PGDS V9 09.30.26 .pdf

Planning Guidelines and Design Standards for Checked Baggage Inspection Systems

Version 9.0 September 30, 2026

File 2600.3

Planning Guidelines and Design Standards for Checked Baggage Inspection Systems

Version 9.0

Date: September 30, 2026

This document was submitted on 9/15/2026 by:

Alex Fraguada-Pena, PGDS Lead and Type 1 Explosive Detection System Technology Manager, TSA

This document was approved on 9/30/2026 by:

Allison Stout, EBSP Program Manager, TSA

GENERAL INFORMATION

Planning Guidelines and Design Standards Version 9.0 for Checked Baggage Inspection Systems i September 30, 2026

VERSION HISTORY

Version Date Modifications

1.0 October 10, 2007 First published version

2.0 January 31, 2009 Update based on recommended follow-on studies and comments on Version 1.0

3.0 November 27, 2009 Update based on recommended follow-on studies and comments on Version 2.0

4.0 July 15, 2011 Update based on recommended follow-on studies and comments on Version 3.0

4.1 September 15, 2011 Update based on recommended follow-on studies and comments on Version 4.0

4.2 May 2, 2014 Update based on recommended follow-on studies and comments on Version 4.1

5.0 July 9, 2015 Update based on need for clear differentiation between requirements and best practices, follow-on studies, and comments on Version 4.2

6.0 September 29, 2017 Update based on recommended follow-on studies and comments on Version 5.0

7.0 August 21, 2020 Update based on recommended follow-on studies and comments on Version 6.0

8.0 December 30, 2022 Update based on recommended follow-on studies and comments on Version 7.0

9.0 September 30, 2026 Update based on recommended follow-on studies and comments on Version 8.0 for Checked Baggage Inspection Systems ii September 30, 2026

DISCLAIMER

The Planning Guidelines and Design Standards (PGDS) for Checked Baggage Inspection Systems (CBISs) is being distributed under the sponsorship of the Transportation Security Administration (TSA) of the U.S. Department of Homeland Security (DHS) in the interest of information exchange. The U.S. Government assumes no liability for the contents or use of this document.

The purpose of the document is to present TSA’s requirements and the best documented practices for implementing a high-performance and cost-effective CBIS. This document captures TSA’s requirements for a CBIS project from the beginning stages of design through commissioning of the system. Best practices are meant to highlight practices that have proven successful during implementation and that TSA recommends for the Project Sponsor’s consideration during the design and construction of a CBIS.

COMPLIANCE LANGUAGE DEFINITIONS

When used in the PGDS, the terms Requirement, Best Practice, Guidance, and Support statements shall be defined as follows:

Requirement – a statement of mandatory practice. All requirement statements are presented in underlined text. The verb “shall” is used. The verbs “should” and “will” are not used in requirement statements.

Best Practice and Guidance – a recommendation, but not a mandatory practice. These statements are generated from lessons learned and are used to inform the reader of known effective practices that have proven successful during implementation. Best practice and guidance statements can be identified within the document using the verb “should”. The verbs “shall” and “will” are not used in best practice or guidance statements.

Support – an informational statement that does not convey any degree of mandate, recommendation, authorization, prohibition, or enforceable condition. The verbs “shall” and “should” are not used in support statements. The verb “will” can sometimes be used in support statements when referencing items that are the government’s responsibility.

PGDS APPLICABILITY

CURRENT VERSION

Designs for new CBISs shall comply with the requirements set forth in this version of the PGDS. See Chapter 4 for other project types and their PGDS compliance.

All CBIS will be tested according to functional and performance requirements effective at the time of testing. This will allow TSA to obtain the best set of test data to evaluate CBIS performance and recommend fixes or improvements to the system. For Operational Analysis Reports and CBIS that are being upgraded or changed, TSA reserves the right to evaluate the CBIS against the most current published PGDS version.

for Checked Baggage Inspection Systems iii September 30, 2026

PRIOR VERSIONS

CBIS project sponsors possessing TSA’s formal confirmation of receipt of a complete 30% Detailed Design Package before this PGDS version’s publication, remain governed by the PGDS in effect at confirmation. Projects that have passed the 30% Detailed Design phase with TSA approval—including systems under construction or in operation—must comply with the design standards in that approval, whether from earlier PGDS versions or pre–Version 1.0 standards.

