A Guidebook for Integrating NIMS for Personnel and Resources at Airports (2014)

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5 This chapter will help Part 139 airports understand the various roles in an ICS structure and how that structure can be developed—based on airport size and complexity—to help the user and their emergency planning team better understand how ICS can best fit their organization. Chapter 7 covers the same topics for GA airports, but at a level appropriate for their environ- ments and resources. Integrating NIMS/ICS into airport incident/event response plans and management involves methodically coordinating airport, community, regional, and national response organizations into the framework of an airport. In some cases, particularly with smaller GA airports, outside responders may take the lead for primary incident response. In larger airports that may have their own on-site emergency responders—law enforcement, emergency medical services (EMS), and aircraft rescue and firefighting (ARFF)—off-airport mutual aid is usually not called upon unless an incident or event outstrips the response capabili- ties located on-airport. NIMS/ICS provides a framework that all entities can work from using a common blueprint for emergency planning and management with accepted protocols that take the incident or event through all stages: initiation, response, recovery, and return to regular operations. With all stakeholders operating within the construct of NIMS/ICS, the outcome can be more efficient and effective. Establishing NIMS/ICS at Airports NIMS/ICS at airports is outlined in the FAA’s Advisory Circular 150/5200-31C. Migrating an airport organization to that end requires commitment and direction from the airport manager, with an understanding that with the responsibility comes accountability. (For the purposes of this guidebook, airport manager is used as a generic term for anyone at a high level of responsibility for any given airport.) Developing a robust and capable NIMS/ICS organization is best served by an organized effort that involves all airport stakeholders whereby each understands the roles and responsibilities and is supported by training, certification, and practice. Management Support The impetus for driving forward the NIMS/ICS agenda will begin with airport leadership. It is recommended that policies, such as requiring staff training, certification and other require- ments set forth for NIMS/ICS roles and qualifications, be placed in writing and distributed by the airport manager. With support and direction from the front office, a NIMS/ICS approach is taken more seriously and accepted throughout the organization. Ultimately, staff will be able to integrate their actions more effectively with their mutual aid partners in response to an incident or event on-airport, or within the region. C H A P T E R 2 Integrating NIMS and ICS at Part 139 Airports

6 A Guidebook for Integrating NIMS for Personnel and Resources at Airports Integrating Training and Certification When considering how to execute the NIMS/ICS integration effort, it is best to start with establishing basic certification standards for staff. Appendix A provides information on how one airport, General Mitchell International Airport (MKE), approaches the alignment of staff positions to NIMS/ICS training and certification based upon assumed airport roles during a major incident or event. Exercises and ICS Training A fundamental premise to developing a better operating team is regular training. This effort actually begins with integrated teams of stakeholders from inside and outside the airport who review response plans and identify any procedures that might inadvertently have a negative impact or unnecessarily duplicate each other’s respective plans. These discussions also provide an opportunity for each entity to add provisions that would facilitate resource coordination and communications, thereby streamlining coordination. After the planning comes training, with various scenario–based exercises where all stake- holders can test and validate their plans. Command exercises (or COMEX) and tabletop exercises can take place on-site or can be configured to be executed from remotely connected platforms, thereby allowing outside stakeholders to “play” the problem from their own offices. The culmi- nating exercise is the functional field exercise required for all Part 139 airports, which involves responding to a mock-up incident/event that allows first responders to exercise their response protocols. Deploying NIMS/ICS in Nonemergency Situations NIMS and ICS can be followed to great advantage in dealing with situations that are not necessarily emergencies, but that nevertheless require a substantial effort to manage. Non- emergency situations, such as peak travel days during holidays where terminals and roadways can experience choking traffic, can create an irregular operations (IROPS) situation. Should a severe weather event also occur on such a day, thousands of passengers could be stranded in airport terminals and need food and shelter. Having a coordinated team deployed in an EOC to manage the situation can significantly improve management of the event and ultimately normalize operations more quickly. Activating an airport EOC in advance of weather warnings also can serve to better prepare the airport should it need to respond. Even if the situation does not evolve into a major problem for the airport per se, there remains a possibility that a regional emergency develops where the airport becomes a key asset for incoming resources to serve the whole area. Using the ICS structure for nonemergency events and incidents enables airport personnel to apply NIMS/ICS principles on a more regular basis so when a major emergency occurs and lives and safety are potentially at stake, operational response and support proceeds relatively smoothly. Deploying a NIMS/ICS approach to managing IROPs, for example, accomplishes a number of key objectives: • Provides live, real-world training experiences for staff. • Improves staff familiarity and experience using the ICS model. • Enables quick deployment and response to incidents/events that may take place. Figure 1 depicts the full process of integrating NIMS/ICS at airports.

