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Guidelines for Improving Airport Services for International Customers (2016)

Chapter: Chapter 6 - Precleared Arriving Passengers

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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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Suggested Citation:"Chapter 6 - Precleared Arriving Passengers." National Academies of Sciences, Engineering, and Medicine. 2016. Guidelines for Improving Airport Services for International Customers. Washington, DC: The National Academies Press. doi: 10.17226/23683.
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170 C H A P T E R 6 Precleared arriving passengers go through the same U.S. CBP processes as international arriv- ing passengers (discussed in Chapter 4), except the CBP preclearance facilities are located at the departure airport in a foreign country. Precleared arriving passengers are essentially treated as domestic passengers from a processing standpoint upon their arrival in the United States. How- ever, even though precleared, they are still international travelers and have many of the same needs as international arriving passengers. The CBP inspection process conducted at the foreign airport is defined in the CBP ATDS and may be handled slightly differently at each foreign airport depending on the configuration of the facilities. However, the inspection process includes the same basic components, passport control and customs inspection, as at U.S. airports. The key difference is the precleared departing passen- gers may have their checked baggage with them at passport control and deposit it with the airline after they complete the customs inspection. Upon arrival in the United States, precleared arriving passengers claim their baggage at a domestic baggage claim area or proceed to their connecting flight, without the need to claim their check baggage. The purpose of this chapter is to provide airport stakeholders with guidelines specific to the unique needs of precleared arriving passengers so the appropriate services and facilities can be provided to enhance their airport experience. 6.1 Overview of the Precleared Arriving Passenger Journey Segment Figure 6-1 illustrates the journey for precleared arriving passengers. It begins with the arrival of precleared passengers at the U.S. airport and considers both connecting passengers and those whose final destination is the region served by the arrival airport. This chapter covers the unique needs of precleared arriving passengers who are connecting or completing their journey. As described in Chapter 2, the journey of a precleared arriving passenger includes the follow- ing steps: • Pre-trip planning • CBP preclearance (located at foreign airport) • Arrival gate (domestic or international terminal) to Connecting Flight Departure Gate • Arrival gate to baggage claim • Baggage claim to arrivals hall (covered in Chapter 4) • Terminal arrivals roadway/ground transportation (covered in Chapter 4) • Airport egress roadway (covered in Chapter 4) • Journey from the airport (covered in Chapter 4) Precleared Arriving Passengers

Precleared Arriving Passengers 171 6.1.1 Customer Needs and Expectations As described in Chapter 2, the challenges experienced by international arriving passengers may include general travel anxiety, jet lag, travel fatigue, and language barrier. Research suggests that anxiety among passengers arriving on an international flight is most likely to occur at border control and at baggage claim. In the survey, about half (53 percent) of all departing passengers were infrequent travelers, hav- ing taken only one or two flights in the last year. For some of these passengers, the preclearance process at the foreign departure may be unexpected. This is an important consideration since some foreign airports may experience long lines at the CBP preclearance facility during peak periods (e.g., Monday mornings at Toronto Pearson International Airport). These passengers may need to get to the airport earlier than if they were taking an international flight that did not require them to go through border control at the departure airport. Upon arrival to the United States, precleared passengers arrive at the gate in the same manner as domestic passengers. Terminating passengers require directional information to baggage claim. At some airports, precleared arriving passengers collect their bags in the same area as domestic passengers and at other airports the precleared baggage claim is in a separate location from the domestic baggage claim. The information for the connecting passenger must be easy to locate and easy to read. The signage should provide information about the connecting flight including gate information, flight updates, and directional information to the departure gate. Short walking distances are very important to international arriving passengers because this group is likely to experience jet lag and travel fatigue, particularly passengers on long-haul flights who may have spent up to 16 hours on a flight spanning multiple time zones. Travel fatigue causes passengers to feel disoriented and decreases their ability to carry out the physical and mental tasks essential to navigate within an airport. 6.2 Pre-Trip Planning Most passengers are likely unaware of whether their flight to the United States from a foreign airport is a precleared flight or a normal international flight with the border control processes conducted at the arrival airport. It is important for the airport and airline websites to provide Source: ACRP 03-35 Research Team Figure 6-1. Precleared arriving passenger journey segment.

