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ACRP
AIRPORT
COOPERATIVE
RESEARCH
PROGRAM
REPORT 61
Sponsored by
the Federal
Aviation
Administration
Elimination or Reduction of
Baggage Recheck for Arriving
International Passengers
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ACRP OVERSIGHT COMMITTEE* TRANSPORTATION RESEARCH BOARD 2012 EXECUTIVE COMMITTEE*
CHAIR OFFICERS
James Wilding Chair: Sandra Rosenbloom, Professor of Planning, University of Arizona, Tucson
Metropolitan Washington Airports Authority Vice Chair: Deborah H. Butler, Executive Vice President, Planning, and CIO, Norfolk Southern
(retired) Corporation, Norfolk, VA
Executive Director: Robert E. Skinner, Jr., Transportation Research Board
VICE CHAIR
Jeff Hamiel MEMBERS
MinneapolisSt. Paul
Metropolitan Airports Commission J. Barry Barker, Executive Director, Transit Authority of River City, Louisville, KY
William A.V. Clark, Professor of Geography and Professor of Statistics, Department of Geography,
MEMBERS University of California, Los Angeles
James Crites
Eugene A. Conti, Jr., Secretary of Transportation, North Carolina DOT, Raleigh
DallasFort Worth International Airport James M. Crites, Executive Vice President of Operations, Dallas-Fort Worth International Airport, TX
Richard de Neufville Paula J. C. Hammond, Secretary, Washington State DOT, Olympia
Massachusetts Institute of Technology Michael W. Hancock, Secretary, Kentucky Transportation Cabinet, Frankfort
Kevin C. Dolliole Chris T. Hendrickson, Duquesne Light Professor of Engineering, Carnegie-Mellon University,
Unison Consulting Pittsburgh, PA
John K. Duval Adib K. Kanafani, Professor of the Graduate School, University of California, Berkeley
Austin Commercial, LP Gary P. LaGrange, President and CEO, Port of New Orleans, LA
Kitty Freidheim Michael P. Lewis, Director, Rhode Island DOT, Providence
Freidheim Consulting
Susan Martinovich, Director, Nevada DOT, Carson City
Steve Grossman
Jacksonville Aviation Authority Joan McDonald, Commissioner, New York State DOT, Albany
Tom Jensen Michael R. Morris, Director of Transportation, North Central Texas Council of Governments, Arlington
National Safe Skies Alliance Neil J. Pedersen, Consultant, Silver Spring, MD
Catherine M. Lang Tracy L. Rosser, Vice President, Regional General Manager, Wal-Mart Stores, Inc., Mandeville, LA
Federal Aviation Administration Henry G. (Gerry) Schwartz, Jr., Chairman (retired), Jacobs/Sverdrup Civil, Inc., St. Louis, MO
Gina Marie Lindsey Beverly A. Scott, General Manager and CEO, Metropolitan Atlanta Rapid Transit Authority, Atlanta, GA
Los Angeles World Airports David Seltzer, Principal, Mercator Advisors LLC, Philadelphia, PA
Carolyn Motz Kumares C. Sinha, Olson Distinguished Professor of Civil Engineering, Purdue University,
Airport Design Consultants, Inc.
West Lafayette, IN
Richard Tucker
Huntsville International Airport
Thomas K. Sorel, Commissioner, Minnesota DOT, St. Paul
Daniel Sperling, Professor of Civil Engineering and Environmental Science and Policy; Director, Institute
EX OFFICIO MEMBERS of Transportation Studies; and Acting Director, Energy Efficiency Center, University of California, Davis
Kirk T. Steudle, Director, Michigan DOT, Lansing
Paula P. Hochstetler
Airport Consultants Council
Douglas W. Stotlar, President and CEO, Con-Way, Inc., Ann Arbor, MI
Sabrina Johnson C. Michael Walton, Ernest H. Cockrell Centennial Chair in Engineering, University of Texas, Austin
U.S. Environmental Protection Agency
Richard Marchi EX OFFICIO MEMBERS
Airports Council International--North America Rebecca M. Brewster, President and COO, American Transportation Research Institute, Smyrna, GA
Laura McKee Anne S. Ferro, Administrator, Federal Motor Carrier Safety Administration, U.S.DOT
Air Transport Association of America
LeRoy Gishi, Chief, Division of Transportation, Bureau of Indian Affairs, U.S. Department of the
Henry Ogrodzinski
National Association of State Aviation Officials Interior, Washington, DC
Melissa Sabatine John T. Gray II, Senior Vice President, Policy and Economics, Association of American Railroads,
American Association of Airport Executives Washington, DC
Robert E. Skinner, Jr. John C. Horsley, Executive Director, American Association of State Highway and Transportation
Transportation Research Board Officials, Washington, DC
Michael P. Huerta, Acting Administrator, Federal Aviation Administration, U.S.DOT
SECRETARY David T. Matsuda, Administrator, Maritime Administration, U.S.DOT
Christopher W. Jenks Michael P. Melaniphy, President and CEO, American Public Transportation Association, Washington, DC
