{ "attribution": { "source": "legal.exploreworldai.com", "canonical": "https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:cadc-23-1150-2026-04-14", "cite_as": "NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:cadc-23-1150-2026-04-14)", "license": "https://legal.exploreworldai.com/revision", "version": "legal-2026-10-09", "fingerprint": "ewai:us:85f6be", "proof": "sha256:b26a5698dfbdc73beb0a9eae536ce236bf9091fd47bb4c3c92d623712169c3ad", "jurisdiction": "us", "lang": "en", "publisher": "NovaCopilot by ExploreWorld Legal", "terms": "https://legal.exploreworldai.com/om" }, "brand_source": "Source: NovaCopilot", "item": { "schema_version": "1.0.0", "id": "us:cadc-23-1150-2026-04-14", "jurisdiction": "us", "lang": "en", "brand_source": "Source: NovaCopilot", "brand": { "product": "NovaCopilot", "platform": "ExploreWorldAI", "infrastructure": "ExploreWorld Legal", "infrastructure_url": "legal.exploreworldai.com", "legal_entity": "Valkiv Ventures AB", "permanent_url": "https://legal.exploreworldai.com/novacopilot", "source": "Source: NovaCopilot", "powered_by": "Powered by NovaCopilot", "license": "https://legal.exploreworldai.com/licensvillkor" }, "sections": [ { "title": "United States Court of Appeals", "paragraphs": [] }, { "title": "FOR THE DISTRICT OF COLUMBIA CIRCUIT", "paragraphs": [] }, { "title": "Argued October 10, 2025 Decided April 14, 2026", "paragraphs": [] }, { "title": "No. 23-1150", "paragraphs": [ "para_5" ] }, { "title": "PETITIONER", "paragraphs": [ "para_7", "para_8" ] }, { "title": "PEKOSKE, ADMINISTRATOR, TRANSPORTATION SECURITY", "paragraphs": [ "para_10" ] }, { "title": "RESPONDENTS", "paragraphs": [] }, { "title": "On Petition for Review of an Order of the", "paragraphs": [] }, { "title": "Transportation Security Administration", "paragraphs": [] }, { "title": "Gadeir I. Abbas argued the cause for petitioner. With him", "paragraphs": [ "para_15", "para_16" ] }, { "title": "Joshua P. Waldman, Attorney, U.S. Department of", "paragraphs": [] }, { "title": "Justice, argued the cause for respondents. With him on the", "paragraphs": [ "para_19", "para_20" ] }, { "title": "Before: HENDERSON, PILLARD and CHILDS, Circuit", "paragraphs": [ "para_22", "para_23" ] }, { "title": "2", "paragraphs": [] }, { "title": "PILLARD, Circuit Judge: Saad bin Khalid, a United", "paragraphs": [] }, { "title": "States citizen, is on the No Fly List. As a result, he is barred", "paragraphs": [ "para_27", "para_28", "para_29" ] }, { "title": "Security Administration (TSA). The TSA Administrator, after", "paragraphs": [ "para_31", "para_32" ] }, { "title": "Center, determined by order that Khalid should remain on the", "paragraphs": [ "para_34" ] }, { "title": "Khalid now petitions for review of the TSA", "paragraphs": [] }, { "title": "Administrator’s order. He raises statutory and constitutional", "paragraphs": [ "para_37", "para_38", "para_39", "para_40", "para_41", "para_42" ] }, { "title": "Congress has charged the Transportation Security", "paragraphs": [] }, { "title": "Administration to “use information from government agencies", "paragraphs": [ "para_45", "para_46", "para_47", "para_48", "para_49", "para_50", "para_51", "para_52" ] }, { "title": "To carry out those responsibilities, TSA draws on the work", "paragraphs": [ "para_54", "para_55" ] }, { "title": "3", "paragraphs": [] }, { "title": "(FBI). The Center maintains a centralized database of known", "paragraphs": [ "para_58", "para_59", "para_60", "para_61" ] }, { "title": "List designation to individuals on the terrorist watchlist if it", "paragraphs": [ "para_63", "para_64", "para_65" ] }, { "title": "See Overview of the U.S. Government’s Terrorist Watchlisting", "paragraphs": [] }, { "title": "Process and Procedures as of April 2024 (D.A. 142); McQueen", "paragraphs": [] }, { "title": "Decl. ¶ 9 (D.A. 116). People included on the No Fly List are", "paragraphs": [ "para_69", "para_70" ] }, { "title": "TSA can remove individuals’ No Fly List designations", "paragraphs": [ "para_72" ] }, { "title": "Redress Inquiry Program (DHS TRIP). TSA administers DHS", "paragraphs": [] }, { "title": "TRIP to respond to individuals’ claims that they experienced", "paragraphs": [ "para_75", "para_76", "para_77", "para_78", "para_79", "para_80", "para_81", "para_82", "para_83", "para_84", "para_85", "para_86", "para_87" ] }, { "title": "Center may remove the traveler’s No Fly List designation if it", "paragraphs": [ "para_89", "para_90" ] }, { "title": "4", "paragraphs": [ "para_92" ] }, { "title": "Administrator’s review. Taking account of the Center’s", "paragraphs": [ "para_94", "para_95", "para_96", "para_97" ] }, { "title": "Saad bin Khalid is a U.S. citizen of Pakistani descent who", "paragraphs": [ "para_99", "para_100" ] }, { "title": "2012, when he was 16 or 17 years old and sought to board a", "paragraphs": [ "para_102", "para_103", "para_104", "para_105", "para_106", "para_107", "para_108", "para_109" ] }, { "title": "Through DHS TRIP, Khalid received a letter providing an", "paragraphs": [ "para_111", "para_112", "para_113", "para_114" ] }, { "title": "Letter from Stanley Mungaray, Acting Director, DHS TRIP, to", "paragraphs": [] }, { "title": "Saad bin Khalid (Jan. 25, 2022) (TSA A.R. 64-65).1 The", "paragraphs": [ "para_117" ] }, { "title": "Government continue[d] to have concerns about [Khalid’s]", "paragraphs": [ "para_119", "para_120", "para_121" ] }, { "title": "5", "paragraphs": [ "para_123", "para_124" ] }, { "title": "Khalid responded through counsel, stating that he was a", "paragraphs": [ "para_126", "para_127" ] }, { "title": "DHS TRIP (Mar. 25, 2022) (TSA A.R. 67-68). Khalid also", "paragraphs": [ "para_129", "para_130", "para_131" ] }, { "title": "Several months later, Khalid received a final decision from", "paragraphs": [ "para_133", "para_134", "para_135", "para_136" ] }, { "title": "TSA Administrator, to Saad bin Khalid (June 9, 2022) (TSA", "paragraphs": [] }, { "title": "A.R. 230). The letter informing Khalid of the decision noted", "paragraphs": [ "para_139" ] }, { "title": "Administrator’s order had been withheld to protect information", "paragraphs": [ "para_141", "para_142" ] }, { "title": "The TSA Administrator then moved to dismiss Khalid’s", "paragraphs": [] }, { "title": "No Fly List claims in district court. The district court", "paragraphs": [ "para_145", "para_146", "para_147", "para_148", "para_149" ] }, { "title": "6", "paragraphs": [ "para_151", "para_152" ] }, { "title": "We have jurisdiction under 49 U.S.C. § 46110(a) to", "paragraphs": [ "para_154", "para_155" ] }, { "title": "549 (D.C. Cir. 2023) (per curiam). When reviewing an order", "paragraphs": [ "para_157", "para_158", "para_159", "para_160", "para_161", "para_162", "para_163", "para_164", "para_165" ] }, { "title": "The government contests Khalid’s standing in one respect:", "paragraphs": [] }, { "title": "It argues that Khalid lacks an injury in fact for purposes of his", "paragraphs": [ "para_168" ] }, { "title": "Pub. L. No. 103–141, 107 Stat. 1488 (1993) (codified at 42", "paragraphs": [ "para_170" ] }, { "title": "To show an injury in fact based on a prospect of future", "paragraphs": [ "para_172", "para_173", "para_174" ] }, { "title": "149, 158 (2014) (quoting Clapper v. Amnesty Int’l USA, 568", "paragraphs": [] }, { "title": "U.S. 398, 409, 414 n.5 (2013)). “Allegations of possible future", "paragraphs": [ "para_177", "para_178" ] }, { "title": "Khalid, a practicing Muslim, asserts that his placement on", "paragraphs": [ "para_180" ] }, { "title": "7", "paragraphs": [] }, { "title": "Hajj, an obligatory religious pilgrimage to Saudi Arabia, at", "paragraphs": [ "para_183" ] }, { "title": "Khalid’s