“Pravova derzhava”. Issue 35 (2024), pages 467–478.

DOI: 10.33663/0869-2491-2024-35-467-478

Kysil Liudmyla, Shevchuk Yaroslav
Regarding the model of implementation of the function of collecting information about passengers of all types of transport, including API/PNR

Introduction. The war waged by the Russian Federation against Ukraine brought
to the fore the issue of proper legal protection, among other things, countering
terrorism. Article 1 of the Law of Ukraine «On Combating Terrorism» was
supplemented by the Law of Ukraine dated March 21, 2023 with the legislative
defi nition of «advance passenger information/passenger name record» (API) and
«passenger registration records»(PNR). This approach of the domestic legislator
corresponds to the international experience in the specifi ed area, according to which
preliminary information about passengers and passenger registration records are used
by the governments of foreign countries to identify passengers who may pose a risk to
the national security of the country, before they reach the checkpoint through the state
border, is a powerful a tool for security, intelligence and law enforcement agencies of
the state in their activities to
fi ght terrorism, transnational organized crime.
The aim of the article is based on the analysis of international regulatory and legal
acts and domestic legislation in the
fi eld of countering international terrorism,
prevention, detection, investigation of criminal off enses committed with terrorist intent,
other serious and especially serious crimes, as well as prevention of the movement of
persons who may constitute threat to the national security of Ukraine, to propose a
domestic model of the implementation of the function of collecting information about
passengers of all types of transport, including API/PNR, in order to form a unifi ed state
approach.
Results. The UN Security Council, adopting Resolutions No. 2170 (2014), No.
2178 (2014), No. 2309 (2016), No. 2396 (2017) and No. 2482 (2019), relating to the
fi ght against international terrorism, obliges required Member States to: require
airlines operating on their territory to provide the relevant national authorities with
advance passenger information in order to detect cases of entry, exit or transit through
the territory of the country on board civil aviation aircraft of persons with high risk; to
take measures aimed at preventing the entry (transit) through its territory of persons
with regard to whom there is information about their intention to commit a terrorist act
or carry out terrorist activities; strengthen international cooperation in the
fi eld of
combating international terrorism.
In the EU, the collection of information about passengers is regulated by special
EU Directives: 2004/82/EC on the obligations of carriers to report passenger data
(API) and 2016/681/EC on the use of passenger registration records (PNR). In
particular, according to EU Directive 2016/681, the European Union obliges its
member states and calls on candidate countries to collect passenger data in accordance
with the API and PNR Directives.
Directive 2016/681 also established a single mandatory approach to the formation
of national PNR data processing systems for all EU member states:
– development and adoption of national legislation that would be maximally
consistent with the provisions of Directive 2016/681, which would create a legal basis
for the collection, processing and transmission of PNR data;
– establish or appoint an authorized body for the prevention, detection, investigation
and prosecution of terrorist and serious crimes, which will function as the National
Passenger Information Processing Authority (PIU);
– integration of national PIUs with the relevant unit of EUROPOL;
– national competent authorities should not have continuous direct access to
passenger data, but should instead cooperate with the PIU;
– the time of transmission of PNR messages to the PIU should be: the
fi rst — 48 — 24
hours before the scheduled departure, the second — at the actual time of departure
(completion of boarding);
– transmission and processing of PNR data also involves transmission and
processing of ARI data;
– data transmission standards and formats must comply with accepted international
standards;
– the data must be stored for 5 years, but already after 6 months from the moment
of entry into the relevant PIU information system, they must be depersonalized, and
access to them must be granted only with the permission of the court.
As of December 2020, the above requirements have already been implemented in
all EU member states.
How are the above-mentioned provisions of international legal acts implemented
by the domestic legislator? If we refer to the Law of Ukraine dated September 20, 2022
«On the Ratifi cation of the Additional Protocol to the Convention of the Council of
Europe on the Prevention of Terrorism», it clearly states that, in accordance with
Article 7 of the Additional Protocol to the Convention of the Council of Europe on the
Prevention of Terrorism, the contact point responsible for the exchange of information
about persons who travel abroad with a terrorist purpose is the Security Service of
Ukraine.The Anti-Terrorist Center operates under the Security Service of Ukraine to
organize and conduct anti-terrorist operations and coordinate the activities of entities
fi ghting terrorism or involved in anti-terrorist operations.
The legislator entrusts the ATC under the SBU with, among other things, the
following functions: participation in the preparation of drafts of international treaties
of Ukraine, preparation and submission in the established order of proposals for
improving the legislation of Ukraine in the
fi eld of combating terrorism,
fi nancing of
actions by entities
fi ghting terrorism, anti-terrorist operations, implementation of
measures to prevent, detect and stop terrorist activities; forming and maintaining a list
of terrorist organizations and groups; national coordination of the implementation of
UN Security Council resolutions on combating international terrorism; interaction
with special services, law enforcement agencies of foreign countries and international
organizations on issues of combating terrorism and exchange of available information
about passengers of international
fl ights.
Results. Taking into account international experience, guided by the requirements
of the principle of the rule of law and the principle of legality, based on the analysis of
the current legislation of Ukraine, it can be concluded that the most optimal model of
the implementation of the function of collecting information about passengers of all
types of transport for the purpose of countering international terrorism, prevention,
detection, investigation of criminal off enses , committed with terrorist intent, other
serious and especially serious crimes, as well as preventing the movement of persons
who may pose a threat to the national security of Ukraine, including API/PNR, it
depends on the ATC at the SBU. Therefore, the national authorized body for processing
information about passengers should become the ATC under the SBU.
Key words: passenger information (API), passenger registration records (PNR),
combating international terrorism, SBU, ATC under the SBU, DPS Administration of
Ukraine, model for implementing the function of collecting information about
passengers. 

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