Transportation Research Board Victor M. Mendez, Administrator, Federal Highway Administration, U.S.DOT
Tara O'Toole, Under Secretary for Science and Technology, U.S. Department of Homeland Security,
Washington, DC
Robert J. Papp (Adm., U.S. Coast Guard), Commandant, U.S. Coast Guard, U.S. Department
of Homeland Security, Washington, DC
Cynthia L. Quarterman, Administrator, Pipeline and Hazardous Materials Safety Administration,
U.S.DOT
Peter M. Rogoff, Administrator, Federal Transit Administration, U.S.DOT
David L. Strickland, Administrator, National Highway Traffic Safety Administration, U.S.DOT
Joseph C. Szabo, Administrator, Federal Railroad Administration, U.S.DOT
Polly Trottenberg, Assistant Secretary for Transportation Policy, U.S.DOT
Robert L. Van Antwerp (Lt. Gen., U.S. Army), Chief of Engineers and Commanding General,
U.S. Army Corps of Engineers, Washington, DC
Barry R. Wallerstein, Executive Officer, South Coast Air Quality Management District,
Diamond Bar, CA
Gregory D. Winfree, Acting Administrator, Research and Innovative Technology Administration,
U.S.DOT
*Membership as of July 2011. *Membership as of February 2012.
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A I R P O R T c oop e rati v e R e s e ar c h P ro g ra m
ACRP Report 61
Elimination or Reduction of
Baggage Recheck for Arriving
International Passengers
Solomon Wong
Stanley Tse
Aaron Beeson
Henry Ristic
Howard Mann
InterVISTAS Consulting Group
Bethesda, MD
Subscriber Categories
Aviation · Security and Emergencies
Research sponsored by the Federal Aviation Administration
Transportation Research Board
Washington, D.C.
2012
www.TRB.org
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AIRPORT COOPERATIVE RESEARCH PROGRAM ACRPREPORT 61
Airports are vital national resources. They serve a key role in trans Project 10-09
portation of people and goods and in regional, national, and inter ISSN 1935-9802
national commerce. They are where the nation's aviation system ISBN 978-0-309-21395-0
connects with other modes of transportation and where federal respon Library of Congress Control Number 2012932768
sibility for managing and regulating air traffic operations intersects
with the role of state and local governments that own and operate most © 2012 National Academy of Sciences. All rights reserved.
airports. Research is necessary to solve common operating problems,
to adapt appropriate new technologies from other industries, and to
introduce innovations into the airport industry. The Airport Coopera COPYRIGHT Information
tive Research Program (ACRP) serves as one of the principal means by
Authors herein are responsible for the authenticity of their materials and for obtaining
which the airport industry can develop innovative near-term solutions
written permissions from publishers or persons who own the copyright to any previously
to meet demands placed on it. published or copyrighted material used herein.
The need for ACRP was identified in TRB Special Report 272: Airport
Research Needs: Cooperative Solutions in 2003, based on a study spon Cooperative Research Programs (CRP) grants permission to reproduce material in this
publication for classroom and not-for-profit purposes. Permission is given with the un
sored by the Federal Aviation Administration (FAA). The ACRP carries derstanding that none of the material will be used to imply TRB or FAA endorsement
out applied research on problems that are shared by airport operating of a particular product, method, or practice. It is expected that those reproducing the
agencies and are not being adequately addressed by existing federal material in this document for educational and not-for-profit uses will give appropriate
research programs. It is modeled after the successful National Coopera acknowledgment of the source of any reprinted or reproduced material. For other uses of
tive Highway Research Program and Transit Cooperative Research Pro the material, request permission from CRP.
gram. The ACRP undertakes research and other technical activities in a
variety of airport subject areas, including design, construction, mainte
nance, operations, safety, security, policy, planning, human resources, NOTICE
and administration. The ACRP provides a forum where airport opera
tors can cooperatively address common operational problems. The project that is the subject of this report was a part of the Airport Cooperative Research
Program, conducted by the Transportation Research Board with the approval of the Gov
The ACRP was authorized in December 2003 as part of the Vision erning Board of the National Research Council.
