have sought to coordinate the interview and enrollment process for U.S. visas and Global Entry for eligible foreign nationals.⁶⁵

Some bills addressed security by focusing on standards for international partnerships. For example, bills have outlined certain security and information sharing benchmarks that foreign nations must meet in order to become or remain a partner country in a trusted traveler program.⁶⁶

In line with Congress' role in appropriations and oversight, bills in recent Congresses have addressed funding of trusted traveler programs or have requested that the Government Accountability Office (GAO) review the programs.⁶⁷ In addition, Congress has directly executed its oversight role by holding congressional hearings about trusted traveler programs. Previous hearings related to the programs have addressed their management and implementation, security screening operations and technologies, and airport wait times, among other issues.⁶⁸

Appendix. Global Entry Enrollment of Partner Country Citizens

Global Entry (GE) is open to U.S. citizens and U.S. LPRs, as well as citizens of 17 countries: 12 GE official partner countries and 5 countries with pilot agreements. The following table shows the number of partner and pilot country citizens enrolled in GE from FY2013 through FY2020.⁶⁹ This table does not represent the 216,819 U.S. LPRs enrolled in GE as of September 2020 who hold citizenships from a wide array of nations nor the 6,693,734 U.S. citizens enrolled in FY2020.