testimony and statement for the record of amie stepanovich association litigation counsel ...

7/29/2019 Testimony and Statement for the Record of Amie Stepanovich Association Litigation Counsel Electronic Privacy Inf

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TestimonyandStatementfortheRecordof

AmieStepanovich

AssociationLitigationCounselElectronicPrivacyInformationCenter

HearingonUsingUnmannedAerialSystemsWithintheHomeland:SecurityGameChanger?

Beforethe

SubcommitteeonOversight,Investigations,andManagement

oftheU.S.HouseofRepresentatives,

CommitteeonHomelandSecurity

July19,2012311CannonHouseOfficeBuilding

Washington,D.C.


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EPICTestimony 3 July19,2012AerialSurveillanceandPrivacy CommitteeonHomelandSecurity

thatwillcarryfacialrecognitiontechnology,abletoremotelyidentifyindividualsinparks,schools,andatpoliticalgatherings.8

InareportondronespublishedbyEPICin2005,weobserved,theuseof[drones]

givesthefederalgovernmentanewcapabilitytomonitorcitizensclandestinely,whilethe

effectivenessofthesurveillanceplanesinborderpatroloperationshasnotbeenproved.9

Today,dronesgreatlyincreasethecapacityfordomesticsurveillance.

Muchofthissurveillancetechnologycould,intheory,bedeployedinmanned

vehicles.However,dronespresentauniquethreattoprivacy.Dronesaredesignedtoundertakeconstant,persistentsurveillancetoadegreethatformermethodsofsurveillancewereunabletoachieve.Dronesarecheapertobuy,maintain,andoperatethanhelicopters,orotherformsofaerialsurveillance.10Dronemanufacturershaverecentlyannouncednewdesignsthatwouldallowdronestooperateformorethan48consecutivehours,11andothertechnologycouldextendtheflighttimeoffuturedronesoutintoweeksandmonths.12Also,byvirtueoftheirdesign,size,andhowhightheycanfly,[drones]canoperate

undetectedinurbanandruralenvironments.13

TheabilitytolinkfacialrecognitioncapabilitiesondronesoperatedbytheDepartmentofHomelandSecurity(DHS)totheFederalBureauofInvestigationsNextGenerationIdentificationdatabaseorDHSIDENTdatabase,twoofthelargestcollectionsofbiometricdataintheworld,exacerbatestheprivacyrisks.14Dronescouldbedeployedtomonitorindividualsinawaythatwasnotpossiblepreviously.

8ClayDillow,ArmyDevelopingDronesthatCanRecognizeYourFaceFromaDistance,PopSci(Sept.28,2011,4:01PM),http://www.popsci.com/technology/article/2011-09/army-wants-drones-can-recognize-your-

face-and-read-your-mind.9SpotlightonSurveillance:UnmannedPlanesOfferNewOpportunitiesforClandestineGovernmentTracking(August2005),EPIC,http://epic.org/privacy/surveillance/spotlight/0805/(lastvisitedJuly16,2012).10NickWingfieldandSominiSengupta,DronesSetSightsonU.S.Skies ,NYTimes(Feb.17,2012),availableathttp://www.nytimes.com/2012/02/18/technology/drones-with-an-eye-on-the-public-cleared-to-fly.html?pagewanted=all;http://www.wired.com/autopia/2012/05/drone-auto-vids/;SabrinaHall,ShelbyCountySheriffsDepartmentWantsDrones ,WREG(May3,2012),availableathttp://wreg.com/2012/05/03/shelby-county-sheriffs-department-wants-drones/.Dronescanrunfrom$300forthemostbasicdrone,abletorecordandtransmitvideo,to$18millionforaGeneralAtomicsPredatorBdrone,themodelownedbytheUnitedStatesBureauofCustomsandBorderProtection.SeeParrotAR.Drone2.0,Apple,http://store.apple.com/us/product/H8859ZM/A(lastvisitedJuly16,2012);OfficeoftheInspectorGen.,DeptHomelandSecurity, OIG-12-85,CBPsUseofUnmannedAircraftSystemsintheNationsBorderSecurity(May2012),availableathttp://www.oig.dhs.gov/assets/Mgmt/2012/OIG_12-85_May12.pdf