DELAYED OPENING OF CBIS

TSA reserves the right to require a project sponsor to resubmit the 30% Detailed Design Package under the requirements of the latest PGDS if the CBIS has not passed the Integrated Site Acceptance Test (ISAT), according to the PGDS version in effect at the time of the original 30% Detailed Design Package submittal, and within two years of TSA approval of the original 30% Detailed Design Package.

INDUSTRY COLLABORATION AND COMMENTS

TSA has been collaborating with an Industry Working Group (IWG) that represents airlines, Baggage Handling System (BHS) designers, manufacturers, airlines, and consultants to finalize recommended changes to PGDS Version 8.0.

The PGDS is updated every two years to ensure that its guidance and standards reflect the current technology and operating environment. The IWG will continue to meet with TSA to maintain the collaboration and consider potential changes for incorporation into the next version of PGDS.

The public and industry are invited to submit comments to TSA’s PGDS Mailbox at PGDS@tsa.dhs.gov. Comments, as well as TSA proposed changes, will be shared with the IWG prior to each meeting and will be reviewed and discussed during the sessions. Any additional comments provided through the IWG will also be considered during these sessions.

The TSA values all comments from industry stakeholders, but only those comments determined to enhance and improve the PGDS will be incorporated in the next release of the PGDS. An example of the standard form for comments is provided in Appendix A, Section A.8.

The comment form can be found at the SAM.gov website using the search term “PGDS”.

mailto:PGDS@tsa.dhs.gov https://sam.gov/search/?page=1&pageSize=25&sort=-modifiedDate&sfm%5Bstatus%5D%5Bis_active%5D=true&sfm%5BsimpleSearch%5D%5BkeywordRadio%5D=ALL

CONTENTS

for Checked Baggage Inspection Systems iv September 30, 2026

MAIN DOCUMENT

VERSION HISTORY ....................................................................................................................................................................................................... I

DISCLAIMER ................................................................................................................................................................................................................. II

COMPLIANCE LANGUAGE DEFINITIONS ................................................................................................................................................................. II

PGDS APPLICABILITY ................................................................................................................................................................................................. II Current Version ........................................................................................................................................................................................................... ii Prior Versions ............................................................................................................................................................................................................. iii Delayed Opening of CBIS .......................................................................................................................................................................................... iii

INDUSTRY COLLABORATION AND COMMENTS .................................................................................................................................................... III

CONTENTS................................................................................................................................................................................................................... IV Main Document .......................................................................................................................................................................................................... iv Appendices ............................................................................................................................................................................................................... xiv Tables xv Figures ...................................................................................................................................................................................................................... xvi

ACRONYMS AND ABBREVIATIONS ....................................................................................................................................................................... XX

ACKNOWLEDGEMENTS ......................................................................................................................................................................................... XXII

SECTION I: CBIS CONCEPTS .................................................................................................................................................................................. 1-1

CHAPTER 1 : INTRODUCTION ................................................................................................................................................................................. 1-1

1.1 Purpose ........................................................................................................................................................................................................ 1-2

1.2 Background .................................................................................................................................................................................................. 1-4

1.3 Organization ................................................................................................................................................................................................. 1-5

1.4 Key Changes from PGDS V8 to PGDS V9 .................................................................................................................................................. 1-6 for Checked Baggage Inspection Systems v September 30, 2026

CHAPTER 2 : CHECKED BAGGAGE SCREENING PROCESS .............................................................................................................................. 2-1

2.1 Screening Process Overview ....................................................................................................................................................................... 2-2

2.2 Level 1 — EDS ............................................................................................................................................................................................. 2-3

2.3 Level 2 — On-Screen Resolution ................................................................................................................................................................. 2-4

2.4 Level 3 — Checked Baggage Resolution Area ............................................................................................................................................ 2-4

CHAPTER 3 : CBIS TYPES AND EQUIPMENT ........................................................................................................................................................ 3-1