100-Century of Aviation Reauthorization Act. The primary participants in
the ACRP are (1) an independent governing board, the ACRP Oversight The members of the technical panel selected to monitor this project and to review this
report were chosen for their special competencies and with regard for appropriate balance.
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stakeholders, and relevant industry organizations such as the Airports by the Governing Board of the National Research Council.
Council International-North America (ACI-NA), the American Associa
The opinions and conclusions expressed or implied in this report are those of the research
tion of Airport Executives (AAAE), the National Association of State ers who performed the research and are not necessarily those of the Transportation Re
Aviation Officials (NASAO), Airlines for America (A4A), and the Airport search Board, the National Research Council, or the program sponsors.
Consultants Council (ACC) as vital links to the airport community; (2)
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the TRB as program manager and secretariat for the governing board; Council, and the sponsors of the Airport Cooperative Research Program do not endorse
and (3) the FAA as program sponsor. In October 2005, the FAA executed products or manufacturers. Trade or manufacturers' names appear herein solely because
a contract with the National Academies formally initiating the program. they are considered essential to the object of the report.
The ACRP benefits from the cooperation and participation of airport
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sibilities, and each is an integral part of this cooperative research effort.
Research problem statements for the ACRP are solicited periodically
but may be submitted to the TRB by anyone at any time. It is the
responsibility of the AOC to formulate the research program by iden
tifying the highest priority projects and defining funding levels and
expected products.
Once selected, each ACRP project is assigned to an expert panel,
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fessionals, the intended users of the research products. The panels pre
pare project statements (requests for proposals), select contractors, and
provide technical guidance and counsel throughout the life of the
project. The process for developing research problem statements and
Published reports of the
selecting research agencies has been used by TRB in managing cooper Airport cooperative research program
ative research programs since 1962. As in other TRB activities, ACRP
are available from:
project panels serve voluntarily without compensation.
Primary emphasis is placed on disseminating ACRP results to the Transportation Research Board
Business Office
intended end-users of the research: airport operating agencies, service 500 Fifth Street, NW
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shops, training aids, field visits, and other activities to ensure that http://www.national-academies.org/trb/bookstore
results are implemented by airport-industry practitioners. Printed in the United States of America
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The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific
and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the
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government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel
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Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council.
The Transportation Research Board is one of six major divisions of the National Research Council. The mission of the Transporta-
tion Research Board is to provide leadership in transportation innovation and progress through research and information exchange,
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als interested in the development of transportation. www.TRB.org
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cooperative Research programs
CRP STAFF for ACRP Report 61
Christopher W. Jenks, Director, Cooperative Research Programs
Crawford F. Jencks, Deputy Director, Cooperative Research Programs
Michael R. Salamone, ACRP Manager
Theresia H. Schatz, Senior Program Officer
Tiana Barnes, Senior Program Assistant
Eileen P. Delaney, Director of Publications
Natalie Barnes, Editor
ACRP PROJECT 10-09 Panel
Field of Operations
Stephen D. Van Beek, LeighFisher, Washington, DC (Chair)
Timothy L. Anderson, Metropolitan Airports Commission, Minneapolis, MN
David J. Bourgon, McCarran International Airport, Las Vegas, NV
Hans Hauck, American Airlines, Fort Worth, TX
Theodore S. Kitchens, Newport News/Williamsburg International Airport, Newport News, VA
Peter Mandle, LeighFisher, Burlingame, CA
Christopher Teem, Boeing Commercial Airplanes, Airport Technology, Seattle, WA
Jay A. Turney, Delta Air Lines, Inc., Atlanta, GA
Paul Lo, FAA Liaison
Christopher R. Bidwell, Airports Council InternationalNorth America Liaison
Richard Marchi, Airports Council InternationalNorth America Liaison
Christine Gerencher, TRB Liaison
author ACKNOWLEDGMENTS
The research reported herein was performed under ACRP Project 10-09 by InterVISTAS-ga2 Consult
ing (hereafter referred to as "InterVISTAS Consulting Group") of Bethesda, Maryland. InterVISTAS
Consulting Group authored this report with the support of CAGE Inc., Transecure, and Airline Capital
Associates.
Solomon Wong was the Principal Investigator, with primary project researchers Stanley Tse, Aaron
Beeson, Henry Ristic, and Howard Mann. Other researchers from InterVISTAS Consulting Group
include George Novak, Sam Sugita, Eddy Bordignon, Mike Morstein, Alex Welch, and Janet Labuda.
Investigators from partner organizations are Art Kosatka, Howard Scheffler, Susan Prediger (while
employed by CAGE Inc.), Donald Schenk, Frank Rosenburg, and David Z. Plavin.