[hereinafterDHSOIGReport]at2.11MarkBrown,LockheedUsesGround-BasedLasertoRechargeDroneMid-Flight(July12,2012),availableathttp://www.wired.co.uk/news/archive/2012-07/12/lockheed-lasers.12StevenAftergood,SecretDroneTechnologyBarredbyPoliticalConditions(Mar.22,2012),availableathttp://www.fas.org/blog/secrecy/2012/03/sandia_drone.html.13JenniferLynch,AreDronesWatchingYou?,ElectronicFrontierFoundation(Jan.10,2012),availableathttps://www.eff.org/deeplinks/2012/01/drones-are-watching-you.14SeeNextGenerationIdentification ,FederalBureauofInvestigation,http://www.fbi.gov/about-us/cjis/fingerprints_biometrics/ngi/ngi2/(lastvisitedJuly16,2012);PrivacyImpactAssessment,


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Sensitiveinformationcollectedbydronesisparticularlyvulnerabletounlawful

access.Incommentsaddressingtheissueofdronetestsitelocations,EPICobserved,dronehacking,ortheprocessofremotelyinterceptingandcompromisingdroneoperations,posesathreattothesecurityoflawfuldroneoperations.15Recentexamples

havehighlightedtheeasewithwhichdronesmaybehacked.TheUniversityofTexaswasabletouseGPSsignalsinordertogainfullcontrolofadrone.16TheresearchersindicatedthatthemethodcouldbeuseonanydroneoperatedoverthecivilianGPSband,whichincludethemajorityofdronesintheUnitedStates.17Hackersarealsoabletointerceptvideoandaudiofeeds,aswellasotherinformationcollectedandtransmittedbysurveillancedrones.18 WithinDHS,theBureauofCustomsandBorderProtection(CBP)istheprimaryoperatorofunmannedaerialdrones.CBPoperatestendronesintheUnitedStates,includingthePredatorBanditsmaritimevarianttheGuardian,atacostperunitofabout$18millioneach.19By2016,CBPplanstooperatetwenty-fourdrones,withtheabilityto

deployoneanywhereinthecontinentalUnitedStateswithinthreehours.20 ButthereareproblemswiththeCBPprogram.AccordingtoarecentreportoftheDHSInspectorGeneral,CBPneedstoimproveplanningofitsunmannedaircraftsystemsprogramtoaddressitslevelofoperation,programfunding,andresourcerequirements,alongwithstakeholderneeds.21TheInspectorGeneralassessedCBPspracticeofmakingthedronesavailableforusebyotherfederalandstateagencies,includingtheBureauofLandManagement,theDepartmentofDefense,theFederalBureauofInvestigation,theTexasRangers,theUnitedStatesForestService,theNationalOceanicandAtmosphericAdministration,theOfficeofBorderPatrol,theUnitedStatesSecretService,theImmigrationsandCustomsEnforcement,theFederalAgencyManagementAgency,and

localLawEnforcementAgencies.22TheInspectorGeneralconcludedthatallpurchasesofnewdronesshouldbe

suspendeduntilCBPdevelopsaplanthataddressesnecessaryoperations,maintenance,

DepartmentofHomelandSecurity,AutomatedBiometricIdentificationSystem(IDENT)(July31,2006),http://www.dhs.gov/xlibrary/assets/privacy/privacy_pia_usvisit_ident_final.pdf.15CommentsofEPICtotheFAAre:RequestforCommentsonUnmannedAircraftSystemTestSites(May8,2012),availableathttp://epic.org/privacy/drones/EPIC-FAA-2012-0252.pdf.16AlexFitzpatrick,ResearchersProveDronesCanBeHacked,Mashable(June29,2012),availableathttp://mashable.com/2012/06/29/drone-hacking/.17Id.18SiobhanGorman,YochiDreazen,andAugustCole,InsurgentsHackU.S.Drones ,WallSt.J.(Dec.17,2009),availableathttp://online.wsj.com/article/SB126102247889095011.html.19SeeDHSOIGReport,supranote11at2.20WilliamBooth,MorePredatorDronesFlyU.S.-MexicoBorder,WASH.POST(Dec.21,2011),availableathttp://www.washingtonpost.com/world/more-predator-drones-fly-us-mexico-border/2011/12/01/gIQANSZz80_story.html.21SeeDHSOIGReport,supranote11at1.22Id.at6-7.