3.1 CBIS Overview ............................................................................................................................................................................................. 3-2

3.2 CBIS Using Type I EDS ................................................................................................................................................................................ 3-3

3.2.1 In-Line CBIS ................................................................................................................................................................................... 3-3

3.2.2 EDS Multiplexed Network .............................................................................................................................................................. 3-7

3.3 CBIS Using Type II EDS ............................................................................................................................................................................... 3-8

3.3.1 Mini In-Line CBIS ........................................................................................................................................................................... 3-8

3.3.2 Stand-Alone EDS ......................................................................................................................................................................... 3-10

3.4 CBIS Using ETD Units ................................................................................................................................................................................ 3-16

3.4.1 Primary Screening ....................................................................................................................................................................... 3-16

3.4.2 Alarm Resolution ......................................................................................................................................................................... 3-20

3.5 Other Baggage Conveying Systems and Technologies ............................................................................................................................. 3-20

3.5.1 Individual Carrier Systems ........................................................................................................................................................... 3-20

3.5.2 Mobile Inspection Tables ............................................................................................................................................................. 3-21

3.5.3 Advanced Tracking Technology .................................................................................................................................................. 3-21

3.5.4 Automatic Image Reconciliation System ..................................................................................................................................... 3-21

3.5.5 Reconstructive Tracking .............................................................................................................................................................. 3-22

3.5.6 Pre-Screening Baggage Storage / Prioritization .......................................................................................................................... 3-22

3.5.7 Cross-Belt Sorter ......................................................................................................................................................................... 3-23

SECTION II: CBIS PROJECTS .................................................................................................................................................................................. 3-1

CHAPTER 4 : PROJECT PLANNING AND INITIATION ........................................................................................................................................... 4-1

4.1 CBIS Project Types ...................................................................................................................................................................................... 4-2

4.1.1 New CBIS Projects ........................................................................................................................................................................ 4-2

4.1.2 Recapitalization.............................................................................................................................................................................. 4-2 for Checked Baggage Inspection Systems vi September 30, 2026

4.1.3 Optimization ................................................................................................................................................................................... 4-3

4.1.4 PGDS Upgrades ............................................................................................................................................................................ 4-3

4.1.5 Expansion ...................................................................................................................................................................................... 4-3

4.2 Stakeholder Roles and Responsibilities ....................................................................................................................................................... 4-3

4.2.1 Project Stakeholders ...................................................................................................................................................................... 4-3

4.2.2 Project Sponsor ............................................................................................................................................................................. 4-4

4.2.3 Integrated Local Design Team....................................................................................................................................................... 4-4

4.2.4 TSA Headquarters ......................................................................................................................................................................... 4-5

4.3 Project Phases ............................................................................................................................................................................................. 4-6

4.4 Design-Build Projects ................................................................................................................................................................................... 4-7

4.5 Design Review Process ................................................................................................................................................................................ 4-8

4.6 General Submittals Requirements ............................................................................................................................................................. 4-10

4.6.1 Supporting Data ........................................................................................................................................................................... 4-10

4.6.2 Requests for Variance ................................................................................................................................................................. 4-10

4.6.3 Submittals Formatting .................................................................................................................................................................. 4-10

4.6.4 Electronic File Naming Convention ............................................................................................................................................. 4-11

4.6.5 Design Review Comment Form ................................................................................................................................................... 4-12

4.6.6 Submittals Checklist .................................................................................................................................................................... 4-12

4.7 TSA Funding ............................................................................................................................................................................................... 4-12

4.7.1 Funding Application ..................................................................................................................................................................... 4-12

4.7.2 Use of TSA-Approved Equipment ............................................................................................................................................... 4-12

4.7.3 Invoicing and Earned Value Management ................................................................................................................................... 4-13

CHAPTER 5 : SCHEMATIC DESIGN PHASE – PART 1 .......................................................................................................................................... 5-1

5.1 Schematic Design Phase Overview ............................................................................................................................................................. 5-2

5.2 Project Sponsor and ILDT Schematic Design Phase Responsibilities ........................................................................................................ 5-3

5.3 Schematic Design Phase Deliverables ........................................................................................................................................................ 5-4