172 Guidelines for Improving Airport Services for International Customers information about whether or not a flight will be precleared so passengers can familiarize them- selves with the process and set their expectations accordingly before they begin their journey. 6.2.1 Key Activities The pre-trip planning activities unique to precleared arriving passengers primarily involve the use of the airport and airline websites to understand how the border control process at the departure airport will affect their travel plans and to identify their arrival terminal so they can coordinate how to connect to another flight or claim their checked baggage. 6.2.2 Customer Needs and Expectations Completing CBP inspection at a foreign airport can be convenient for frequent travelers aware of which foreign airports provide this service for international passengers traveling to the United States. However, for less frequent travelers going through CBP inspection at the foreign airport, the process may be unexpected. The consequence of not realizing they need to go through border control at the departure airport could result in passengers missing their flight if the lines are long at the CBP preclearance facility, particularly during peak periods when many flights are departing to the United States within a short period of time. 6.2.3 Customer Service Person-to-person customer service during this segment of the precleared arriving passenger journey is limited to airport or airline telephone help desks or social media links provided on the stakeholder’s websites. 6.2.4 Physical Environment There is no physical environment associated with this segment of the precleared arriving passenger journey. 6.2.5 Information Dissemination Because the CBP inspection process is conducted at the foreign airport, the pre-trip plan- ning information for a precleared arriving passenger is primarily communicated through the arriving airport’s website. Of particular importance to precleared arriving passengers is infor- mation about the terminal where they will be arriving, where they will claim their baggage or how they will connect to their departing flight, and the services and amenities available within the terminal. 6.3 Precleared Arrival Gate to Connecting Flight Precleared arriving passengers connecting to other flights are handled the same as domestic arriving passengers connecting to other flights. Once they deplane, customers will need con- necting flight information and directions to their departure gate for the connecting flight. While most precleared arriving passengers will be aware they do not have to go through the border control inspection process again, they may not understand the security procedures required, if any, to get from their arrival terminal to their departing flight. They may also be uncertain about whether they have to claim their checked baggage or if it will be checked through to their departing flight.

Precleared Arriving Passengers 173 6.3.1 Key Activities Precleared arriving passengers connecting to another flight are likely to utilize the following: • FIDS • Airport maps illustrating how to get to each terminal • Airport information counters 6.3.2 Customer Needs and Expectations After passengers deplane, they need specific information about their next flight. First, they need to know where they are in the airport (i.e., gate, concourse or terminal). Gate numbers are usually easy to find but not all airports include terminal or concourse information on wayfinding signage. Second, these passengers need to determine at which gate their connecting flight can be found and the status of their flight (i.e., on time, delayed, etc.). These passengers will be on the lookout for FIDS for this information. Lastly, these passengers require directions to their next flight. Wayfinding signs should be spaced at regular intervals and at decision points to reassure passengers they are following the correct path. Some connections require passengers to change terminals. In these situations, connecting passengers need to know the options available to get there (e.g., walk versus ride) and how much time would each option take to reach their gate. Depending on the airport, connecting passen- gers may be required to leave a secure area to travel to their departure gate and they may not be expecting to do so. To avoid confusion and potential frustration about having to go through an additional security checkpoint, passengers should be provided with this information before they leave the secure area. In the survey, connecting passengers were asked to rate the relative importance of 15 airport features. The most important airport features were ease of wayfinding (87 percent), helpful staff (84 percent), and flight information screens (84 percent). The least important features included shopping and restaurants (32 percent) and short walking distances (40 percent), as shown in Figure 6-2. Although short walking distances were not identified as being very important by most pas- sengers in the survey, connecting passengers were much more likely to express dissatisfaction about walking distances as compared to departing or arriving passengers. Figure 6-2. Passenger survey results: most important airport features to connecting passengers. Source: ACRP 03-35 Research Team