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andequipment.23Regardingprivacyconcerns,theDHSInspectorGeneralsaidthatastandardizedprocesswasneededtorequestCBPdronesfornon-CBPpurposes,inordertoprovidetransparency.24

II. CurrentPrivacySafeguardsareInadequate

CurrentregulationspermitcivilorganizationstooperateadronewithintheUnitedStatesonlypursuanttoaspecialexperimentaldesignation.25However,governmentoperatorsofdronesdonothaveasimilarrestriction.26RecentpolicychangesattheFAA,theadministrativeagencyinchargeoflicensingbothgovernmentalandnon-governmentaldronestooperateintheNationalAirspace,aredesignedtostreamlinetheprocessbywhichgovernmentagencies,includinglawenforcement,receivedronelicenses.27

TheCBPcurrentlyoperatesdroneswithfewregulationsconcerningprivacy.No

currentlegislationlimitsthevisualsurveillancethataDHSdronemayengagein.AndwhilethePrivacyActof1974expresslyprescribesthecircumstancesunderwhichagenciescan

retainpersonallyidentifiableinformation,theAgencymaystillexemptitselffromthePrivacyActprovisionsthatlimitthecollectionanduseofpersonalinformation.28DHShasnotsoughtpubliccommentonorpublishedanyspecificrulesorguidelinesthatrestrictthesurveillancepracticesofitsdroneprogram.Also,despiterecentreleasesofrecords,theFAAsprocessfortheapplicationforandapprovalofadronelicensearestillmostlyopaque,preventinganytransparencyoraccountabilityforoperators.29

Therearesubstantiallegalandconstitutionalissuesinvolvedinthedeploymentof

aerialdronesbyfederalagenciesthatneedtobeaddressed.And,aswehavenoted,nolegislationcurrentlyprovidesadequatesafeguardstoprotectprivacyrightsagainsttheincreaseduseofdronesintheUnitedStates.

23Id.at824Id.at7.25SeeFactSheet,FAA,UnmannedAircraftSystems(UAS)(Dec.1,2010),availableathttp://www.faa.gov/news/fact_sheets/news_story.cfm?newsid=6287(ASpecialAirworthinessCertificateintheExperimentalCategoryistheonlycertificationavailabletociviloperatorsofUAS.).26SeeId.(TheCOAprocessisavailabletopublicentities,suchasgovernmentagencies(includinglocallawenforcementandstateuniversities),whowanttoflyaUASincivilairspace.).27SeeFAAMakesProgresswithUASIntegration ,FederalAviationAdministration,(May14,2012,3:09PM)

http://www.faa.gov/news/updates/?newsId=68004(TheFAAhasbeenworkingwithitsgovernmentpartnerstostreamlineCOAproceduresaspartoftheefforttoensure[drones]aresafelyintegratedintothe[nationalairspacesystem].).28Seee.g.5U.S.C.552a(j)(allowingagenciestoexemptthemselvesfrommaintenancerequirementspursuanttolawenforcementreasons).29SeeFAAReleasesListsofDroneCertificatesManyQuestionsLeftUnanswered,ElectronicFrontierFoundation,(Apr.19,2012)https://www.eff.org/deeplinks/2012/04/faa-releases-its-list-drone-certificates-leaves-many-questions-unanswered(listinginformationabouttheFAAsdroneauthorizationprocessthatremainsunknown).


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Asdronetechnologybecomescheaperandmoreproliferate,thethreattoprivacywillbecomemoresubstantial.High-risebuildings,securityfences,oreventhewallsofabuildingarenotbarrierstoincreasinglycommondronetechnology.

TheSupremeCourtisawareofthegrowingriskstoprivacyresultingfromnew

surveillancetechnologybuthasyettoaddressthespecificproblemsassociatedwithdronesurveillance.InUnitedStatesv.Jones,acasethataddressedwhetherthepolicecoulduseaGPSdevicetotrackthemovementofacriminalsuspectwithoutawarrant,theCourtfoundthattheinstallationanddeploymentofthedevicewasanunlawfulsearchandseizure.30JusticeSotomayorinaconcurrencepointedtobroaderproblemsassociatedwithnewformsofpersistentsurveillance.31AndJusticeAlito,inaseparateconcurrencejoinedbythreeotherJustices,wrote,incircumstancesinvolvingdramatictechnologicalchange,thebestsolutiontoprivacyconcernsmaybelegislative.32

Asyouhaveindicated,MisterChairman,theprivacyandsecurityconcernsarisingfromtheuseofdronesneedstobeaddressed.33SeveralofyourcolleaguesintheHouseof

Representativeshavemadeeffortstoaddresssomeoftheprivacythreatsofdrones,andwesupporttheseinitiatives.