5.4 TSA Schematic Design Phase Responsibilities ........................................................................................................................................... 5-5

5.5 Baggage Screening Demand Determination ................................................................................................................................................ 5-5

5.5.1 Determine Current Checked Baggage Demand ............................................................................................................................ 5-6

5.5.2 Project Future Baggage Demand ................................................................................................................................................ 5-16

5.6 Baggage Screening Equipment Requirements Determination ................................................................................................................... 5-18 for Checked Baggage Inspection Systems vii September 30, 2026

5.6.1 Parameters and Assumptions ...................................................................................................................................................... 5-19

5.6.2 EDS Equipment Requirements .................................................................................................................................................... 5-20

5.6.3 EDS Equipment Redundancy ...................................................................................................................................................... 5-23

5.6.4 OSR Station Requirements ......................................................................................................................................................... 5-24

5.6.5 Baggage Inspection Station Requirements ................................................................................................................................. 5-24

5.6.6 ETD Machine Requirements ........................................................................................................................................................ 5-28

5.6.7 Accommodating Traffic Growth after the Design Year ................................................................................................................ 5-29

CHAPTER 6 : SCHEMATIC DESIGN PHASE – PART 2 .......................................................................................................................................... 6-1

6.1 Schematic Design Phase Part 2 Overview ................................................................................................................................................... 6-2

6.2 Alternatives Development and Evaluation .................................................................................................................................................... 6-2

6.2.1 Alternatives Development .............................................................................................................................................................. 6-2

6.2.2 Alternatives Evaluation and Selection ........................................................................................................................................... 6-8

6.3 Basis of Design Report ............................................................................................................................................................................... 6-10

6.3.1 Project Requirements .................................................................................................................................................................. 6-10

6.3.2 Description of Operations ............................................................................................................................................................ 6-11

6.3.3 Flow-Based Modeling .................................................................................................................................................................. 6-11

6.3.4 Alternatives Analysis .................................................................................................................................................................... 6-12

6.3.5 EDS to be Decommissioned ........................................................................................................................................................ 6-12

6.4 Other Design Package Documents ............................................................................................................................................................ 6-12

6.4.1 Design Drawings .......................................................................................................................................................................... 6-13

6.4.2 Project Schedule .......................................................................................................................................................................... 6-17

6.4.3 Phasing Plan ................................................................................................................................................................................ 6-18

6.4.4 Screening Equipment Installation Guideline References ............................................................................................................ 6-19

6.4.5 Conveyor Manifest ....................................................................................................................................................................... 6-19

6.4.6 Specifications ............................................................................................................................................................................... 6-20

6.4.7 Bid Documents............................................................................................................................................................................. 6-20

6.4.8 Stakeholder Notification ............................................................................................................................................................... 6-21

CHAPTER 7 : DETAILED DESIGN PHASE .............................................................................................................................................................. 7-1

7.1 Detailed Design Phase Overview ................................................................................................................................................................. 7-2

7.2 30% Design .................................................................................................................................................................................................. 7-2

7.2.1 Project Sponsor and ILDT 30% Design Responsibilities ............................................................................................................... 7-4 for Checked Baggage Inspection Systems viii September 30, 2026

7.2.2 30% Design Deliverables ............................................................................................................................................................... 7-5

7.2.3 TSA 30% Design Responsibilities ................................................................................................................................................. 7-5

7.2.4 Dynamic Modeling ......................................................................................................................................................................... 7-6

7.3 70% Design .................................................................................................................................................................................................. 7-8

7.3.1 Project Sponsor and ILDT 70% Design Responsibilities ............................................................................................................... 7-9

7.3.2 70% Design Deliverables ............................................................................................................................................................. 7-10

7.3.3 TSA 70% Design Responsibilities ............................................................................................................................................... 7-11

7.3.4 Configuration Management ......................................................................................................................................................... 7-11

7.4 100% Design .............................................................................................................................................................................................. 7-13

7.4.1 Project Sponsor and ILDT 100% Design Responsibilities ........................................................................................................... 7-14

7.4.2 100% Design Deliverables ........................................................................................................................................................... 7-15