religious beliefs or intention to make Hajj. But Khalid", "paragraphs": [ "para_185", "para_186", "para_187" ] }, { "title": "Defs. of Wildlife, 504 U.S. 555, 564 (1992). And he raises no", "paragraphs": [ "para_189", "para_190" ] }, { "title": "Khalid thus has not shown that he faces an “‘actual or", "paragraphs": [ "para_192", "para_193", "para_194", "para_195" ] }, { "title": "The government filed a redacted version of the", "paragraphs": [ "para_197", "para_198", "para_199", "para_200", "para_201", "para_202", "para_203", "para_204", "para_205", "para_206" ] }, { "title": "F.2d 1043, 1061 (D.C. Cir. 1986), aff’d, 484 U.S. 1 (1987). We", "paragraphs": [ "para_208", "para_209", "para_210", "para_211", "para_212", "para_213" ] }, { "title": "8", "paragraphs": [ "para_215" ] }, { "title": "370 F.3d at 1182; see Busic, 62 F.4th at 551 (holding that", "paragraphs": [ "para_217", "para_218" ] }, { "title": "Here, the government explains that each portion of the", "paragraphs": [ "para_220", "para_221", "para_222", "para_223" ] }, { "title": "Administrator provides detailed declarations identifying the", "paragraphs": [ "para_225", "para_226", "para_227" ] }, { "title": "Provencio Decl. ¶¶ 5-17 (D.A. 89-96) (law enforcement", "paragraphs": [ "para_229" ] }, { "title": "Decl. ¶¶ 3, 7, 12-23 (D.A. 98-100, 102-10) (sensitive security", "paragraphs": [ "para_231", "para_232", "para_233" ] }, { "title": "The Administrator makes no specific representations", "paragraphs": [ "para_235", "para_236", "para_237", "para_238", "para_239", "para_240", "para_241", "para_242", "para_243", "para_244", "para_245", "para_246", "para_247" ] }, { "title": "9", "paragraphs": [ "para_249" ] }, { "title": "Khalid argues that the TSA Administrator’s order violates", "paragraphs": [ "para_251", "para_252", "para_253", "para_254", "para_255", "para_256" ] }, { "title": "Khalid first contends that the TSA Administrator’s order", "paragraphs": [ "para_258", "para_259", "para_260" ] }, { "title": "Substantive due process protects “fundamental rights”", "paragraphs": [ "para_262", "para_263", "para_264", "para_265" ] }, { "title": "While Americans “enjoy[] ‘the right to travel,’” that does not", "paragraphs": [ "para_267" ] }, { "title": "F.4th at 550 (first quoting Haig v. Agee, 453 U.S. 280, 306", "paragraphs": [ "para_269", "para_270", "para_271" ] }, { "title": "As a result, the TSA Administrator’s order maintaining Khalid", "paragraphs": [ "para_273", "para_274", "para_275" ] }, { "title": "Khalid next asserts that the TSA Administrator’s order", "paragraphs": [ "para_277", "para_278" ] }, { "title": "10", "paragraphs": [ "para_280", "para_281" ] }, { "title": "Mathews v. Eldridge, 424 U.S. 319, 333 (1976) (quoting", "paragraphs": [] }, { "title": "Armstrong v. Manzo, 380 U.S. 545, 552 (1965)). To determine", "paragraphs": [ "para_284", "para_285" ] }, { "title": "(2) the “risk of an erroneous deprivation of such interest", "paragraphs": [ "para_287", "para_288", "para_289", "para_290", "para_291" ] }, { "title": "Applying that test, we have previously concluded that", "paragraphs": [] }, { "title": "TSA through DHS TRIP provides constitutionally adequate", "paragraphs": [ "para_294", "para_295", "para_296", "para_297", "para_298", "para_299", "para_300", "para_301", "para_302", "para_303" ] }, { "title": "Khalid does not tip that balance in his favor by asserting", "paragraphs": [ "para_305", "para_306", "para_307", "para_308" ] }, { "title": "Rather, such injury must be accompanied by the loss or", "paragraphs": [ "para_310", "para_311" ] }, { "title": "Pet’r Br. 18, but fails to argue that, in addition to his claimed", "paragraphs": [] }, { "title": "11", "paragraphs": [ "para_314", "para_315", "para_316", "para_317" ] }, { "title": "(D.C. Cir. 2010); Paul, 424 U.S. at 708 (explaining that a due", "paragraphs": [ "para_319", "para_320", "para_321", "para_322" ] }, { "title": "Khalid makes no showing that TSA denied him additional", "paragraphs": [ "para_324", "para_325" ] }, { "title": "Khalid also challenges the TSA Administrator’s order as", "paragraphs": [ "para_327" ] }, { "title": "U.S.C. § 706(2)(a). To assess that claim, we “consider whether", "paragraphs": [ "para_329", "para_330", "para_331" ] }, { "title": "Overton Park v. Volpe, 401 U.S. 402, 416 (1971)). We accept", "paragraphs": [ "para_333", "para_334", "para_335", "para_336", "para_337", "para_338", "para_339", "para_340" ] }, { "title": "Khalid argues that the TSA Administrator’s order was", "paragraphs": [ "para_342", "para_343" ] }, { "title": "Pet’r Br. 56. He asserts that his No Fly List designation and", "paragraphs": [ "para_345" ] }, { "title": "12", "paragraphs": [] }, { "title": "List “likely” relied on “inherently unreliable statements made", "paragraphs": [ "para_348" ] }, { "title": "No Fly List placement standards themselves are arbitrary", "paragraphs": [ "para_350", "para_351", "para_352", "para_353", "para_354" ] }, { "title": "Given our lack of jurisdiction over the Center when we", "paragraphs": [ "para_356" ] }, { "title": "U.S.C. § 46110(c), our review is limited to the administrative", "paragraphs": [ "para_358", "para_359", "para_360" ] }, { "title": "List. The Administrator’s factfinding and analysis closely", "paragraphs": [ "para_362", "para_363", "para_364", "para_365" ] }, { "title": "Delegation v. Fed. Energy Regul. Comm’n, 897 F.3d 241, 255", "paragraphs": [] }, { "title": "(D.C. Cir. 2018) (quoting City of Pittsburgh v. Fed. Power", "paragraphs": [] }, { "title": "Comm’n, 237 F.2d 741, 754 (D.C. Cir. 1956)). Nothing in", "paragraphs": [] }, { "title": "Khalid’s submission rendered it unreasonable for the TSA", "paragraphs": [] }, { "title": "Administrator to credit the factual analysis of the Center—the", "paragraphs": [ "para_371", "para_372", "para_373" ] }, { "title": "Lynch, 129 F. Supp. 3d 1052, 1057 (D. Or. 2015) (describing", "paragraphs": [ "para_375", "para_376", "para_377", "para_378", "para_379", "para_380" ] }, { "title": "13", "paragraphs": [ "para_382" ] }, { "title": "Sessions, 692 F. App’x 477 (9th Cir. 2017). Nor did our review", "paragraphs": [ "para_384" ] }, { "title": "Administrator’s decision making was arbitrary and capricious", "paragraphs": [ "para_386", "para_387" ] }, { "title": "Cir. 1991) (“Agency action based on a factual premise that is", "paragraphs": [ "para_389", "para_390", "para_391" ] }, { "title": "In the unclassified portion of his final order, the TSA", "paragraphs": [] }, { "title": "Administrator agrees that placing Khalid on the No Fly List", "paragraphs": [ "para_394", "para_395", "para_396", "para_397" ] }, { "title": "(June 9, 2022) (TSA A.R. 234-35). And the ex parte record", "paragraphs": [ "para_399", "para_400", "para_401" ] }, { "title": "Khalid lastly argues that the No Fly List involves an", "paragraphs": [ "para_403", "para_404", "para_405", "para_406", "para_407" ] }, { "title": "The Supreme Court has applied the “major questions", "paragraphs": [ "para_409", "para_410", "para_411", "para_412", "para_413" ] }, { "title": "14", "paragraphs": [ "para_415", "para_416", "para_417", "para_418", "para_419", "para_420", "para_421", "para_422", "para_423", "para_424", "para_425", "para_426" ] }, { "title": "Khalid primarily appeals to the major questions doctrine", "paragraphs": [ "para_428" ] }, { "title": "But this petition, brought under our Section 46110(a)", "paragraphs": [ "para_430", "para_431" ] }, { "title": "Abdellatif, 109 F.4th at 567-68 (emphasizing that “this court", "paragraphs": [ "para_433", "para_434" ] }, { "title": "List challenge, although the No Fly List undoubtedly places a", "paragraphs": [ "para_436", "para_437" ] }, { "title": "Congress