174 Guidelines for Improving Airport Services for International Customers 6.3.3 Customer Service Person-to-person customer service is a critical element for precleared arriving passengers connecting to other flights. Customer service may also be delivered through visual and virtual sources, such as wayfinding signage and digital information kiosks. Basic Requirements Customer Service Staff at the Arrival Gate: Airlines operating preclearance flights should provide customer service staff at the arrival gate to assist customers connecting to other flights. The staff should be able to provide updated flight information, departure gate location, informa- tion about checked baggage, and the best way to reach the departure gate. They should also make customers aware of whether they will have to pass through security to reach their departure gate or if they will have to claim their checked baggage and recheck it with the airline providing their connecting flight. This will help customers determine if they have time to shop and dine in the arrival terminal or if they should proceed to the departure terminal as soon as possible. Airport Information Counters: Precleared arriving passengers should have access to airport information counters as they enter key intersections within their arrivals terminal. The informa- tion counter staff should be able to provide information about how to get to their connecting flight and the services and amenities available along the journey to their departure gate. The information counters may also need access to language services as some precleared arriving pas- sengers may have limited English language capabilities. 6.3.4 Physical Environment There are no unique physical environment requirements for precleared arriving passengers. 6.3.5 Information Dissemination Information needed for precleared arriving passengers making a connection is essentially the same as international connecting passengers once they re-enter the secure area. They need infor- mation to understand: • Where they are, i.e., which terminal or gate area • Their connecting gate information • The location of their departure gate • The best way to get to their departure gate, which may involve a walk versus ride decision • Confirmation they have arrived at the correct destination This information is commonly delivered through a combination of static and digital signage and verbal communication. Accommodations for passengers with LEP should be considered based on the country of origin. Chapter 5 provides a more detailed description of the methods for disseminating important information to international connecting passengers. 6.4 Precleared Arrival Gate to Domestic Baggage Claim Most U.S. international airports are frequently used by domestic flights and therefore are equipped to handle precleared international arriving passengers who do not have to be processed through the CBP facilities. While the journey from the arrival gate to the baggage claim for precleared arriv- ing passengers is the same as domestic arriving passengers, it is important to remember they are not domestic passengers. Specifically, the baggage claim physical environment considerations and arrivals hall needs and expectations must be the same as international arriving passengers.

Precleared Arriving Passengers 175 6.4.1 Key Activities Precleared arriving passengers not connecting to other flights move on from the arrival gate to the designated baggage claim to claim their checked baggage. These passengers may require the following services: • Baggage carts or baggage assistance • Airline baggage service assistance Some precleared arriving passengers connecting to other flights may have to claim their checked baggage and recheck it with their departing airline. The customer service, physical environment, and information dissemination considerations for these passengers would be the same as inter- national connecting passengers, which is described in Chapter 5. 6.4.2 Customer Needs and Expectations Since precleared passengers have already completed CBP inspection before they arrive at a U.S. airport, these passengers experience the airport in the same way as a domestic arriving passenger. Depending on the airport and airline, the arrival gate may be located with other international flights or other domestic flights; these passengers may be directed to the general baggage claim area (e.g., baggage claim) or a specific baggage claim area for precleared arriving passengers (e.g., international baggage claim versus domestic baggage claim). Short walking distances are important to international arriving passengers as this group is likely to experience jet lag and travel fatigue, particularly passengers on long-haul flights who may have spent up to 16 hours on a flight spanning multiple time zones. Travel fatigue causes passengers to feel disoriented and decreases their ability to carry out the physical and mental tasks essential to navigate from the gate to baggage claim. In the survey, all passengers were asked to rate how important short walking distances were at any airport using a three-point scale (very important, somewhat important, or not important). Overall, 41 percent of passengers said short walking distances were very important. As shown in Figure 6-3, arriving passengers were much more likely to indicate short walking distances were very important (62 percent) as compared to departing passengers (39 percent) or connecting passengers (39 percent to 41 percent depending on connection type). Source: ACRP 03-35 Research Team Figure 6-3. Importance of short walking distances to arriving passengers as compared to departing and connecting passengers.