AnamendmenttotheNationalDefenseAuthorizationActof2013,introducedby

CongressmanJeffLandry(R-LA)andpassedbytheHouse,wouldprohibitinformationcollectedbydronesoperatedbytheDepartmentofDefensefrombeingusedincourtasevidenceifawarrantwasnotobtained.34InJune,HouseRepresentativeAustinScott(R-FL)introducedlegislationtoexpandthisprotection,requiringalllawenforcementtofirstobtainawarrantbeforeconductinganycriminalsurveillance.35Also,CongressmanMarkey(D-MA)andCongressmanBarton(R-TX)sentalettertotheFAAraisingconcernsabouttheincreaseduseofDronesintheUnitedStates,noting,thereis...potentialfordrone

30UnitedStatesv.Jones,132S.Ct.945,949(2012).SeealsoU.S.v.Jones,EPIC,http://epic.org/amicus/jones/.31Id.at954-57.32Id.at964.33PressRelease,UnitedStatesHouseofRepresentativesCommitteeonHomelandSecurity,ALookAhead:HouseCommitteeonHomelandSecurity(July13,2012),availableathttp://homeland.house.gov/press-release/look-ahead-house-committee-homeland-security-34(However,noFederalagencyistakingresponsibilityforcreatingcomprehensivepoliciesandregulationsconcerningtheuseofthesesystemsdomestically.Additionally,vulnerabilitiestodronehackersexist,asrecentlydemonstratedbyresearchersat

theUniversityofTexas,raisingconcernsthesevehiclescouldbecommandeeredbyterroristsorotherswithillintent.).34SeeH.R.4310,112thCong.1084(2012),availableathttp://www.gpo.gov/fdsys/pkg/BILLS-112hr4310rfs/pdf/BILLS-112hr4310rfs.pdf;seealsoPeteKasperowicz,HouseApproves20enblocAmendmentstoDefenseReauthorization,IncludingSatelliteLanguage,theHill(May17,2012),availableathttp://thehill.com/blogs/floor-action/house/228147-ndaa-update-1-house-approves-20-en-bloc-amendments-including-satellite-language.35PreservingFreedomfromUnwarrantedSurveillanceActof2012,H.R.5925,112thCong.(2012),availableathttp://thomas.loc.gov/cgi-bin/query/z?c112:H.R.5925:.


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technologytoenableinvasiveandpervasivesurveillancewithoutadequateprivacyprotections.36

However,thesemeasuresarenotsufficienttoprotectthemyriadofprivacyinterestsimplicatedbyincreaseddroneuse.

III.EPICHasUrgedtheAdministrativeActiontoAddressDroneUse

TheFAAhasbeendirectedbyCongresstodevelopedregulationsinordertopermit

morewidespreaddeploymentofdronesintheUnitedStates.37Theforthcomingregulationswilladdresslicensingandproceduresforbothpublicandprivatedroneoperators,includingDHSandCBP.Experts,includingProfessorRyanCalo,theformerDirectorofPrivacyandRoboticsattheCenterforInternetandSocietyatStanfordLawSchool,havenotedthatthiseffortwillhavesignificantprivacyimplications..38

Earlierthisyear,inaformalpetitiontotheagency,EPICurgedtheFAAtoconducta

privacyrulemakingontheuseofdrones,withtheaimofcreatingregulationstoensurebaselineprivacyprotections.39EPICspetitionwasjoinedbymorethanonehundredorganizations,experts,andmembersofthepublicwhoalsobelievethatdronesshouldnotbemorewidelydeployeduntilprivacysafeguardsareestablished.40 TheFAAhasthusfarfailedtorespondtoEPICsrequestforagencyaction.TheFAAsfailuretoactmeansthatthereisnoframeworkinplacethatensuresthatcivilianoperatorsandfederalagencies,suchasDHS,utilizedronetechnologyinaprivacy-protectivemanner.TotheextentthatDHS,aswellasotheragencies,choosestooperatedroneswithintheUnitedStates,webelievethattheDHSshouldalsodevelopappropriateregulationstosafeguardprivacy.