has authorized TSA to “use information from", "paragraphs": [ "para_439", "para_440", "para_441", "para_442", "para_443", "para_444" ] }, { "title": "15", "paragraphs": [ "para_446" ] }, { "title": "For the foregoing reasons, we dismiss the petition for", "paragraphs": [ "para_448", "para_449", "para_450" ] } ], "paragraphs": [ { "text": "United States Court of Appeals", "paragraph_id": "para_1" }, { "text": "FOR THE DISTRICT OF COLUMBIA CIRCUIT", "paragraph_id": "para_2" }, { "text": "Argued October 10, 2025 Decided April 14, 2026", "paragraph_id": "para_3" }, { "text": "No. 23-1150", "paragraph_id": "para_4" }, { "text": "SAAD BIN KHALID,", "paragraph_id": "para_5" }, { "text": "PETITIONER", "paragraph_id": "para_6" }, { "text": "v.", "paragraph_id": "para_7" }, { "text": "TRANSPORTATION SECURITY ADMINISTRATION AND DAVID P.", "paragraph_id": "para_8" }, { "text": "PEKOSKE, ADMINISTRATOR, TRANSPORTATION SECURITY", "paragraph_id": "para_9" }, { "text": "ADMINISTRATION, IN HIS OFFICIAL CAPACITY,", "paragraph_id": "para_10" }, { "text": "RESPONDENTS", "paragraph_id": "para_11" }, { "text": "On Petition for Review of an Order of the", "paragraph_id": "para_12" }, { "text": "Transportation Security Administration", "paragraph_id": "para_13" }, { "text": "Gadeir I. Abbas argued the cause for petitioner. With him", "paragraph_id": "para_14" }, { "text": "on the brief was Lena F. Masri. Justin Sadowsky entered an", "paragraph_id": "para_15" }, { "text": "appearance.", "paragraph_id": "para_16" }, { "text": "Joshua P. Waldman, Attorney, U.S. Department of", "paragraph_id": "para_17" }, { "text": "Justice, argued the cause for respondents. With him on the", "paragraph_id": "para_18" }, { "text": "brief were Sharon Swingle and Catherine Padhi, Attorneys.", "paragraph_id": "para_19" }, { "text": "Ashley C. Honold, Attorney, entered an appearance.", "paragraph_id": "para_20" }, { "text": "Before: HENDERSON, PILLARD and CHILDS, Circuit", "paragraph_id": "para_21" }, { "text": "Judges.", "paragraph_id": "para_22" }, { "text": "Opinion for the Court filed by Circuit Judge PILLARD.", "paragraph_id": "para_23" }, { "text": "2", "paragraph_id": "para_24" }, { "text": "PILLARD, Circuit Judge: Saad bin Khalid, a United", "paragraph_id": "para_25" }, { "text": "States citizen, is on the No Fly List. As a result, he is barred", "paragraph_id": "para_26" }, { "text": "from boarding any planes that fly in U.S. airspace. Believing", "paragraph_id": "para_27" }, { "text": "that placement to be in error, Khalid sought redress through an", "paragraph_id": "para_28" }, { "text": "administrative appeal process run by the Transportation", "paragraph_id": "para_29" }, { "text": "Security Administration (TSA). The TSA Administrator, after", "paragraph_id": "para_30" }, { "text": "reviewing Khalid’s submissions and the nonpublic", "paragraph_id": "para_31" }, { "text": "recommendations of the government’s Threat Screening", "paragraph_id": "para_32" }, { "text": "Center, determined by order that Khalid should remain on the", "paragraph_id": "para_33" }, { "text": "list.", "paragraph_id": "para_34" }, { "text": "Khalid now petitions for review of the TSA", "paragraph_id": "para_35" }, { "text": "Administrator’s order. He raises statutory and constitutional", "paragraph_id": "para_36" }, { "text": "challenges to his placement on the No Fly List and the", "paragraph_id": "para_37" }, { "text": "adequacy of the redress process. We dismiss one of Khalid’s", "paragraph_id": "para_38" }, { "text": "challenges for lack of standing and deny the rest on their", "paragraph_id": "para_39" }, { "text": "merits.", "paragraph_id": "para_40" }, { "text": "I.", "paragraph_id": "para_41" }, { "text": "A.", "paragraph_id": "para_42" }, { "text": "Congress has charged the Transportation Security", "paragraph_id": "para_43" }, { "text": "Administration to “use information from government agencies", "paragraph_id": "para_44" }, { "text": "to identify individuals on [airline] passenger lists who may be", "paragraph_id": "para_45" }, { "text": "a threat to civil aviation or national security” and, if", "paragraph_id": "para_46" }, { "text": "appropriate, require air carriers to “prevent [such] individual[s]", "paragraph_id": "para_47" }, { "text": "from boarding an aircraft.” 49 U.S.C. § 114(h)(3)(A)-(B). In", "paragraph_id": "para_48" }, { "text": "addition, Congress instructed TSA to “establish a procedure to", "paragraph_id": "para_49" }, { "text": "enable airline passengers” who are “prohibited from boarding", "paragraph_id": "para_50" }, { "text": "a flight” because “they might pose a security threat” to “appeal", "paragraph_id": "para_51" }, { "text": "[that threat] determination.” Id. § 44903(j)(2)(C)(iii)(I).", "paragraph_id": "para_52" }, { "text": "To carry out those responsibilities, TSA draws on the work", "paragraph_id": "para_53" }, { "text": "of the Threat Screening Center (the Center), a multi-agency", "paragraph_id": "para_54" }, { "text": "body administered by the Federal Bureau of Investigation", "paragraph_id": "para_55" }, { "text": "3", "paragraph_id": "para_56" }, { "text": "(FBI). The Center maintains a centralized database of known", "paragraph_id": "para_57" }, { "text": "and suspected terrorists, collecting and screening nominations", "paragraph_id": "para_58" }, { "text": "from other agencies of individuals to include. That database is", "paragraph_id": "para_59" }, { "text": "commonly known as the terrorist watchlist. The No Fly List is", "paragraph_id": "para_60" }, { "text": "a subset of the terrorist watchlist: The Center adds a No Fly", "paragraph_id": "para_61" }, { "text": "List designation to individuals on the terrorist watchlist if it", "paragraph_id": "para_62" }, { "text": "determines that they meet one of four additional criteria, such", "paragraph_id": "para_63" }, { "text": "as posing “a threat of engaging in or conducting a violent act", "paragraph_id": "para_64" }, { "text": "of terrorism and [being] operationally capable of doing so.”", "paragraph_id": "para_65" }, { "text": "See Overview of the U.S. Government’s Terrorist Watchlisting", "paragraph_id": "para_66" }, { "text": "Process and Procedures as of April 2024 (D.A. 142); McQueen", "paragraph_id": "para_67" }, { "text": "Decl. ¶ 9 (D.A. 116). People included on the No Fly List are", "paragraph_id": "para_68" }, { "text": "prohibited from boarding U.S. commercial aircraft or flying", "paragraph_id": "para_69" }, { "text": "through U.S. airspace.", "paragraph_id": "para_70" }, { "text": "TSA can remove individuals’ No Fly List designations", "paragraph_id": "para_71" }, { "text": "through the Department of Homeland Security Traveler", "paragraph_id": "para_72" }, { "text": "Redress Inquiry Program (DHS TRIP). TSA administers DHS", "paragraph_id": "para_73" }, { "text": "TRIP to respond to individuals’ claims that they experienced", "paragraph_id": "para_74" }, { "text": "travel difficulties because they are erroneously treated as No", "paragraph_id": "para_75" }, { "text": "Fly listees. For U.S. citizens and lawful permanent residents,", "paragraph_id": "para_76" }, { "text": "the redress process has several stages. First, TSA seeks", "paragraph_id": "para_77" }, { "text": "confirmation from the Center whether the traveler requesting", "paragraph_id": "para_78" }, { "text": "redress in fact has a No Fly List designation (rather than being", "paragraph_id": "para_79" }, { "text": "stopped for some other reason, such as being mistaken for", "paragraph_id": "para_80" }, { "text": "someone else who has a designation). TSA then sends a letter", "paragraph_id": "para_81" }, { "text": "informing the traveler