Integrating NIMS and ICS at Part 139 Airports 7 Common Terminology Since communications is one of the most important parts of response, utilizing the same terminology and communications protocols is critically important. When all concerned can understand each other during chaotic situations, the chances for mistakes are greatly reduced. For example, a lack of common terminology could result in a misappropriation of resources or, worst case, the possibility of a responder becoming part of the problem instead of the solution. An example of how disparate definitions can cause confusion in an incident/event response on-airport is the term “operations” on the radio. At many airports the call sign “operations” refers most commonly to an airfield or landside operations staff member. However, in an ICS environment, “operations” is used for the tactical response personnel associated with the command post (CP) under the operations section chief. Some airports have taken active steps to change call signs on-airport so transitioning from normal operations to emergency response operations does not cause confusion. As an example, they designate airport operations as “airfield IC” or “airfield branch.” NIMS uses a common set of terms that most responding agencies and mutual aid responders understand and expect to use in emergency situations. These common terms also help to make up the ICS organization configuration. This configuration can be compared to any organization’s structure and the employees of such organizations understand their title, responsibilities, and lines of communication that are communicated through the structure. The same holds true for an ICS configuration: it delineates roles and lines of communication using common terminology during an incident or event. Differences Between FEMA ICS and ICS at Airports ICS as a structure and tool kit utilizes the same common terminology and organization flow regardless of what entities are training in it and deploying it. Due to the particular nature of airports, however, some alterations to the ICS model may be in order. Differences between the classic NIMS/ICS models and those that work best at airports are affected by the scope of the response, the scope of the impact, and the associated management structure. Emergencies, Figure 1. Process for integrating and using NIMS/ICS at airports.

8 A Guidebook for Integrating NIMS for Personnel and Resources at Airports incidents, and events that trigger a response at airports tend to be shorter in duration and generally impact employees, tenants, and travelers as opposed to a permanent residential popu- lation in a community of commercial and industrial uses, streets, places of worship and public assembly, and so forth. It is the transient nature of the airport population and the more limited land uses that create the most difference between the airport response environment and that of a community or region. However, the basic ICS construct found in the typical FEMA model, organization and flexibility to expand or shrink as the situation demands, remains the same no matter where ICS is used. At Part 139 certificated airports, emergency response equipment and personnel are on site at some level as determined by their ARFF index certification. Having these resources immediately at hand enables a nearly instantaneous response. Beyond the obvious desire to save lives and protect property, airports also are focused on keeping the airport operating (or returning it to full capacity as soon as possible), avoiding further disruption to service, and avoiding costs associated with delays. The EOC at an airport may be as simple as a conference room or large office where people are assigned some of the section chief roles and can meet and assist with the field tactical command while also keeping the doors open for continuing airline operations. Most airports, when they deploy ICS for an incident or event, can obtain the needed assets from within the local community, as opposed to a wild land fire where firefighters may come from several states away. An example of this is that airports normally do not utilize base camps because they usually have facilities readily available and nearby, and responders are usually only on scene for a short duration, perhaps a few hours at most. The key difference is the magnitude and duration of a deployment of resources where an airport ICS structure is usually far more scalable and locally contained to handle most incidents, events, and emergencies, since the effort is usually short-lived. Continuity of Operations To keep the doors open during any irregular operation, some airports have developed a continuity of operations plan (COOP). This type of plan is in keeping with NIMS best practices. Integrated into the COOP is the deployment of NIMS/ICS to address a given contingency and to allow the airport to be better prepared for responding to such incidents. These contingency plans should include outside stakeholders and particularly mutual aid responders to ensure that the response is coordinated among the players. Examples of situations where COOP plans are likely to be needed are major floods, shelter-in-place, evacuation, and pandemic outbreak. Key factors addressed in a COOP are identifying the most basic and critical operations and the minimum staffing levels needed to maintain those operations. Protecting communications and IT systems is a significant part of COOP as well. An airport’s AEP provides high-level guidance, but COOP plans are far more structured and comprehensive in identifying and resolving threats to operations, operational alternatives, and disaster recovery protocols. Airport CPs The incident CP is best described as a site close enough to safely lead or manage an incident response. On-site ICS command and general staff usually operate from the CP which can be a mobile platform with support tools, communications, white boards, etc., or can simply be the back of a vehicle like the ARFF chief ’s vehicle. The CP is generally comprised of the senior responding law enforcement or firefighting officer as the IC (for HAZMAT, fire, aircraft incident, or law enforcement/security incident), with a few supporting officers, and specific airport staff from airport maintenance and airport operations to augment or support the CP. In some airports, especially smaller or GA airports, that first IC may be an airport management person.