Specifically,theDepartmentofHomelandSecuritymustutilizeitsPrivacyOffice,oneofthemostrobust,well-fundedPrivacyOfficesinthefederalgovernment.ThePrivacyOfficeatDHSconducts[PrivacyImpactAssessments]ontechnologies,rulemakings,

36LetterfromCongressmenEdwardJ.MarkeyandJoeBartontoMichaelHuerta,ActingFederalAviationAdministrationAdministrator(Apr.19,2012)availableathttp://markey.house.gov/sites/markey.house.gov/files/documents/4-19-12.Letter%20FAA%20Drones%20.pdf.37SeeFAAModernizationandReformActof2012,Pub.L.112-95324(c)(1)(2012),availableat

http://thomas.loc.gov/cgi-bin/query/z?c112:H.R.658:.38See,M.RyanCalo,TheDroneasaPrivacyCatalyst,64Stan.L.Rev.Online29(2011),availableathttp://www.stanfordlawreview.org/online/drone-privacy-catalyst;seealsoRyanCaloandJohnVillasenor,TenMythsAboutDrones ,HuffingtonPost(May22,2012),http://www.huffingtonpost.com/ryan-calo/drones-myths_b_1537040.html;DronesOverAmerica:WhatCanTheySee,NPR(Mar.12,2012),availableathttp://www.npr.org/2012/03/12/148293470/drones-over-america-what-can-they-see.39PetitionfromEPIC,etal.,toMichaelP.Huerta,ActingAdministrator,FAA(Feb.24,2012),availableathttp://epic.org/privacy/drones/FAA-553e-Petition-03-08-12.pdf[hereinafterEPICPetitiontoFAA].40Id.


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programs,andactivities...toensurethatprivacyconsiderationsandprotectionsareincorporatedintoallactivitiesoftheDepartment.41

However,despiteaDHScomponentoperatingoneofthelargest,anddefinitelythemostwellpublicizeddronefleetintheUnitedStatesforthepastsevenyears,aPrivacyImpact

Assessmenthasneverbeenconductedontheprivacyimpactofdronesurveillance.Ataminimum,webelievethatiftheCPBplanstocontinuethedroneprogram,theDHSprivacyofficemustassesstheprivacyimpactoftheprogramandpublishareportforpublicreview.

IV.CongressShouldEstablishSafeguardsRelatedtotheUseofDrones

Thereareseveralstrategiestoprovidemeaningfulprivacyprotectionsthataddresstheincreaseduseofdronesinourdomesticskies.First,Congressshouldpasstargetedlegislation,basedonprinciplesoftransparencyandaccountability.AfirststepwouldbetheconsiderationandpassageofCongressmanScottsbilltolimittheuseofdronesurveillanceincriminalinvestigationswithoutawarrant.

Stateandlocalgovernmentshavealsoconsideredlawsandregulationstofurther

preventabusesofdronetechnology.42Theseproposalswouldserveasagoodbasisforfederallegislation.Dronelegislationshouldinclude:

UseLimitationsProhibitionsongeneralsurveillancethatlimitdronesurveillancetospecific,enumeratedcircumstances,suchasinthecaseofcriminalsurveillancesubjecttoawarrant,ageographically-confinedemergency,orforreasonablenon-lawenforcementusewhereprivacywillnotbesubstantiallyaffected;

DataRetentionLimitationsProhibitionsonretainingorsharingsurveillancedatacollectedbydrones,withemphasisonidentifiableimagesofindividuals;

TransparencyRequiringnoticeofdronesurveillanceoperationstotheextentpossiblewhileallowinglawenforcementtoconducteffectiveinvestigations.Inaddition,requiringnoticeofalldronesurveillancepoliciesthroughtheAdministrativeProcedureAct.

Thesethreeprincipleswouldhelpprotecttheprivacyinterestsofindividuals.Inaddition,thelawshouldprovideforaccountability,includingthirdpartyauditsandoversightforfederallyoperateddronesandaprivaterightofactionagainstprivateentitiesthatviolatestatutoryprivacyrights.