of his status and offering to provide", "paragraph_id": "para_82" }, { "text": "additional information. Second, if the traveler is on the list and", "paragraph_id": "para_83" }, { "text": "requests more information, TSA works with the Center to", "paragraph_id": "para_84" }, { "text": "prepare an unclassified summary of the evidence supporting", "paragraph_id": "para_85" }, { "text": "his placement. TSA shares the summary with the traveler and", "paragraph_id": "para_86" }, { "text": "invites a response. Third, the Center reviews the response. The", "paragraph_id": "para_87" }, { "text": "Center may remove the traveler’s No Fly List designation if it", "paragraph_id": "para_88" }, { "text": "determines that he no longer meets the listing criteria. If,", "paragraph_id": "para_89" }, { "text": "however, the Center determines that the traveler should remain", "paragraph_id": "para_90" }, { "text": "4", "paragraph_id": "para_91" }, { "text": "on the No Fly List, it prepares a recommendation for the TSA", "paragraph_id": "para_92" }, { "text": "Administrator’s review. Taking account of the Center’s", "paragraph_id": "para_93" }, { "text": "recommendation, the TSA Administrator issues a final order", "paragraph_id": "para_94" }, { "text": "determining whether the person’s No Fly List designation", "paragraph_id": "para_95" }, { "text": "should be maintained or removed. [Id.]", "paragraph_id": "para_96" }, { "text": "B.", "paragraph_id": "para_97" }, { "text": "Saad bin Khalid is a U.S. citizen of Pakistani descent who", "paragraph_id": "para_98" }, { "text": "moved between the United States and Pakistan as a child. He", "paragraph_id": "para_99" }, { "text": "alleges that he was first subjected to enhanced screening in", "paragraph_id": "para_100" }, { "text": "2012, when he was 16 or 17 years old and sought to board a", "paragraph_id": "para_101" }, { "text": "flight from Pakistan to the United States. After that flight, FBI", "paragraph_id": "para_102" }, { "text": "agents met with Khalid to question him about his activities and", "paragraph_id": "para_103" }, { "text": "contacts in Pakistan. In 2019, when Khalid again made plans", "paragraph_id": "para_104" }, { "text": "to fly from Pakistan to the United States, he was prohibited", "paragraph_id": "para_105" }, { "text": "from boarding his flight and told he could file a redress claim", "paragraph_id": "para_106" }, { "text": "through the DHS TRIP process. He did so. While awaiting a", "paragraph_id": "para_107" }, { "text": "response, he filed suit in the district court challenging, among", "paragraph_id": "para_108" }, { "text": "other things, his maintenance on the No Fly List.", "paragraph_id": "para_109" }, { "text": "Through DHS TRIP, Khalid received a letter providing an", "paragraph_id": "para_110" }, { "text": "unclassified summary of the FBI’s reasons for placing him on", "paragraph_id": "para_111" }, { "text": "the No Fly List. The letter described Khalid as “an individual", "paragraph_id": "para_112" }, { "text": "who represents a threat of engaging in or conducting a violent", "paragraph_id": "para_113" }, { "text": "act of terrorism and [is] operationally capable of doing so.”", "paragraph_id": "para_114" }, { "text": "Letter from Stanley Mungaray, Acting Director, DHS TRIP, to", "paragraph_id": "para_115" }, { "text": "Saad bin Khalid (Jan. 25, 2022) (TSA A.R. 64-65).1 The", "paragraph_id": "para_116" }, { "text": "unclassified summary informed Khalid that “the U.S.", "paragraph_id": "para_117" }, { "text": "Government continue[d] to have concerns about [Khalid’s]", "paragraph_id": "para_118" }, { "text": "association with a known terrorist organization” and his", "paragraph_id": "para_119" }, { "text": "1 Citations to TSA A.R. refer to the material available in the public,", "paragraph_id": "para_120" }, { "text": "redacted version of the TSA Administrative Record. See infra II.C.", "paragraph_id": "para_121" }, { "text": "5", "paragraph_id": "para_122" }, { "text": "“candor” during the 2012 FBI interview concerning his", "paragraph_id": "para_123" }, { "text": "“contacts and activities in Pakistan from 2008 to 2012.” Id.", "paragraph_id": "para_124" }, { "text": "Khalid responded through counsel, stating that he was a", "paragraph_id": "para_125" }, { "text": "minor in 2012 and had been truthful to the best of his", "paragraph_id": "para_126" }, { "text": "recollection in the FBI interview. Letter from Gadeir Abbas to", "paragraph_id": "para_127" }, { "text": "DHS TRIP (Mar. 25, 2022) (TSA A.R. 67-68). Khalid also", "paragraph_id": "para_128" }, { "text": "maintained that he had no association with any foreign", "paragraph_id": "para_129" }, { "text": "terrorists, no wish to harm the United States or engage in", "paragraph_id": "para_130" }, { "text": "terrorism, and no operational capability to do so. Id.", "paragraph_id": "para_131" }, { "text": "Several months later, Khalid received a final decision from", "paragraph_id": "para_132" }, { "text": "the TSA Administrator determining, “based on the totality of", "paragraph_id": "para_133" }, { "text": "available information, including the information [Khalid]", "paragraph_id": "para_134" }, { "text": "provided,” that Khalid was “properly included on the U.S.", "paragraph_id": "para_135" }, { "text": "Government’s No Fly List.” Letter from David P. Pekoske,", "paragraph_id": "para_136" }, { "text": "TSA Administrator, to Saad bin Khalid (June 9, 2022) (TSA", "paragraph_id": "para_137" }, { "text": "A.R. 230). The letter informing Khalid of the decision noted", "paragraph_id": "para_138" }, { "text": "that additional information relevant to the TSA", "paragraph_id": "para_139" }, { "text": "Administrator’s order had been withheld to protect information", "paragraph_id": "para_140" }, { "text": "the disclosure of which would risk harm to national security or", "paragraph_id": "para_141" }, { "text": "jeopardize law enforcement activities. Id. (TSA A.R. 235-36).", "paragraph_id": "para_142" }, { "text": "The TSA Administrator then moved to dismiss Khalid’s", "paragraph_id": "para_143" }, { "text": "No Fly List claims in district court. The district court", "paragraph_id": "para_144" }, { "text": "concluded that it lacked jurisdiction to review the claims", "paragraph_id": "para_145" }, { "text": "because the order maintaining Khalid’s No Fly List designation", "paragraph_id": "para_146" }, { "text": "was reviewable exclusively in this court. The district court", "paragraph_id": "para_147" }, { "text": "transferred Khalid’s No Fly List claims to this court pursuant", "paragraph_id": "para_148" }, { "text": "to 28 U.S.C. § 1631.", "paragraph_id": "para_149" }, { "text": "6", "paragraph_id": "para_150" }, { "text": "II.", "paragraph_id": "para_151" }, { "text": "A.", "paragraph_id": "para_152" }, { "text": "We have jurisdiction under 49 U.S.C. § 46110(a) to", "paragraph_id": "para_153" }, { "text": "review the TSA Administrator’s order maintaining Khalid on", "paragraph_id": "para_154" }, { "text": "the No Fly List. Busic v. Transp. Sec. Admin., 62 F.4th 547,", "paragraph_id": "para_155" }, { "text": "549 (D.C. Cir. 2023) (per curiam). When reviewing an order", "paragraph_id": "para_156" }, { "text": "of the TSA Administrator, we ask whether the order is", "paragraph_id": "para_157" }, { "text": "“‘arbitrary, capricious, an abuse of discretion, or otherwise not", "paragraph_id": "para_158" }, { "text": "in accordance with law,’ or unsupported by ‘substantial", "paragraph_id": "para_159" }, { "text": "evidence.’” Suburban Air Freight, Inc. v. Transp. Sec. Admin.,", "paragraph_id": "para_160" }, { "text": "716 F.3d 679, 681 (D.C. Cir. 2013) (first quoting 