Integrating NIMS and ICS at Part 139 Airports 9 The CP usually includes the staff necessary to address the immediate crisis. Which personnel and how many depends on the nature of the emergency or incident, from something with a small footprint to a major crisis. A typical small incident might be an unsafe landing gear alert from an incoming aircraft. The senior fire official is usually the IC for the alert aircraft. There may also be an airport operations person and police standing by and in communication with the IC, or these entities may organize per a unified command (UC) structure, depending on how they train. These incidents usually result in ARFF apparatus following the aircraft to the gate, with an airport operations person conducting a runway inspection after the aircraft has cleared. Conversely, if an aircraft actually has a landing gear malfunction and collapses on a runway, the CP and associated response will expand exponentially, with more robust command and general staffs in the CP to support the response. Functions like the public information officer (PIO), finance section, administrative support, and planning section typically are handled from an EOC; this is a different model than what is typically found in a FEMA type ICS response (where section chiefs may all be at the field CP). This approach supports incidents that are generally shorter in duration (quickly resolved). Unless the incident is one assessed to potentially downgrade flight operations or is expected to have long lasting negative effects on airport operations in general, the EOC is usually not activated. Notwithstanding, airports should consider practicing setting up and staffing an EOC for small- or medium-sized events to ensure staff is capable of operating in the space, while assuming the various roles they may be assigned. Such practice proves its worth when an airport faces a major incident or event and the EOC must be activated for a real-world issue. ICS Roles of Airport Staff in the CP It remains the prerogative of airport management to assign specific individuals to roles in the ICS structure. These assignments may vary based upon necessary subject matter expertise (SME) for specific incidents, but generally the key role assignments are used no matter what type of incident or event. For instance, an airport CP will generally consist of an IC, operations section chief, and a logistics section chief. If the incident is quickly resolved, the IC may not require any additional staff support (such as the planning section chief, liaison officer or safety officer). The IC may elect to retain the functions of a section chief rather than assign it. This depends on the appropriate use of span of control. Airports will seldom have a finance and admin- istrative section chief in the CP, as that role is better served as a function of the EOC where airport administration has easy access. Additionally, the CP operations section chief may also be responsible for planning duties on site, at least in the first hour or so of the response. The individuals assigned these roles should be capable of working across domains, wear multiple hats, and coordinate across agencies in order to accomplish the goal set by the IC. Some airports may execute a UC structure with airport emergency response staff such as ARFF, police, and airport operations. UC enables leaders from different departments, organi- zations or jurisdictions to jointly work toward key decisions and response protocols. For some airports, they consistently train internally to unify their command. An example of a UC structure involving outside airport agencies may be when an aircraft accident takes place in an area that straddles a city and an airport jurisdiction. The respective fire commands from both jurisdic- tions work together to lead the response so a single decision does not duplicate or subvert a response effort. UC also allows SMEs to manage their specific domain while working from the same location where they can communicate directly and coordinate efforts. Usually UC posts are reserved for events that cross multiple jurisdictions. This is an important organizational structure that should be established and communicated as standard operating practice prior to an incident/event to avoid confusion pertaining to roles and authority. Deliberate planning