41GuidetoImplementingPrivacy,DepartmentofHomelandSecurity(June2010),http://www.dhs.gov/xlibrary/assets/privacy/dhsprivacyoffice-guidetoimplementingprivacy.pdfat1442See,e.g.,ErikaNeddenien,ACLUTeamswithLawmakertoPushRegulationofUnmannedDronesinVA,WTVR(July12,2012http://wtvr.com/2012/07/12/aclu-working-with-lawmaker-to-push-regulation-of-unmanned-drones-in-va/(lastvisitedJuly16,2012);PressRelease,SeattleCityCouncil,SeattleCityCouncilCommitteetoDiscussDronesinSeattleandtheIssuestheyPresent(May1,2012),availableathttp://council.seattle.gov/2012/05/01/seattle-city-council-committee-to-discuss-drones-in-seattle-and-the-issues-they-present/.


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Second,Congressshouldacttoexpresslyrequirefederalagenciesthatchoosetooperatedrones,suchasDHSanditscomponents,toimplementregulations,subjecttopublicnoticeandcomment,thataddresstheprivacyimplicationsofdroneuse.Recently,inEPICv.DHS,theD.C.CircuitCourtofAppealsruledthattheDepartmentofHomelandSecurityviolatedtheAdministrativeProcedureActwhenitchosetodeploybodyscanners

astheprimaryscreeningtechniqueinU.S.airportswithouttheopportunityforpubliccomment.43TheCourtobservedthattherewasnojustificationforhavingfailedtoconductanotice-and-commentrulemaking.44Webelievethatthepublichasasimilarrighttocommentonnewsurveillancetechniques,suchasunmannedaerialvehicles,undertakenbyfederalagencieswithintheUnitedStates.

Finally,Congressmustclarifythecircumstancesunderwhichthedronespurchased

bytheCBPinpursuitofitsmissionmaybedeployedbyotheragenciesforotherpurposes.Thefailuretomakeclearthecircumstanceswhenfederalandstateagenciesmaydeploydronesforaerialsurveillancehasalreadyraisedsignificantconcernsabouttheagencysprogram.45

V. Conclusion

TheincreaseduseofdronestoconductsurveillanceintheUnitedStatesmustbe

accompaniedbyincreasedprivacyprotections.Werecognizethatdronetechnologyhasthepotentialtobeusedinpositiveways.Forexample,dronesmaybeusedtomonitorforenvironmentalabuse,preventthespreadofforestfires,andassistintherescueofindividualsindangeroussituations.46

However,thecurrentstateofthelawisinsufficienttoaddressthedrone

surveillancethreat.EPICsupportslegislationaimedatstrengtheningsafeguardsrelatedto

theuseofdronesassurveillancetoolsandallowingforredressfordroneoperatorswhofailtocomplywiththemandatedstandardsofprotection.WealsosupportcompliancewiththeAdministrativeProcedureActforthedeploymentofdronetechnologyandlimitationsforfederalagenciesandotherorganizationsthatinitiallyobtainadroneforonepurposeandthenwishtoexpandthatpurpose.

43SeeEPICv.DHS,653F.3d1(D.C.Cir.2011).44Id.at8.45SeeJasonKoebler,FirstManArrestedwithDroneEvidenceVowstoFightCase ,USNews(Apr.9,2012),availableathttp://www.usnews.com/news/articles/2012/04/09/first-man-arrested-with-drone-evidence-

vows-to-fight-case.46See,e.g.,TimWall,FlyingDronesFightFires,DiscoveryNews(Nov.10,2011),availableathttp://news.discovery.com/earth/flying-drones-fight-fires-111110.html;MeghanKeneally,DronePlaneSpotsaRiverofBloodFlowingFromtheBackofaDallasMeatPackingPlant,DailyMailOnline(Jan.24,2012),availableathttp://www.dailymail.co.uk/news/article-2091159/A-drone-plane-spots-river-blood-flowing-Dallas-meat-packing-plant.html;SeanHolstege,DronesGoodFliesHandinHandwithBad,ExpertsFear,AZCentral(July7,2012),availableathttp://www.azcentral.com/12news/news/articles/2012/07/07/20120707arizona-unmanned-drones-concerns.html.


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Thankyoufortheopportunitytotestifytoday.Iwillbepleasedtoansweryourquestions.

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