5 U.S.C.", "paragraph_id": "para_161" }, { "text": "§ 706(2)(a); and then quoting 49 U.S.C. § 46110(c)). We", "paragraph_id": "para_162" }, { "text": "review constitutional challenges de novo. Jifry v. Fed. Aviation", "paragraph_id": "para_163" }, { "text": "Admin., 370 F.3d 1174, 1182 (D.C. Cir. 2004).", "paragraph_id": "para_164" }, { "text": "B.", "paragraph_id": "para_165" }, { "text": "The government contests Khalid’s standing in one respect:", "paragraph_id": "para_166" }, { "text": "It argues that Khalid lacks an injury in fact for purposes of his", "paragraph_id": "para_167" }, { "text": "claim under the Religious Freedom Restoration Act (RFRA),", "paragraph_id": "para_168" }, { "text": "Pub. L. No. 103–141, 107 Stat. 1488 (1993) (codified at 42", "paragraph_id": "para_169" }, { "text": "U.S.C. §§ 2000bb-2000bb-4). We agree.", "paragraph_id": "para_170" }, { "text": "To show an injury in fact based on a prospect of future", "paragraph_id": "para_171" }, { "text": "harm, a petitioner must demonstrate that “the threatened injury", "paragraph_id": "para_172" }, { "text": "is ‘certainly impending,’ or there is a ‘substantial risk’ that the", "paragraph_id": "para_173" }, { "text": "harm will occur.” Susan B. Anthony List v. Driehaus, 573 U.S.", "paragraph_id": "para_174" }, { "text": "149, 158 (2014) (quoting Clapper v. Amnesty Int’l USA, 568", "paragraph_id": "para_175" }, { "text": "U.S. 398, 409, 414 n.5 (2013)). “Allegations of possible future", "paragraph_id": "para_176" }, { "text": "injury do not satisfy the requirements of [Article] III.”", "paragraph_id": "para_177" }, { "text": "Whitmore v. Arkansas, 495 U.S. 149, 158 (1990).", "paragraph_id": "para_178" }, { "text": "Khalid, a practicing Muslim, asserts that his placement on", "paragraph_id": "para_179" }, { "text": "the No Fly List injures him by burdening his ability to perform", "paragraph_id": "para_180" }, { "text": "7", "paragraph_id": "para_181" }, { "text": "Hajj, an obligatory religious pilgrimage to Saudi Arabia, at", "paragraph_id": "para_182" }, { "text": "some unspecified future time. We do not doubt the sincerity of", "paragraph_id": "para_183" }, { "text": "Khalid’s religious beliefs or intention to make Hajj. But Khalid", "paragraph_id": "para_184" }, { "text": "currently resides in Pakistan, Oral Arg. 31:19-31:26, and", "paragraph_id": "para_185" }, { "text": "asserts his RFRA claim “without any description of concrete", "paragraph_id": "para_186" }, { "text": "plans” to travel to Saudi Arabia via U.S. airspace. Lujan v.", "paragraph_id": "para_187" }, { "text": "Defs. of Wildlife, 504 U.S. 555, 564 (1992). And he raises no", "paragraph_id": "para_188" }, { "text": "more than a speculative possibility that Saudi Arabia will", "paragraph_id": "para_189" }, { "text": "refuse him entry based on the United States’ intelligence.", "paragraph_id": "para_190" }, { "text": "Khalid thus has not shown that he faces an “‘actual or", "paragraph_id": "para_191" }, { "text": "imminent’ injury” related to his religious exercise. Id. He fails", "paragraph_id": "para_192" }, { "text": "to satisfy the minimum constitutional requirement of standing", "paragraph_id": "para_193" }, { "text": "to invoke federal court jurisdiction over his RFRA claim.", "paragraph_id": "para_194" }, { "text": "C.", "paragraph_id": "para_195" }, { "text": "The government filed a redacted version of the", "paragraph_id": "para_196" }, { "text": "administrative record on the public docket. It filed the", "paragraph_id": "para_197" }, { "text": "remainder of the administrative record under seal and ex parte", "paragraph_id": "para_198" }, { "text": "and moved to maintain it under seal and ex parte. Khalid", "paragraph_id": "para_199" }, { "text": "opposed the ex parte motion, seeking access to the portion of", "paragraph_id": "para_200" }, { "text": "the administrative record that remains under seal. We deferred", "paragraph_id": "para_201" }, { "text": "decision on that motion to consider it alongside the merits of", "paragraph_id": "para_202" }, { "text": "Khalid’s petition.", "paragraph_id": "para_203" }, { "text": "“Only in the most extraordinary circumstances does our", "paragraph_id": "para_204" }, { "text": "precedent countenance court reliance upon ex parte evidence", "paragraph_id": "para_205" }, { "text": "to decide the merits of a dispute.” Abourezk v. Reagan, 785", "paragraph_id": "para_206" }, { "text": "F.2d 1043, 1061 (D.C. Cir. 1986), aff’d, 484 U.S. 1 (1987). We", "paragraph_id": "para_207" }, { "text": "have relied on ex parte evidence in merits appeals “upon proper", "paragraph_id": "para_208" }, { "text": "invocation of [a] privilege; a demonstration of compelling", "paragraph_id": "para_209" }, { "text": "national security concerns; and public disclosure by the", "paragraph_id": "para_210" }, { "text": "government, prior to any in camera examination, of as much", "paragraph_id": "para_211" }, { "text": "of the material as it could divulge without compromising the", "paragraph_id": "para_212" }, { "text": "privilege,” id., including in cases related to aviation safety, e.g.,", "paragraph_id": "para_213" }, { "text": "8", "paragraph_id": "para_214" }, { "text": "Abdellatif v. DHS, 109 F.4th 562, 570 (D.C. Cir. 2024); Jifry,", "paragraph_id": "para_215" }, { "text": "370 F.3d at 1182; see Busic, 62 F.4th at 551 (holding that", "paragraph_id": "para_216" }, { "text": "petitioner lacked a statutory right of access to material that", "paragraph_id": "para_217" }, { "text": "TSA deemed sensitive security information).", "paragraph_id": "para_218" }, { "text": "Here, the government explains that each portion of the", "paragraph_id": "para_219" }, { "text": "record withheld from the public version is subject to the law", "paragraph_id": "para_220" }, { "text": "enforcement privilege, categorized as sensitive security", "paragraph_id": "para_221" }, { "text": "information by TSA, Busic, 62 F.4th at 551, or has been", "paragraph_id": "para_222" }, { "text": "properly classified. As to the first two categories, the", "paragraph_id": "para_223" }, { "text": "Administrator provides detailed declarations identifying the", "paragraph_id": "para_224" }, { "text": "rationales for record materials to remain under seal, the", "paragraph_id": "para_225" }, { "text": "government’s efforts to release information where possible,", "paragraph_id": "para_226" }, { "text": "and the national security risks of any further disclosure. See", "paragraph_id": "para_227" }, { "text": "Provencio Decl. ¶¶ 5-17 (D.A. 89-96) (law enforcement", "paragraph_id": "para_228" }, { "text": "privilege for Customs and Border Patrol information); Esteves", "paragraph_id": "para_229" }, { "text": "Decl. ¶¶ 3, 7, 12-23 (D.A. 98-100, 102-10) (sensitive security", "paragraph_id": "para_230" }, { "text": "information designation for TSA materials); McQueen Decl.", "paragraph_id": "para_231" }, { "text": "¶¶ 2, 19-44 (D.A. 113, 122-37) (law enforcement privilege for", "paragraph_id": "para_232" }, { "text": "FBI information).", "paragraph_id": "para_233" }, { "text": "The Administrator makes no specific representations", "paragraph_id": "para_234" }, { "text": "about the classified material, but we are “in a position to", "paragraph_id": "para_235" }, { "text": "determine whether [information] was properly classified”", "paragraph_id": "para_236" }, { "text": "through our own review. Jifry, 370 F.3d at 1182. We do so", "paragraph_id": "para_237" }, { "text": "with respect for the executive branch’s “control and", "paragraph_id": "para_238" }, { "text": "responsibility over access to classified information” and its", "paragraph_id": "para_239" }, { "text": "“‘compelling