Phil, "TSA" refers to TSA approved locks. they can be opened by TSA agents with special keys that they have. The locks can be bought at any place that sells luggage. The locks are your locks, not TSA's. They arenT "owned" by TSA. They are locks that you buy and own.
As regards booking in procedures, The ticket agent not the TSA agent, can and normally does give you the orange form to fill own and enclose in your case. That is separate from the TSA clerks responsibility which is to make sure that the case can be and is locked and to insure that there is no ammo or contraband in the case.
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