176 Guidelines for Improving Airport Services for International Customers 6.4.3 Customer Service Person-to-person customer service during this segment of the precleared arriving passenger journey is focused on airline personnel providing customers with directions to the domestic baggage claim hall and to baggage service assistance for lost or damaged baggage. Basic Requirements Customer Service Staff at the Arrival Gate: Airlines operating preclearance flights should provide customer service staff at the arrival gate to direct customers to the domestic baggage claim devices assigned to their flight. They should also provide baggage claim information for connecting passengers who may have to reclaim their baggage and recheck it before proceeding to their departure gate. Baggage Carts/Baggage Assistance: Precleared arriving passengers have the same checked baggage characteristics as international arriving passengers. These customers typically have more checked baggage than domestic passengers; since the aircraft can be much larger than most aircraft used for U.S. domestic flights, there can be significantly more checked bags than for a domestic flight. As discussed in Chapter 4, international arriving passengers are typically provided free baggage carts in the international baggage claim hall. This is not the case for domestic passengers. Airport operators receiving precleared arriving flights should consider providing free baggage carts in the domestic bag claim hall during the periods it is being used for precleared flights. Airports should also consider providing for-hire baggage assistance during preclearance flights as many customers may be traveling with their entire family or in large groups and have more checked baggage than they can easily handle. Baggage assistance is also very important for elderly or passengers with disabilities who have difficulty or are unable to transport their own baggage. Baggage Delivery Times: Baggage delivery times for precleared flights should be, at a minimum, the same as those for international arriving flights (as described in Chapter 4) or faster as customers do not have to go through the CBP inspection process prior to reaching the domestic or precleared baggage claim hall. Long baggage delivery times will likely result in severe congestion in the baggage claim hall, especially for wide-body precleared flights. Seating: Because precleared arriving passengers are likely to arrive in the domestic baggage claim hall well before their baggage is delivered, seating for customers is another important cus- tomer service consideration. This is especially beneficial for the elderly or people with disabilities who may be traveling with someone who can retrieve their baggage while they wait. The seating should be adjacent to the carousels so parties can remain within sight of each other. Airline Baggage Services: Airlines operating precleared flights should consider providing baggage services within the domestic baggage claim area, similar to the domestic airlines. How- ever, foreign airlines operating only one or two international flights per day may only provide that service at the ticketing counters. The key consideration is for customers to be provided with the information to contact their airline to inquire about the status of their baggage. For airlines that do not provide baggage services in the baggage claim hall, an information kiosk should provide the local and global contact information for each airline serving that terminal. 6.4.4 Physical Environment The physical environment consideration for precleared arriving passengers is the domestic baggage claim hall, particularly when wide-body aircraft are used for precleared flights. The domestic baggage claim hall should be able to accommodate all of the passengers from pre- cleared flights in a manner similar to international baggage claim halls. Precleared flights operat- ing on narrowbody aircraft have similar physical environment requirements as domestic flights.

Precleared Arriving Passengers 177 Basic Requirements Inbound Baggage Delivery: Checked baggage from wide-body precleared flights will arrive in containers as compared to domestic narrowbody flights which are bulk-loaded. At a minimum, the inbound baggage delivery area for the domestic baggage claim hall used for precleared flights should be configured to allow the unloading of three or four containers at one time. It would be preferable for the baggage claim devices to have dual feed conveyors so two sets of three or four containers can be unloaded at the same time, substantially reducing the baggage delivery times. Baggage Claim Hall Capacity: Because passengers do not have to go through the CBP inspec- tion process, they will likely arrive at the baggage claim carousel well before the airline can deliver the checked baggage. The domestic baggage claim hall should have adequate space to accommo- date the passenger capacity of wide-body aircraft to avoid potential congestion in the domestic baggage claim hall. Airport terminal planners and designers should consider providing similar space in domestic baggage claim halls as in the international baggage claim halls to adequately accommodate precleared arriving flights. Baggage Claim Carousel Layout and Sizing: The baggage claim devices used for precleared flights should be sized and configured similar to those in the international baggage claim hall. Guidelines for the layout and sizing of the international baggage claim devices are provided in Chapter 4. Remote-fed flat-plate baggage claim devices should be considered because many cus- tomers are likely to have large pieces of checked baggage. Airports utilizing existing baggage claim devices not sized to handle all of the baggage from a wide-body precleared flight may consider using two devices: one for first and business class and the other for economy class. Removing baggage from a device and staging it on the floor may be another option but it is strongly dis- couraged because it may require customers to search for multiple pieces of baggage in different locations. Restrooms: The domestic baggage claim hall should include restrooms sized appropriately based on the anticipated number of precleared arriving passengers per flight; passengers may have to wait for checked baggage or may have bypassed the restrooms in the terminal con- course. The restrooms will likely be located on the perimeter of the baggage claim hall or within close proximity so customers can easily locate them while waiting for the delivery of their check baggage. Meeter/Greeter Area: Precleared arriving passengers will likely be met in the baggage claim hall by family and friends or pre-arranged ground transportation services, similar to interna- tional arriving passengers as they exit the CBP area. Airports with multiple wide-body precleared flights each day should consider installing a barrier, such as a rail, or designate an area for meeters and greeters to wait while precleared passengers retrieve their checked baggage. This will lessen congestion around the baggage claim devices. Guidelines for sizing the meeter/greeter area and the amenities and services that should be considered for meeters and greeters are provided in Chapter 4. 6.4.5 Information Dissemination The baggage claim area for precleared arriving passengers is located outside the CBP area in the same location as the baggage claim devices for all international arrivals. The primary infor- mation dissemination challenge for precleared arriving passengers during the arrival gate to baggage claim journey segment is when the terminal layout or operations create a non-linear or non-intuitive wayfinding scenario. For example, in some international terminals the bag claim devices are isolated from a logical, intuitive path of circulation. The solution relies heavily on clear signage to effectively guide precleared passengers through a step-by-step series of non- intuitive, non-linear decision points to locate their baggage. Proper planning and coordination