interest’ in withholding national security", "paragraph_id": "para_240" }, { "text": "information from unauthorized persons in the course of", "paragraph_id": "para_241" }, { "text": "executive business.” People’s Mojahedin Org. of Iran v. Dep’t", "paragraph_id": "para_242" }, { "text": "of State, 327 F.3d 1238, 1242 (D.C. Cir. 2003) (quoting Dep’t.", "paragraph_id": "para_243" }, { "text": "of the Navy v. Egan, 484 U.S. 518, 527 (1988)). Having", "paragraph_id": "para_244" }, { "text": "reviewed the non-public portion of the record in camera, we", "paragraph_id": "para_245" }, { "text": "grant the government’s motion to maintain that portion of the", "paragraph_id": "para_246" }, { "text": "administrative record under seal and ex parte.", "paragraph_id": "para_247" }, { "text": "9", "paragraph_id": "para_248" }, { "text": "III.", "paragraph_id": "para_249" }, { "text": "Khalid argues that the TSA Administrator’s order violates", "paragraph_id": "para_250" }, { "text": "his Fifth Amendment rights to substantive and procedural due", "paragraph_id": "para_251" }, { "text": "process as well as the Administrative Procedure Act’s", "paragraph_id": "para_252" }, { "text": "proscription of agency actions that are “arbitrary,", "paragraph_id": "para_253" }, { "text": "capricious, . . . or otherwise not in accordance with law.” 5", "paragraph_id": "para_254" }, { "text": "U.S.C. § 706(2)(A). None of his arguments succeeds.", "paragraph_id": "para_255" }, { "text": "A.", "paragraph_id": "para_256" }, { "text": "Khalid first contends that the TSA Administrator’s order", "paragraph_id": "para_257" }, { "text": "violates substantive due process by illegitimately restricting his", "paragraph_id": "para_258" }, { "text": "right to free movement. That argument is foreclosed by", "paragraph_id": "para_259" }, { "text": "binding precedent.", "paragraph_id": "para_260" }, { "text": "Substantive due process protects “fundamental rights”", "paragraph_id": "para_261" }, { "text": "that are so “deeply rooted in our legal tradition” that the", "paragraph_id": "para_262" }, { "text": "government may infringe them only through actions narrowly", "paragraph_id": "para_263" }, { "text": "tailored to serve a compelling government interest.", "paragraph_id": "para_264" }, { "text": "Washington v. Glucksberg, 521 U.S. 702, 720-22 (1997).", "paragraph_id": "para_265" }, { "text": "While Americans “enjoy[] ‘the right to travel,’” that does not", "paragraph_id": "para_266" }, { "text": "imply “a fundamental right to travel by airplane.” Busic, 62", "paragraph_id": "para_267" }, { "text": "F.4th at 550 (first quoting Haig v. Agee, 453 U.S. 280, 306", "paragraph_id": "para_268" }, { "text": "(1981); and then quoting Gilmore v. Gonzales, 435 F.3d 1125,", "paragraph_id": "para_269" }, { "text": "1137 (9th Cir. 2006)). Khalid may continue to travel to, from,", "paragraph_id": "para_270" }, { "text": "and inside of the United States by means other than airplanes.", "paragraph_id": "para_271" }, { "text": "As a result, the TSA Administrator’s order maintaining Khalid", "paragraph_id": "para_272" }, { "text": "on the No Fly List does not infringe a fundamental right, and", "paragraph_id": "para_273" }, { "text": "Khalid’s substantive due process claim fails.", "paragraph_id": "para_274" }, { "text": "B.", "paragraph_id": "para_275" }, { "text": "Khalid next asserts that the TSA Administrator’s order", "paragraph_id": "para_276" }, { "text": "prevents his free movement and harms his reputation without", "paragraph_id": "para_277" }, { "text": "constitutionally required procedural due process. “The", "paragraph_id": "para_278" }, { "text": "10", "paragraph_id": "para_279" }, { "text": "fundamental requirement of due process is the opportunity to", "paragraph_id": "para_280" }, { "text": "be heard ‘at a meaningful time and in a meaningful manner.’”", "paragraph_id": "para_281" }, { "text": "Mathews v. Eldridge, 424 U.S. 319, 333 (1976) (quoting", "paragraph_id": "para_282" }, { "text": "Armstrong v. Manzo, 380 U.S. 545, 552 (1965)). To determine", "paragraph_id": "para_283" }, { "text": "whether the government has provided constitutionally", "paragraph_id": "para_284" }, { "text": "adequate process, we weigh (1) “the private interest” at stake,", "paragraph_id": "para_285" }, { "text": "(2) the “risk of an erroneous deprivation of such interest", "paragraph_id": "para_286" }, { "text": "through the procedures used” and the “probable value” of", "paragraph_id": "para_287" }, { "text": "alternate procedural safeguards, and (3) “the Government’s", "paragraph_id": "para_288" }, { "text": "interest” in the administrative process and any burdens of", "paragraph_id": "para_289" }, { "text": "providing alternate safeguards. Jifry, 370 F.3d at 1183", "paragraph_id": "para_290" }, { "text": "(quoting Mathews, 424 U.S. at 335).", "paragraph_id": "para_291" }, { "text": "Applying that test, we have previously concluded that", "paragraph_id": "para_292" }, { "text": "TSA through DHS TRIP provides constitutionally adequate", "paragraph_id": "para_293" }, { "text": "process to those on the No Fly List, even considering the", "paragraph_id": "para_294" }, { "text": "significant private interest at stake when the government denies", "paragraph_id": "para_295" }, { "text": "access to air travel. Busic, 62 F.4th at 550. “[P]rotecting", "paragraph_id": "para_296" }, { "text": "national security is a government interest of the highest order,”", "paragraph_id": "para_297" }, { "text": "and “alternatives to the No Fly List cannot be 100 percent", "paragraph_id": "para_298" }, { "text": "effective against all potential threat[s].” Id. (internal quotation", "paragraph_id": "para_299" }, { "text": "marks and citation omitted). Given that other modes of travel", "paragraph_id": "para_300" }, { "text": "remain available to Khalid, the government’s national security", "paragraph_id": "para_301" }, { "text": "interest in restricting access to U.S. airspace “outweighs [his]", "paragraph_id": "para_302" }, { "text": "individual travel preferences.” Id.", "paragraph_id": "para_303" }, { "text": "Khalid does not tip that balance in his favor by asserting", "paragraph_id": "para_304" }, { "text": "an additional private interest in his reputation. “[I]njury to", "paragraph_id": "para_305" }, { "text": "reputation by itself [is] not a ‘liberty’ interest protected under", "paragraph_id": "para_306" }, { "text": "the Fourteenth Amendment.” Siegert v. Gilley, 500 U.S. 226,", "paragraph_id": "para_307" }, { "text": "233 (1991) (citing Paul v. Davis, 424 U.S. 693, 708-09 (1976)).", "paragraph_id": "para_308" }, { "text": "Rather, such injury must be accompanied by the loss or", "paragraph_id": "para_309" }, { "text": "alteration of some “right or status previously recognized", "paragraph_id": "para_310" }, { "text": "by . . . law.” Paul, 424 U.S. at 711. Khalid cites that standard,", "paragraph_id": "para_311" }, { "text": "Pet’r Br. 18, but fails to argue that, in addition to his claimed", "paragraph_id": "para_312" }, { "text": "11", "paragraph_id": "para_313" }, { "text": "reputational harm from the government’s instruction to airlines", "paragraph_id": "para_314" }, { "text": "to refuse him boarding, he was deprived of some recognized", "paragraph_id": "para_315" }, { "text": "right or status that tips his claim into the “stigma-plus”", "paragraph_id": "para_316" }, { "text": "category, see Gen. Elec. Co. v. Jackson, 610 F.3d 110, 121", "paragraph_id": "para_317" }, { "text": "(D.C. Cir. 2010); Paul, 424 U.S. at 708 (explaining that a due", "paragraph_id": "para_318" }, { "text": "process claim was appropriate where the