Under the Maritime Transportation Security Act of 2002 (“MTSA”), 46 U.S.C. §§ 70101-70119, the Secretary of Homeland Security enacted regulations via the Coast Guard governing searching of cargo and vehicles on ferry boats. A search of a car on a ferry crossing Lake Champlain from NY to VT was reasonable. Cassidy v. Chertoff, 471 F.3d 67 (2d Cir. November 29, 2006) (link; case 05-1835):
Based on this [vulnerability] assessment, the Coast Guard determined that certain maritime vessels, including those that weigh more than 100 gross register tons or are licensed to carry more than 150 passengers “are at a high risk of a transportation security incident.” Id. at 39,246; see also 33 C.F.R. § 104.105(a) (codifying the Coast Guard’s above determination). Under the MTSA implementing regulations, vessels that fall into the high-risk category are required to adopt certain security measures to “[d]eter the unauthorized introduction of dangerous substances and devices, including any device intended to damage or destroy persons, vessels, facilities, or ports.” 33 C.F.R. § 104.265(a)(1). To determine what security measures are required for such high-risk vessels, a vessel owner must prepare a Vessel Security Assessment (“VSA”), which is “an analysis that examines and evaluates the vessel and its operations taking into account possible threats, vulnerabilities, consequences, and existing protective measures, procedures and operations,” id. § 101.105, by collecting specified background information and carrying out an onsite survey of the vessel to check existing protective measures, procedures, and operations for a variety of factors. Id. § 104.305(a)-(b). When complete, the VSA is used by the vehicle’s owner or operator to devise a Vessel Security Plan (“VSP”), which is a “plan developed to ensure the application of security measures designed to protect the vessel and the facility that the vessel is servicing or interacting with.” Id. § 101.105. The VSP must be submitted to the Coast Guard for review and approval. Id. § 104.410. Owners of a vessel operating under a VSP must “[s]creen persons, baggage (including carry-on items), personal effects, and vehicles for dangerous substances and devices at the rate specified in the approved Vessel Security Plan.” Id. § 104.265(e)(1). Owners must also “[c]heck the identification of any person seeking to board the vessel.” Id. § 104.265(e)(3).
Owners and operators of high-risk vessels are permitted a certain measure of flexibility within this general framework. They may opt out of “identification checks and passenger screening requirements.” Id. § 104.292(b). In place of these search requirements, vessel owners “may ensure security measures are implemented that include”:
(1) Searching selected areas prior to embarking passengers and prior to sailing; and
(2) Implementing one or more of the following:
(i) Performing routine security patrols;
(ii) Providing additional closed-circuit television to monitor passenger areas; or
(iii) Securing all non-passenger areas.
The court held that the privacy interests of the passengers on a boat were governed by the Fourth Amendment and not lessened by the mode of travel (boat v. airplane):
Finally, we are not convinced by the government’s argument that our airport search cases alter the privacy interest calculus here. In United States v. Edwards, we upheld pre-boarding, suspicionless searches of airline passengers, holding that to brand them “as unreasonable would go beyond any fair interpretation of the Fourth Amendment.” 498 F.2d at 500. But airplanes are very different creatures from the more quotidian commuting methods at issue in MacWade and the instant case, and society has long accepted a heightened level of security and privacy intrusion with regard to air travel. Moreover, Edwards did not specifically determine or discuss the privacy interest involved, and we are wary of extending its analysis to a markedly different factual context.
. . .
Because an undiminished privacy interest is not itself dispositive in special needs cases but is merely one among three factors to be weighed, MacWade, 460 F.3d at 272, we must next examine the screening at issue and determine whether searches, which consist of random visual inspections by ferry attendants of vehicles’ trunks as well as the carry-on baggage of bicyclists and pedestrians, are minimally or substantially intrusive. In making this examination, courts have looked to various factors, including, inter alia, the duration of the search or stop, see Lidster, 540 U.S. at 427; Sitz, 496 U.S. at 451-52; Martinez-Fuerte, 428 U.S. at 546-47, 558, the manner in which government agents determine which individuals to search, see Lidster, 540 U.S. at 428, Martinez-Fuerte, 428 U.S. at 559, the notice given to individuals that they are subject to search and the opportunity to avoid the search by exiting the premises, see MacWade, 460 F.3d at 273; Edwards, 498 F.2d at 500, as well as the methods employed in the search, see Sitz, 496 U.S. at 451; Martinez-Fuerte, 428 U.S. at 558.
On the basis of these factors, it is clear that the searches in this case are, by any measure, minimally intrusive. As recounted by plaintiffs, the duration of the stops or searches have been “cursory” and of the short duration which the Supreme Court has long held to be minimally intrusive. Lidster, 540 U.S. at 427 (upholding brief stops of vehicles at checkpoint and questioning of drivers); Sitz, 496 U.S. at 451 (same); Martinez-Fuerte, 428 U.S. at 546-47, 558 (same). Plaintiffs have not alleged that the government has given unbridled discretion to LCT employees to carry out searches in a discriminatory or arbitrary manner. Lidster, 540 U.S. at 428 (“[T]here is no allegation here that the police acted in a discriminatory or otherwise unlawful manner while questioning motorists during stops.”); Martinez-Fuerte, 428 U.S. at 559 (discussing the intrusiveness of roving patrols that presented “a grave danger [of] unreviewable discretion,” but finding that a fixed checkpoint greatly reduced the possibility of abuse). Other factors similarly weigh in the government’s favor in this inquiry. For instance, the methods used to conduct the searches at issue are limited to visual inspections of vehicles and their trunks and brief examinations of the contents of carry-on baggage. See Sitz, 496 U.S. at 451 (brief visual inspections); Martinez-Fuerte, 428 U.S. at 558 (same); Edwards, 498 F.2d at 500 (brief examination of contents of carry-on luggage). Ample notice is given to individuals seeking to board LCT ferries that are subject to search and that they may avoid the search by exiting the premises. See MacWade, 460 F.3d at 273 (“[P]assengers receive notice of the searches and may decline to be searched so long as they leave the subway. . . .”); Edwards, 498 F.2d at 499-500 (finding notice central to upholding the constitutionality of airport searches where large signs had been posted near the boarding gates warning: “PASSENGERS AND BAGGAGE SUBJECT TO SEARCH”). Such notice helps “reduc[e] to a minimum any unsettling show of authority that may be associated with unexpected intrusions on privacy.” Von Raab, 489 U.S. at 672 n.2 (internal citation and quotation marks omitted); see also Edwards, 498 F.2d at 501 (“The point is . . . that in order to bring itself within the test of reasonableness applicable to airport searches, the Government must give the citizen fair warning, before he enters the area of search, that he is at liberty to proceed no further.”). Notice also serves to eliminate any stigma associated with the search. Id. at 500 (“The search of carry-on baggage, applied to everyone, involves not the slightest stigma. More than a million Americans subject themselves to it daily. . . .”) (internal citation omitted).
The court also engaged in a fascinating discussion of the balancing of special needs, discussing: (1) the special needs doctrine does not require a “well-defined target class”; (2) the government has demonstrated a “special need” in this situation; (3) the government’s determinations of “high risk” vessels are entitled to deference; and (4) the relevance of the efficacy of the searches.