10 A Guidebook for Integrating NIMS for Personnel and Resources at Airports and prior coordination with the airport and community responders is critically important to successfully implement UC. Airport CP Organization Chart The general and command staff sections are located coincident to the IC and are there to focus on the response and facilitate execution of the goals set forth by the IC. If the incident or event is quickly resolved and does not require mutual aid or complicated tactical units, positions such as liaison officer and safety officer may not be necessary. In addition, the logistics section chief and the planning section chief duties may be handled by the IC for a short duration event or assigned to other staff. The flexibility of the NIMS/ICS model allows for establishing a command structure that makes sense to the event at hand. Figure 2 provides one model upon which the airport can build, molding it to the response demands of any given incident or event. In the figure, the planning section chief is grayed to make the distinction that in most cases this position either is absorbed into the operations section or handled entirely in the EOC. Incident Commander This role is assigned to the single individual responsible for the immediate tactical response to an incident or event, and is usually reserved for the lead agency on-site commander. An example of key IC duties is listed in Table 1. This does not contravene the earlier discussion of UC, rather it assumes the jurisdictions have agreed upon an IC with the understanding that both interests are Figure 2. NIMS/ICS structure: command staff and general staff at the CP.1

Integrating NIMS and ICS at Part 139 Airports 11 served by the single point of contact. The IC is responsible to that specific event/incident while airport management continues to oversee other aspects of airport operations. Examples of IC assignments: • Aircraft fire – ARFF chief or senior officer • Active shooter – police chief or senior LEO • Snow emergency – maintenance or operations manager • Power outage – maintenance manager The IC is responsible for developing and communicating an incident action plan (IAP). The IAP may be either written or verbally communicated to coordinate tactical operations from the CP. The IC may consult with the other members of the command and general staff on actions to be taken and issues that arise. Should the severity of the event need a level of support that usually resides in the EOC, the IC can call for activation of the EOC and look to it for further support to the incident/event response. As well, airport management may feel the IC is in need of support and initiate action to open the EOC in support of the IC’s efforts in the field and to help with continuity of airport operations. There are some events where there is no single dedicated CP for an isolated event in the field and the EOC is the only established post for commanding an incident or event. This could occur for VIP arrivals/departures, floods, shelter-in-place, snow events, and pandemics. The IC should work with the airport manager or designee to mitigate operational impacts to both continuing airport operations as well as meeting incident or event goals. The IC is always responsible for the tactical operations related to their incident or event. Airport management remains responsible for airport operations outside of the tactical scene and for providing support not resident in the CP. Some airports may choose to unify their command structure in the field (multiple agency/department response), but the authority in charge of initial life safety and rescue is usually the subject matter expert at the CP. When responding to any incident or event, the assignment of IC falls to the pre-established lead agency for that type of incident (fire/EMS, law enforcement, etc.), generally predetermined based upon the type of incident. Incident Commander or UC Have clear authority and know agency policy. Ensure incident safety. Establish the CP. Set priories and determine incident objecves and strategies to be followed. Establish ICS organizaon needs to manage the incident. Approve the IAP. Coordinate command and general staff acvies. Approve resource requests and use of volunteers and auxiliary personnel. Order demobilizaon as needed. Ensure aer acon reports are completed. Authorize informaon release to the media. Table 1. IC duties.2 Image Source: Mike Cheston, Faith Group, LLC