government’s", "paragraph_id": "para_319" }, { "text": "stigmatizing action “deprived the individual of a right", "paragraph_id": "para_320" }, { "text": "previously held under state law . . . to purchase or obtain liquor", "paragraph_id": "para_321" }, { "text": "in common with the rest of the citizenry”). Accordingly,", "paragraph_id": "para_322" }, { "text": "Khalid makes no showing that TSA denied him additional", "paragraph_id": "para_323" }, { "text": "process he was due.", "paragraph_id": "para_324" }, { "text": "C.", "paragraph_id": "para_325" }, { "text": "Khalid also challenges the TSA Administrator’s order as", "paragraph_id": "para_326" }, { "text": "arbitrary and capricious for want of factual support. See 5", "paragraph_id": "para_327" }, { "text": "U.S.C. § 706(2)(a). To assess that claim, we “consider whether", "paragraph_id": "para_328" }, { "text": "[the agency’s] actions were ‘based on a consideration of the", "paragraph_id": "para_329" }, { "text": "relevant factors and whether there has been a clear error of", "paragraph_id": "para_330" }, { "text": "judgment.’” Jifry, 370 F.3d at 1181 (quoting Citizens to Pres.", "paragraph_id": "para_331" }, { "text": "Overton Park v. Volpe, 401 U.S. 402, 416 (1971)). We accept", "paragraph_id": "para_332" }, { "text": "the agency’s factual determinations if supported by", "paragraph_id": "para_333" }, { "text": "“substantial evidence,” 49 U.S.C. § 46110(c), which “is simply", "paragraph_id": "para_334" }, { "text": "such relevant evidence as a reasonable person might accept as", "paragraph_id": "para_335" }, { "text": "proof of a conclusion,” Jifry, 370 F.3d at 1181. Because", "paragraph_id": "para_336" }, { "text": "“[c]ourts have limited competence in the area of national", "paragraph_id": "para_337" }, { "text": "security,” our “role in reviewing factual determinations in this", "paragraph_id": "para_338" }, { "text": "context is highly deferential.” Busic, 62 F.4th at 550 (internal", "paragraph_id": "para_339" }, { "text": "quotation marks and citation omitted).", "paragraph_id": "para_340" }, { "text": "Khalid argues that the TSA Administrator’s order was", "paragraph_id": "para_341" }, { "text": "arbitrary and capricious because “there is no appropriate,", "paragraph_id": "para_342" }, { "text": "current evidence that Khalid is a threat to aviation security.”", "paragraph_id": "para_343" }, { "text": "Pet’r Br. 56. He asserts that his No Fly List designation and", "paragraph_id": "para_344" }, { "text": "the TSA Administrator’s order maintaining him on the No Fly", "paragraph_id": "para_345" }, { "text": "12", "paragraph_id": "para_346" }, { "text": "List “likely” relied on “inherently unreliable statements made", "paragraph_id": "para_347" }, { "text": "by Khalid’s estranged mother.” Id. Khalid also asserts that the", "paragraph_id": "para_348" }, { "text": "No Fly List placement standards themselves are arbitrary", "paragraph_id": "para_349" }, { "text": "insofar as they allow consideration of race, ethnicity, and", "paragraph_id": "para_350" }, { "text": "religion, as well as First Amendment–protected “beliefs and", "paragraph_id": "para_351" }, { "text": "activities.” Id. at 53. Finally, he contends that the lack of", "paragraph_id": "para_352" }, { "text": "additional process renders the DHS TRIP process arbitrary and", "paragraph_id": "para_353" }, { "text": "capricious. See id. at 55.", "paragraph_id": "para_354" }, { "text": "Given our lack of jurisdiction over the Center when we", "paragraph_id": "para_355" }, { "text": "review a TSA final order resulting from DHS TRIP, see 49", "paragraph_id": "para_356" }, { "text": "U.S.C. § 46110(c), our review is limited to the administrative", "paragraph_id": "para_357" }, { "text": "record before TSA. After reviewing the public and ex parte", "paragraph_id": "para_358" }, { "text": "record, we conclude that the TSA Administrator acted with", "paragraph_id": "para_359" }, { "text": "adequate justification when he retained Khalid on the No Fly", "paragraph_id": "para_360" }, { "text": "List. The Administrator’s factfinding and analysis closely", "paragraph_id": "para_361" }, { "text": "tracked the Center’s recommendation. “Agencies can be", "paragraph_id": "para_362" }, { "text": "expected to ‘respect [the] views of such other agencies as to", "paragraph_id": "para_363" }, { "text": "those problems’ for which those ‘other agencies are more", "paragraph_id": "para_364" }, { "text": "directly responsible and more competent.’” City of Bos.", "paragraph_id": "para_365" }, { "text": "Delegation v. Fed. Energy Regul. Comm’n, 897 F.3d 241, 255", "paragraph_id": "para_366" }, { "text": "(D.C. Cir. 2018) (quoting City of Pittsburgh v. Fed. Power", "paragraph_id": "para_367" }, { "text": "Comm’n, 237 F.2d 741, 754 (D.C. Cir. 1956)). Nothing in", "paragraph_id": "para_368" }, { "text": "Khalid’s submission rendered it unreasonable for the TSA", "paragraph_id": "para_369" }, { "text": "Administrator to credit the factual analysis of the Center—the", "paragraph_id": "para_370" }, { "text": "entity that oversees a centralized repository of intelligence", "paragraph_id": "para_371" }, { "text": "information, maintains the terrorist watchlist, and makes all No", "paragraph_id": "para_372" }, { "text": "Fly List determinations in the first instance. Cf. Tarhuni v.", "paragraph_id": "para_373" }, { "text": "Lynch, 129 F. Supp. 3d 1052, 1057 (D. Or. 2015) (describing", "paragraph_id": "para_374" }, { "text": "plaintiff who received notice that he was on the No Fly List due", "paragraph_id": "para_375" }, { "text": "to the government’s “concerns about the nature and purpose of", "paragraph_id": "para_376" }, { "text": "[his] travel to Libya in 2011 and 2012,” responded with a", "paragraph_id": "para_377" }, { "text": "detailed description of his activities during that time period,", "paragraph_id": "para_378" }, { "text": "and was then “removed from the No-Fly List” based on", "paragraph_id": "para_379" }, { "text": "information “including [his] submissions to DHS TRIP”),", "paragraph_id": "para_380" }, { "text": "13", "paragraph_id": "para_381" }, { "text": "rev’d and remanded on other grounds sub nom. Tarhuni v.", "paragraph_id": "para_382" }, { "text": "Sessions, 692 F. App’x 477 (9th Cir. 2017). Nor did our review", "paragraph_id": "para_383" }, { "text": "of the ex parte record otherwise suggest that the TSA", "paragraph_id": "para_384" }, { "text": "Administrator’s decision making was arbitrary and capricious", "paragraph_id": "para_385" }, { "text": "or unsupported by substantial evidence. See City of Kansas", "paragraph_id": "para_386" }, { "text": "City v. Dep’t of Hous. & Urb. Dev., 923 F.2d 188, 194 (D.C.", "paragraph_id": "para_387" }, { "text": "Cir. 1991) (“Agency action based on a factual premise that is", "paragraph_id": "para_388" }, { "text": "flatly contradicted by the agency’s own record does not", "paragraph_id": "para_389" }, { "text": "constitute reasoned administrative decisionmaking, and cannot", "paragraph_id": "para_390" }, { "text": "survive review under the arbitrary and capricious standard.”).", "paragraph_id": "para_391" }, { "text": "In the unclassified portion of his final order, the TSA", "paragraph_id": "para_392" }, { "text": "Administrator agrees that placing Khalid on the No Fly List", "paragraph_id": "para_393" }, { "text": "“based upon his status as a young Muslim male with Pakistani", "paragraph_id": "para_394" }, { "text": "roots” would be improper and denies that the order rests on", "paragraph_id": "para_395" }, { "text": "such grounds. David P. Pekoske, TSA Administrator, Notice", "paragraph_id": "para_396" }, { "text": "of Final Order