178 Guidelines for Improving Airport Services for International Customers is necessary to identify these types of scenarios and develop effective solutions. The consistent pairing of the international symbol with the term “baggage claim” is essential in assisting pre- cleared passengers with LEP to follow the signage. 6.4.6 Precleared Arrival Gate to Domestic Baggage Claim Journey Segment Evaluation Tool Figure 6-4 provides a summary of the basic requirements described above for the precleared arriving passengers’ journey from the arrival gate to baggage claim. The items are provided in chronological order to indicate when or where they should occur in the customer experience for this journey segment. 6.5 Domestic Baggage Claim to Arrivals Hall After retrieving their checked baggage, precleared arriving passengers may need to utilize the services and amenities commonly found in an international terminal arrivals hall (see Chapter 4). They may also need information about ground transportation services from the airport. This may be a challenge at airports where precleared flights are being accommodated in terminals that do not have international arrivals facilities or an arrivals hall suited for international customers. In this case, airport and airline stakeholders should provide at least the minimum services necessary, including information counters and ground transportation services. 6.5.1 Key Activities Since precleared arriving passengers who have claimed their checked baggage are essentially the same as international arriving passengers once they exit the CBP facilities, they may need to utilize the following features commonly found in the arrivals hall: • Commercial or public ground transportation services • Queuing and waiting areas for commercial or public ground transportation services • Business center or other commercial services • Arrivals lounge • Food and beverage and retail concessions Source: ACRP 03-35 Research Team Figure 6-4. Precleared arrival gate to domestic baggage claim journey segment evaluation tool.

Precleared Arriving Passengers 179 6.5.2 Customer Needs and Expectations Some arriving passengers will require wayfinding information to locate taxis, limousines, hotel shuttles, or other forms of ground transportation. Depending on the airport, these ser- vices may be accessed at service counters located within the terminal, just outside the doors at the curbside, at curbside on an outer island, within the parking garage, or at a remote building that can be accessed using a train or shuttle. As described in Chapter 4, depending on the size of the airport, the curbside area just outside the terminal building can be a busy area with an array of services occupying specific locations along the length of the terminal building and sometimes spanning several curbside islands. For unfamiliar passengers who may be jet lagged or fatigued, it may be challenging to find the loca- tions for passenger pick-up, taxi stand, limo stand, airport shuttles, public transportation, and other shuttles. Therefore, providing a directory map near each exit door to orient passengers to their location and the location of services is suggested. Key considerations include a general level of illumination, crosswalk visibility, and visibility of signs associated with each service. 6.5.3 Customer Service The customer service considerations for the arrivals hall are the same for international arriv- ing passengers, as described in Chapter 4. However, if precleared flights are accommodated in terminals without international arrivals facilities, other means of delivering customer service to precleared arriving passengers may have to be considered, such as digital information kiosks or customer service hotline phones. 6.5.4 Physical Environment The physical environment considerations for the arrivals hall are the same as for international arriving passengers, as described in Chapter 4. When planning and designing new international terminals, the location of the domestic baggage claim hall in relation to the arrivals hall should be examined to provide the precleared arriving passengers with convenient access to the same services and amenities as international arriving passengers. 6.5.5 Information Dissemination Information dissemination consideration for the arrivals hall is the same as for interna- tional arriving passengers, as described in Chapter 4. However, the wayfinding signage from the domestic baggage claim utilized by precleared flights should provide clear direction for custom- ers who need to utilize the services available in the arrivals hall, particularly if it is located in the same terminal. If there is not an arrivals hall in the terminal where precleared flights arrive, information counters or digital information kiosks should be provided so customers can get directions to the amenities or services they require.

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TRB's Airport Cooperative Research Program (ACRP) Research Report 161: Guidelines for Improving Airport Services for International Customers assists airport practitioners in implementing departure and arrival processes, passenger services, and wayfinding techniques for international travelers navigating through U.S. airports. The report covers processing international passengers from origin through gateway airports to their ultimate destination; identifies key elements of the international customer experience that can influence satisfaction in light of the customers’ diverse backgrounds; defines acceptable service levels that an international passenger experiences; and provides service metrics for passenger processing at airports, based upon internationally acceptable wait times.

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