12 A Guidebook for Integrating NIMS for Personnel and Resources at Airports ICS also operates under a framework where command can be passed from one agency or department to another, given the circumstances of how the incident or event evolves and the stage of response. For example, when responding to an aircraft fire emergency, ARFF has the most pressing mission and logically manages the fire and lifesaving tactical response, with everyone else in support. Once the fire has been safely extinguished and the injured or deceased have been transported from the site, it may make more sense to pass command to someone in airport operations or police to manage investigation, recovery, site cleanup, and so on. Operations Section Chief This role, reporting to the IC, is generally responsible for the tactical response to an incident or event and, depending on the scope of the event, may have a number of strike teams or branches reporting to them (see Table 2). Typically the person assigned to this role is a subordinate within the IC’s discipline. For example, if the IC is the ARFF chief the operations section chief is generally an ARFF officer, but not always. The operations section chief ’s responsibilities include coordinating all tactical operations at the incident or event site, coordinating with the IC for status updates, processing resource requests, providing updates to the staging area manager (if one is in place), managing the EOC (operations and planning sections), and coordinating air resources on-site. Some of the subordinate staff to the operations section chief may include outside stakeholders, based on the level of their agency involvement and expertise. The operations section chief may also establish branches, strike teams, task forces, or a single resource that will address management of specific incident responder elements: • Fire branch director – senior fire official • HAZMAT branch director – airport safety manager • Medical branch director – senior EMS officer • Airfield branch director – senior operations officer/manager • Law enforcement branch director – senior LEO • Maintenance branch director – senior airport maintenance manager • Staging area manager – operations, ARFF or law enforcement Logistics Section Chief This role is best assigned to an individual who possesses knowledge about all the potential resources available to support an incident or event response and can acquire resources sup- porting the effort (including those in staging). A maintenance manager or a senior emergency responder can usually marshal resources not organic to the emergency response organization to quickly support the response. Table 3 below offers a template of duties typically handled by the logistics section chief. Operaons Secon Chief Ensure safety of taccal operaons. Manage taccal operaons. Develop operaons porons of the IAP. Supervise execuon of operaons porons of the IAP. Request addional resources to support taccal operaons. Approve release of resources from acve operaonal assignments. Make or approve expedient changes to the IAP. Maintain close contact with the IC, subordinate operaons personnel, and other agencies involved in the incident. Table 2. Operations section chief duties.3

Integrating NIMS and ICS at Part 139 Airports 13 Planning Section Chief The planning section chief is responsible for planning support and response using a horizon of between 12 to 24 hours out from current incident time. This role may be assigned at the CP or the EOC if response is expected to last more than several hours or if the complexity and scope requires planning functional support at the CP. The IC may elect not to assign the role for relatively straight forward incident response, such as fuel spill, aircraft hot brakes, or other responses that terminate shortly after activation. However, if the IC does not assign a planning section they retain responsibility for the tasks under this title such as development of the IAP, situational status reporting, resource status reporting, and demobilization plan, all of which may be less complicated in a small incident response (see Table 4). Logiscs Secon Chief Provide all facilies, transportaon, communicaons, supplies, equipment maintenance and fueling, food, and medical services for incident personnel, and all off incident resources. Manage all incident logiscs. Provide logiscs input to the IAP. Brief logiscs staff as needed. Idenfy ancipated and known incident service and support requirements. Request addional resources as needed. Ensure and oversee development of traffic, medical, and communicaons plans as required. Oversee demobilizaon of logiscs secon and associated resources. Table 3. Logistics section chief duties.4 Planning Secon Chief Collect and manage all incident relevant operaonal data. Supervise preparaon of the IAP. Provide input to the IC and operaons in preparing the IAP. Incorporate traffic, medical, and communicaons plans and other supporng material into the IAP. Conduct/facilitate planning meengs. Reassign out of service personnel within the ICS organizaon already on scene, as appropriate. Compile and display incident status informaon. Establish informaon requirements and reporng schedules for units (e.g., resources unit, situaon unit). Determine needs or specialized resources. Assemble and disassemble task forces and strike teams not assigned to operaons. Establish specialized data collecon systems as necessary (e.g., weather). Assemble informaon on alternave strategies. Provide periodic predicons on incident potenal. Report significant changes in incident status. Oversee preparaon of the demobilizaon plan. Table 4. Planning section chief duties.5