and Decision of the TSA Administrator at 4-5", "paragraph_id": "para_397" }, { "text": "(June 9, 2022) (TSA A.R. 234-35). And the ex parte record", "paragraph_id": "para_398" }, { "text": "confirms that, at least as to Khalid, TSA’s actions were based", "paragraph_id": "para_399" }, { "text": "on consideration of relevant, permissible factors.", "paragraph_id": "para_400" }, { "text": "D.", "paragraph_id": "para_401" }, { "text": "Khalid lastly argues that the No Fly List involves an", "paragraph_id": "para_402" }, { "text": "agency decision of a “major question” without express", "paragraph_id": "para_403" }, { "text": "congressional authorization. Pet’r Br. 45-49. The major", "paragraph_id": "para_404" }, { "text": "questions doctrine does not apply here. Congress has expressly", "paragraph_id": "para_405" }, { "text": "authorized TSA to prevent persons who may pose risks to", "paragraph_id": "para_406" }, { "text": "aviation safety from boarding aircraft.", "paragraph_id": "para_407" }, { "text": "The Supreme Court has applied the “major questions", "paragraph_id": "para_408" }, { "text": "doctrine,” requiring “clear congressional authorization” for an", "paragraph_id": "para_409" }, { "text": "agency to act, in certain “extraordinary cases.” West Virginia", "paragraph_id": "para_410" }, { "text": "v. EPA, 597 U.S. 697, 723 (2022) (internal quotation marks and", "paragraph_id": "para_411" }, { "text": "citations omitted). Such cases, the Court instructs, occur when", "paragraph_id": "para_412" }, { "text": "an agency “claim[s] to discover in a long-extant statute an", "paragraph_id": "para_413" }, { "text": "14", "paragraph_id": "para_414" }, { "text": "unheralded power,” asserts a “transformative expansion in [the", "paragraph_id": "para_415" }, { "text": "agency’s] regulatory authority,” addresses an issue of “vast", "paragraph_id": "para_416" }, { "text": "economic and political significance,” and adopts a program", "paragraph_id": "para_417" }, { "text": "that “Congress had conspicuously and repeatedly declined to", "paragraph_id": "para_418" }, { "text": "enact itself,” among other factors. Id. at 716, 724 (internal", "paragraph_id": "para_419" }, { "text": "quotation marks and citations omitted). Under those", "paragraph_id": "para_420" }, { "text": "circumstances, “the history and the breadth of the authority that", "paragraph_id": "para_421" }, { "text": "[the agency] has asserted, and the economic and political", "paragraph_id": "para_422" }, { "text": "significance of that assertion, provide a reason to hesitate", "paragraph_id": "para_423" }, { "text": "before concluding that Congress meant to confer such", "paragraph_id": "para_424" }, { "text": "authority.” Id. at 721 (alteration in original) (internal quotation", "paragraph_id": "para_425" }, { "text": "marks and citations omitted).", "paragraph_id": "para_426" }, { "text": "Khalid primarily appeals to the major questions doctrine", "paragraph_id": "para_427" }, { "text": "to contest the statutory basis for the broader terrorist watchlist.", "paragraph_id": "para_428" }, { "text": "But this petition, brought under our Section 46110(a)", "paragraph_id": "para_429" }, { "text": "jurisdiction, provides no basis to review the actions of the FBI", "paragraph_id": "para_430" }, { "text": "or the Center, which administer the terrorist watchlist. See", "paragraph_id": "para_431" }, { "text": "Abdellatif, 109 F.4th at 567-68 (emphasizing that “this court", "paragraph_id": "para_432" }, { "text": "cannot order [the Screening Center] to do anything in the", "paragraph_id": "para_433" }, { "text": "exercise of its § 46110(a) jurisdiction”). As to Khalid’s No Fly", "paragraph_id": "para_434" }, { "text": "List challenge, although the No Fly List undoubtedly places a", "paragraph_id": "para_435" }, { "text": "large burden on designated individuals, Khalid fails to show", "paragraph_id": "para_436" }, { "text": "either a major question or a lack of statutory authorization.", "paragraph_id": "para_437" }, { "text": "Congress has authorized TSA to “use information from", "paragraph_id": "para_438" }, { "text": "government agencies to identify individuals . . . who may be a", "paragraph_id": "para_439" }, { "text": "threat to civil aviation or national security” and “prevent [such]", "paragraph_id": "para_440" }, { "text": "individual[s] from boarding an aircraft.” 49 U.S.C.", "paragraph_id": "para_441" }, { "text": "§ 114(h)(3)(A)-(B). As Khalid acknowledges, Pet’r Br. 48, 52,", "paragraph_id": "para_442" }, { "text": "that provides statutory authority for TSA’s use and", "paragraph_id": "para_443" }, { "text": "maintenance of the No Fly List.", "paragraph_id": "para_444" }, { "text": "15", "paragraph_id": "para_445" }, { "text": "IV.", "paragraph_id": "para_446" }, { "text": "For the foregoing reasons, we dismiss the petition for", "paragraph_id": "para_447" }, { "text": "review to the extent it raises a claim under RFRA and in all", "paragraph_id": "para_448" }, { "text": "other respects we deny it.", "paragraph_id": "para_449" }, { "text": "So ordered.", "paragraph_id": "para_450" } ], "word_count": 3796, "cites": [ "573 U.S.\n149", "568\nU.S. 398", "495 U.S. 149", "504 U.S. 555", "484 U.S. 1", "484 U.S. 518", "521 U.S. 702", "453 U.S. 280", "424 U.S. 319", "380 U.S. 545", "500 U.S. 226", "424 U.S. 693", "401 U.S. 402", "597 U.S. 697", "62 F.4th 547", "716 F.3d 679", "370 F.3d 1174", "785\nF.2d 1043", "109 F.4th 562", "327 F.3d 1238", "435 F.3d 1125", "610 F.3d 110", "897 F.3d 241", "237 F.2d 741", "923 F.2d 188" ], "cited_by": [], "sha256": "7f083d93019707b802b9d5a8d5e0b59023a09b24b309674e43c200c0ceb71e59", "source_url": "https://media.cadc.uscourts.gov/opinions/docs/2026/04/23-1150.pdf", "fetched_at": "2026-09-28T06:12:14.84+00:00", "canonical": "https://legal.exploreworldai.com/ai/judgments/us/cadc-23-1150-2026-04-14", "risk_graph": "https://legal.exploreworldai.com/api/public/v1/risk?id=us:cadc-23-1150-2026-04-14", "relations_graph": "https://legal.exploreworldai.com/api/public/v1/relations?id=us:cadc-23-1150-2026-04-14", "changes": "https://legal.exploreworldai.com/api/public/v1/us-praxis/changes", "agent": "https://legal.exploreworldai.com/api/public/v1/us-praxis/agent?id=us:cadc-23-1150-2026-04-14" }, "hash": "sha256:b26a5698dfbdc73beb0a9eae536ce236bf9091fd47bb4c3c92d623712169c3ad", "version": "legal-2026-10-09", "expires": "2026-10-11T00:00:00.000Z", "dependency": { "index_version": "legal-2026-10-09+legal-2026-10-09+2026-10-09T21:48:48", "content_hash": "sha256:b26a5698dfbdc73beb0a9eae536ce236bf9091fd47bb4c3c92d623712169c3ad", "revalidate_after": "2026-10-10T01:37:22.195Z", "max_copy_age_seconds": 3600, "policy": "revalidate-required; attribution-preferred", "changelog": "https://legal.exploreworldai.com/api/public/v1/dependency", "verify": "https://legal.exploreworldai.com/api/public/v1/verify", "stale_copy_invalid": true }, "canonical": "https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:cadc-23-1150-2026-04-14", "follow": [ { "rel": "risk", "href": "https://legal.exploreworldai.com/api/public/v1/risk?id=us:cadc-23-1150-2026-04-14" }, { "rel": "relations", "href": "https://legal.exploreworldai.com/api/public/v1/relations?id=us:cadc-23-1150-2026-04-14" }, { "rel": "agent", "href": "https://legal.exploreworldai.com/api/public/v1/us-praxis/agent?id=us:cadc-23-1150-2026-04-14" }, { "rel": "obligations", "href": "https://legal.exploreworldai.com/api/public/v1/obligation-chain" }, { "rel": "changes", "href": "https://legal.exploreworldai.com/api/public/v1/whats-new?jurisdiction=us" } ], "disclaimer": "Source reference with official identifier. 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