7.4.3 TSA 100% Design Responsibilities ............................................................................................................................................. 7-16

7.5 Contingency Planning ................................................................................................................................................................................. 7-16

7.5.1 Type 1 Failures ............................................................................................................................................................................ 7-17

7.5.2 Type 2 Failures ............................................................................................................................................................................ 7-17

7.5.3 Type 3 Failures ............................................................................................................................................................................ 7-18

7.5.4 Type 4 Failures ............................................................................................................................................................................ 7-18

7.5.5 Recovery Transition ..................................................................................................................................................................... 7-18

CHAPTER 8 : CONSTRUCTION PHASE .................................................................................................................................................................. 8-1

8.1 Construction Phase Overview ...................................................................................................................................................................... 8-2

8.2 Project Sponsor and ILDT Construction Phase Responsibilities ................................................................................................................. 8-2

8.3 Construction Phase Deliverables ................................................................................................................................................................. 8-3

8.4 TSA Construction Phase Responsibilities .................................................................................................................................................... 8-3

8.5 Meetings ....................................................................................................................................................................................................... 8-3

8.6 Construction Schedule ................................................................................................................................................................................. 8-4

8.7 Training ......................................................................................................................................................................................................... 8-4

8.7.1 Training Deliverables ..................................................................................................................................................................... 8-4

8.7.2 CBIS Use and Logistics Training ................................................................................................................................................... 8-5

CHAPTER 9 : TESTING AND EVALUATION PHASE .............................................................................................................................................. 9-1

9.1 Testing and Evaluation Phase Overview ...................................................................................................................................................... 9-2

9.2 Planning ........................................................................................................................................................................................................ 9-3 for Checked Baggage Inspection Systems ix September 30, 2026

9.3 Pre-ISAT ....................................................................................................................................................................................................... 9-4

9.4 TRR .............................................................................................................................................................................................................. 9-5

9.4.1 CBIS Configuration Management Baseline ................................................................................................................................... 9-5

9.5 ISAT .............................................................................................................................................................................................................. 9-5

9.6 Operational Run-in: Burn-in .......................................................................................................................................................................... 9-6

9.7 Operational Run-in: Analysis ........................................................................................................................................................................ 9-7

9.8 Configuration Management .......................................................................................................................................................................... 9-7

9.9 Testing Process Variations ........................................................................................................................................................................... 9-9

CHAPTER 10 PROJECT CLOSEOUT PHASE ....................................................................................................................................................... 10-1

10.1 Project Closeout Phase Overview .............................................................................................................................................................. 10-2

10.2 Project Closeout Phase Deliverables ......................................................................................................................................................... 10-2

10.3 Control System Configuration Documentation ........................................................................................................................................... 10-2

10.3.1 Closeout Submittal Format .......................................................................................................................................................... 10-3

10.3.2 Control System Architecture Drawing .......................................................................................................................................... 10-4

10.3.3 Lower-Level Network Configuration Information ......................................................................................................................... 10-4

10.3.4 HMI Configuration ........................................................................................................................................................................ 10-4

10.3.5 High-level Computer Configuration.............................................................................................................................................. 10-5

10.3.6 Programming and Configuration Software .................................................................................................................................. 10-5

10.3.7 CBIS/ISAT Benchmark Data ........................................................................................................................................................ 10-5

CHAPTER 11 : LIFECYCLE COST ANALYSIS ...................................................................................................................................................... 11-1

11.1 Cost Analysis Overview .............................................................................................................................................................................. 11-2

11.2 Lifecycle Cost Analysis ............................................................................................................................................................................... 11-2

11.2.1 LCCA Assumptions ...................................................................................................................................................................... 11-2

11.2.2 Capital Costs................................................................................................................................................................................ 11-3

11.2.3 Soft Costs .................................................................................................................................................................................... 11-6

11.2.4 O&M Costs ................................................................................................................................................................................... 11-6

11.2.5 Staffing Costs............................................................................................................................................................................... 11-9

11.3 Basis of Estimate (BOE) Document ........................................................................................................................................................... 11-9

11.3.1 Purpose ...................................................................................................................................................................................... 11-10