14 A Guidebook for Integrating NIMS for Personnel and Resources at Airports Safety Officer This position requires a comprehensive view of the incident or event. The role is responsible for ensuring the safety of all involved (responders, victims, and the public at large). The safety officer has the unique job of viewing the entire response from a holistic point of view and advising the IC of any concerns related to the safe execution of the response. These issues may involve HAZMAT response concerns, hot zone issues, crew rest, or other unsafe actions or environments. If the response is relatively short-lived or simple, the IC may assume the role of safety officer or assign the duties to one of the other subordinates. The key advantage of assigning a safety officer is that recognition of an unsafe condition may be missed by the IC due to that individual’s focus on the mission. This is also the only position that may redirect responders or tactical direction from the IC’s command if the IC’s direction may put people in harm’s way. This type of situation has triggered a number of human factors studies around crew resource management (CRM) and other best practices to conduct safer operations. With no other focus but safety, this position brings very high value to the team and should not be overlooked. Duties are highlighted in Table 5. Liaison Officer The liaison officer, another key resource for the IC, coordinates with outside agency responders not physically represented in the CP or EOC. This usually takes on the form of coordinating with federal and mutual aid responders which are not at the scene, but may either deploy later as needed, or are providing support or assistance in roles not directly impacting the immediate incident or event scene, i.e., American Red Cross or NTSB. For airports, the liaison officer may have a standing role such as with airlines, military organization (if it is a joint-use airport), TSA, or other tenants involved in coordinating the response and providing key information. A liaison officer usually has direct communication with the IC or manager of the EOC. The duties are listed in Table 6. EOCs at Airports Airports generally experience what can be described as routine emergencies on a somewhat regular basis. Small fuel spills, EMS runs to the terminal, or traffic accidents on an airport roadway usually are resolved quickly by the public safety team at the airport without requiring activation of an EOC. However, there can be a breakpoint in emergency response where the Safety Officer Idenfy and migate hazardous situaon. Create a safety plan. Ensure safety messages and briefings are made. Exercise emergency authority to stop and prevent unsafe acts. Review the IAP for safety implicaons. Assign assistants qualified to evaluate special hazards. Iniate preliminary invesgaon of accidents within the incident area. Review and approve the medical plan. Parcipate in planning meengs to address ancipated hazards associated with future operaons. Table 5. Safety officer duties.6

Integrating NIMS and ICS at Part 139 Airports 15 incident or event becomes more complex or disrupts operations at the airport for a significant amount of time. Especially during a regional or national event triggering IROPS issues—such as a major natural disaster or Emergency Security Control of Air Traffic (ESCAT) like what was mandated on September 11, 2001—a single IC in the field will find it very difficult to manage from a small CP. When an incident or event reaches a level of complexity that could out strip the resources of a single IC, or has the potential of reaching a high level of complexity, an EOC should be activated by the airport manager or designee. It is important to note that if an incident triggers a response from off-airport agencies it underscores the importance of understanding and using NIMS/ICS, especially when considering communications across multiple domains. The IC may also request activation of the EOC through appropriate communication channels established by airport management. Although this is more art than science, experienced and trained professionals can recognize when the situation calls for a more robust management model. Figure 3 Liaison Officer Act as a point of contact for agency representa ves. Maintain a list of assis ng and coopera ng agencies and agency representa ves. Assist in seng up and coordina ng interagency contacts. Monitor incident opera ons to iden fy current or poten al inter organiza onal problems. Par cipate in planning mee ngs, providing current resource status, including limita ons and capabili es of agency resources. Provide agency specific demobiliza on informa on and requirements. Table 6. Liaison officer duties.7 Figure 3. National response level chart–CP only versus CP supported by EOC.