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foreword
By Theresia H. Schatz
Staff Officer
Transportation Research Board
ACRP Report 61: Elimination or Reduction of Baggage Recheck for Arriving International
Passengers (1) identifies potential alternative procedures that could be implemented to
reduce or eliminate the need for the recheck of baggage for arriving international passengers
at U.S. airports; (2) describes in detail the benefits and costs associated with these alternative
procedures to airports, airlines, and federal agencies; and (3) compares potential alternative
procedures with current practices. This report will assist airports, airlines, and other stake
holders in examining policies, processes, and other drivers behind baggage recheck facilities
that could lead to improved connections.
International passengers arriving in the United States and connecting to another des
tination must collect their baggage within a U.S. Customs and Border Protection (CBP)
facility. CBP may monitor or question passengers with respect to various issues relating
to their trip purpose and duration and potentially refer them to Secondary Processing
for additional baggage inspection. In reality, the large majority of passengers are cleared
by CBP without Secondary Processing; however, all connecting bags must be handled by
airlines multiple times. If the baggage for these passengers could be quickly identified and
retrieved at the request of federal officials, other passengers would be able to continue
their journey unimpeded through the terminal without having to wait for and recheck
their baggage. If this streamlining were possible, there could be a potential for improving
operations with cost savings.
This report was developed from the research conducted for ACRP Project 10-09 by
InterVISTAS Consulting Group. The report includes case studies conducted at a variety
of international airport arrival facilities that represent a cross section of terminal facilities,
airline alliances, and operating characteristics. Also contained are appendices that pro
vide additional information including an inventory of current recheck procedures and an
evaluation of alternative procedures as well as industry stakeholder feedback.
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Contents
1 Summary
5 Chapter 1 Background
5 Context
5 What Mandates Baggage Recheck?
6 Increasing Pressures
7 Cost-Effective Risk-Based Solutions Needed
8 Differentiating Between "Eliminate" and "Reduce"
8 Research Approach
10 Chapter 2 Current Context for Baggage Recheck
10 International Arrivals Connection Market
11 Process Flows for Terminating and Connecting Passengers
16 Chapter 3 Airport Case Studies
16 Case Study 1: Dallas/Fort Worth International Airport
22 Case Study 2: HartsfieldJackson Atlanta International Airport
28 Case Study 3: San Francisco International Airport
34 Case Study 4: Seattle-Tacoma International Airport
37 Chapter 4 Testing and Evaluating Potential Solutions
37 Trends in Border Risk Management Relevant to This Study
37 Activities Before a Flight Takes Off from a Foreign Airport
38 Processes Immediately upon Arrival to a U.S. Airport
38 Other Measures Undertaken Prior to the Next Flight
38 Potential Solutions
38 Alternative Procedure 1: Exemption of Checked Baggage from FIS
39 Alternative Procedure 2: Alternative Procedure 1 + New Airline/Airport
Processes on Arrival
40 Alternative Procedure 3: Alternative Procedure 1 + New CBP Processes
on Arrival
41 Alternative Procedure 4: Enhanced Pre-departure Information
42 Alternative Procedure 5: Information Sharing with TSA Programs
43 Alternative Procedure 6: Leveraging Other DHS Programs
44 Alternative Procedure 7: Door-to-Door Baggage Service
45 High-Level Evaluation Model
45 Market Demand
45 Airlines
45 Airports
45 CBP Risk Management
46 Testing Process and Results
46 Test 1: Radio Frequency Identification Passenger and Bag Timing
48 Test 2: Information Sharing Between TSA and CBP on Connecting Bags
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49 Test 3: Expansion of International-to-International Recheck Reduction
Process
50 Test 4: Minimum Connection Time Modeling
52 Test 5: Simulation Modeling
54 Chapter 5 Findings
54 Stakeholder Analysis
54 Generic Impact Analysis
57 Solutions
63 Evaluation Results
67 Chapter 6 Conclusions
68 Applying Research to Practice
69 Challenges
69 A Path for Improvement
70 Potential Additional Actions
71 Notes and References
72 List of Abbreviations and Acronyms
74 Glossary
A-1 Appendix A Connecting Traffic Analysis (2008)
B-1 Appendix B Airport Profiles
C-1 Appendix C Inventory of Current Recheck Procedures
D-1 Appendix DPrimer on Airport Processes and Border Risk
Management
E-1 Appendix E Technical Memorandum on Testing
F-1 Appendix F Evaluation of Alternative Procedures
G-1 Appendix G Industry Stakeholder Feedback
Note: Many of the photographs, figures, and tables in this report have been converted from color to grayscale
for printing. The electronic version of the report (posted on the Web at www.trb.org) retains the color versions.