11.3.2 Executive Summary ................................................................................................................................................................... 11-10

11.3.3 Project Scope Description ......................................................................................................................................................... 11-11 for Checked Baggage Inspection Systems x September 30, 2026

11.3.4 Methodology Used to Prepare the Estimate .............................................................................................................................. 11-11

11.4 Current Working Estimate Submissions ................................................................................................................................................... 11-14

11.4.1 Cost Estimate Breakouts ........................................................................................................................................................... 11-16

11.4.2 Cost Estimate Pricing Substantiation ........................................................................................................................................ 11-17

11.4.3 Allocable Costs .......................................................................................................................................................................... 11-17

11.5 Estimate Reconciliation ............................................................................................................................................................................ 11-17

11.6 Estimate Trending .................................................................................................................................................................................... 11-18

SECTION III: CBIS DESIGN REQUIREMENTS AND INDUSTRY BEST PRACTICES ......................................................................................... 11-1

CHAPTER 12 : CBIS DESIGN REQUIREMENTS ................................................................................................................................................... 12-1

12.1 CBIS Design Principles .............................................................................................................................................................................. 12-2

12.2 CBIS Screening Throughput Capacity ....................................................................................................................................................... 12-3

12.2.1 BHS Capacity............................................................................................................................................................................... 12-3

12.2.2 BHS Redundancy ........................................................................................................................................................................ 12-4

12.3 Tail-to-Head Bag Spacing Requirement ..................................................................................................................................................... 12-4

12.4 Bag Time-in-System ................................................................................................................................................................................... 12-5

12.5 Bag Travel Time Requirements .................................................................................................................................................................. 12-5

12.6 Bag Tracking .............................................................................................................................................................................................. 12-5

12.6.1 Positive Bag Tracking Requirements .......................................................................................................................................... 12-5

12.6.2 CBIS Bag Detection Requirements ............................................................................................................................................. 12-9

12.6.3 Bag Tag Identification Best Practices ........................................................................................................................................ 12-10

12.7 Conveyor System Design ......................................................................................................................................................................... 12-11

12.7.1 CBIS Conveyor Subsystem Nomenclature ................................................................................................................................ 12-11

12.7.2 Conveyor Inputs ......................................................................................................................................................................... 12-11

12.7.3 Divert and Merge Requirements ................................................................................................................................................ 12-12

12.7.4 Baggage Allocation Methodology .............................................................................................................................................. 12-12

12.7.5 Conveyor System Design Best Practices .................................................................................................................................. 12-13

12.7.6 Recirculation Loop Requirement ............................................................................................................................................... 12-17

12.7.7 Reinsertion Line Requirement ................................................................................................................................................... 12-17

12.7.8 Draft Curtains Requirement ....................................................................................................................................................... 12-17

12.7.9 Stack Light Requirements .......................................................................................................................................................... 12-17

12.7.10 System Conveyable Items ......................................................................................................................................................... 12-17 for Checked Baggage Inspection Systems xi September 30, 2026

12.7.11 Oversize Bag Conveyance ........................................................................................................................................................ 12-18

12.7.12 Out-Of-Gauge Bag Conveyance................................................................................................................................................ 12-18

12.8 Fail-Safe Events ....................................................................................................................................................................................... 12-18

12.9 EDS Daily Operational Test...................................................................................................................................................................... 12-19

12.10 Pre-EDS Bag Jam Rate ............................................................................................................................................................................ 12-21

12.11 EDS Maintainability .................................................................................................................................................................................. 12-22

12.11.1 Service Access / Equipment ...................................................................................................................................................... 12-22

12.11.2 EDS Part Replacement Provisions ............................................................................................................................................ 12-22

12.11.3 Environment ............................................................................................................................................................................... 12-23

12.11.4 Storage and Spare Parts Access............................................................................................................................................... 12-25

12.11.5 EDS Replacement ..................................................................................................................................................................... 12-25

12.11.6 EDS Power Requirements ......................................................................................................................................................... 12-25

12.11.7 EDS Network and Connectivity .................................................................................................................................................. 12-26

12.12 CBIS Reporting .......................................................................................................................................