16 A Guidebook for Integrating NIMS for Personnel and Resources at Airports provides a snapshot of the types of incidents that can usually be managed with just a CP and then migrates to those that may require EOC support as well. The figure provides some context into the decision about whether or not it is necessary to activate an EOC. The decision process may not be as linear as depicted in Figure 3, but it can be used as a reference point at times when an EOC is most appropriately activated. The establishment of an EOC to support the CP in no way diminishes the responsibility of the IC. The IC is still the senior decision maker on scene and as such has the authority to direct the tactical response. While in some cases the EOC manager or designee may hold a position at the airport more “senior” than the IC at the CP, it should be noted that command rests with the IC. The EOC supports the action in the field as necessary while keeping the doors open to the extent possible. The EOC manager’s responsibility is to run the staff at the EOC and ensure it provides timely and relevant support to the IC, while keeping a big picture management overview on the entire airport operational status. There may also be instances where there is more than one incident in the field requiring more than one IC. This is an ideal situation to utilize an EOC to optimize resource management and ensure airport situational awareness for those in the field. As mentioned previously, the incident or event may not have a single CP in the field whereby all tactical directions then come from the EOC. Large Airport EOC Considerations A large hub airport generally has significant resources that can be applied to an emergency on the airport. Seemingly small events (such as heavy holiday travel times) can grow into major IROPS incidents or events if there is an issue with air traffic delays or weather. For example, a large international hub serves many regional and national feeders for the anchor air carrier; when a major storm system impacts flight routes to that hub, it leaves thousands of stranded passengers in its wake. When considering criteria for location of an EOC, many of the large airports use communi- cation centers collocated with an EOC where the EOC can be activated quickly by communica- tions center staff, and where many of the command, control, communications, and intelligence resources are readily available. For airports that have a central communications center, this kind of collocation serves to allow the EOC to be brought to operational status with better access to situational awareness information (video, data, and voice communications). Additionally, as mentioned earlier, an EOC may be activated as a precaution for incidents or events. In the case of such a precautionary activation of an EOC, the operation may be managed by a skeletal crew of two or three individuals physically seated in key roles, such as the EOC director airport manager, operations chief, and planning chief. A skeletal crew could be part of the demobilization plan where the airport is returning to normal operations, but may still need some support, such as during the recovery phase of an accident. Precautionary or precontingency activation of an airport EOC may take place for incidents or events (such as a regional flood warning or other major weather threat) where the airport may have to deal with shelter-in-place issues that may create an IROPS situation or where the airport may become a resource for a regional response. The airport should work within its organizational structure to assign roles in the EOC. This guide provides some best practices for EOC assignments based upon airport size and structure, from large hub, medium hub and small non-hub Part 139 airports. The organizational chart offered in Figure 4 is a typical structure in airport EOCs.

Integrating NIMS and ICS at Part 139 Airports 17 Large Hub Part 139 EOC Assignments Large airports have larger administrative and operational staff to support emergency response, and may find it easier to physically staff many of the NIMS/ICS positions in an EOC. Here are some recommendations for key assignments. EOC Manager The director of public safety, airport operations director, chief operations officer or other senior management positions reporting to the airport manager is generally assigned to this role. This role is for a senior individual with a strong comprehensive understanding of the airport and its operations, manages support to the response, activates additional incident/event response as necessary, and provides direction on measures to continue operations on the unaffected portions of the airport. The IC has a direct access to the EOC manager. The EOC manager generally has a natural reporting relationship directly with the airport manager, unless the airport manager is assuming that role, in which case the position administratively reports to the governing body. Operations Section Chief Typically the airport operations manager, emergency manager, subject matter expert such as an ARFF chief, police captain or other senior-level manager with a background in airport operations and emergency response wears this hat. This position monitors the incident or event response via the CP operations section chief (if assigned) or directly with the IC in order to coordinate any operational requirements that may have an effect on other parts of the airport Figure 4. NIMS/ICS command structure used in EOC.8

18 A Guidebook for Integrating NIMS for Personnel and Resources at Airports operation in support of the event or incident response. This is strictly a support role; the individual reports directly to the EOC manager and provides a line of communication between the tactical field CP and the EOC. Logistics Section Chief This may be staffed by the airport maintenance director or manager of the airport. The logistics section chief marshals the outside resources that the operations and planning sections indicate are needed, while also responding to requirements from the Logistics Chief in the CP, if there is one designated. This does not include call-out of additional automatic fire fighting, EMS, or law enforcement personnel that is managed by the 911 Call Center or other public safety communica- tions system. The request for such resources beyond those triggered by an automatic call-out would come from the IC or the operations section chief. Additionally, the logistics section chief works in close coordination with the EOC planning section, and may be tasked to procure or otherwise marshal additional resources to the airport for the following day, including fresh staff and mutual aid responders. This takes on a potentially complex nature when planning the delivery of materiel, staff, equipment, as well as the care and feeding of those responding. It is the logistics section that monitors staffing, headcount, and accountability, closely coordinated with the CP. Planning Section Chief This position is staffed by a senior manager who is well versed in most aspects of airport management and operations, with a small staff of SMEs as needed to represent the multiple disciplines across the airport and potentially mutual aid responders. The primary mission is to look beyond the planning horizon of the CP, generally more than 24 hours ahead of the incident or event, and plan for logistic and staff support, airport closures, potential ancillary impacts to the airport, and other hazards that might affect the response. The planning chief reports back to the EOC manager regarding any proposed plan who ensures that the IC approves of any actions that would affect emergency services response in the field. Finance and Administration Section Chief A senior manager of finance is best suited for this position, with additional support staff as needed. The purpose of the EOC finance and administration section is to support the event or incident IC and associated staff. This position represents as much of a process as it does a person. The processes should be coordinated ahead of any event and include access to forms and an accounting system to track costs relative to the event. This tracking could be set up in the airport’s financial system or even an Excel or Access database format. This section is responsible for track- ing the incident or event in terms of procurements, use of resources from a human resource standpoint, staff costs and other outside support costs that may evolve. This position is ultimately responsible for appropriate documentation in order to process claims or reimbursements from federal or state coffers. This manager will provide advice on financial issues that may arise from the incident or event and approve final resolutions on compensation and claims cases. Day-to-Day Section Chief This position is unique to airport incidents or events and is not part of the formal FEMA ICS nomenclature. This chief is responsible for managing the other aspects of keeping the airport open and operating during an event. Resources are needed for both the day-to-day management and the event management, and are best coordinated in the EOC. This person is usually an airport operations staff or similar employee. The duties revolve around monitoring and managing

Integrating NIMS and ICS at Part 139 Airports 19 nonincident or event responses to other issues besides the tactical CP effort at hand, and ensuring to the extent possible that normal operations are not affected. Liaison Officer This staff officer has the mission to coordinate with agency leads and tenants not directly involved in the response. In many cases, the EOC will have seats for mutual aid responding agencies and other stakeholders not involved in the direct tactical effort, to enable coordination of support to the IC. This coordination can be as simple as updates, or by direction of the EOC Manager, to marshal further resources in support of the incident or event. PIO This is a key role in any incident or event. In the absence of a trained staff person who manages public relations (PR) on a daily basis, senior management should be trained how to conduct media briefings. Tasked with managing press releases, setting up briefings and coordinating information releases, this person must obtain approval from the IC before releasing any information to the public. In the case of a joint information center (JIC) supporting a regional incident or event, the PIO will further coordinate with other agencies on information releases. Again, those agencies are likely to be following NIMS/ICS best practices as well. The PIO will also designate a media area, briefing times, and format for dissemination. Safety Officer During a single incident or event response, and if there is no Safety Officer at the CP, or if there are multiple incidents/CPs, this position will execute the same safety responsibilities described above in the CP section. The safety officer needs to be someone who is trained and qualified in specific life safety responses. However, if there is more than one incident or event at the airport, the EOC will have a single safety officer to oversee and support the safety operations in the field, using a more global view of the airport operation, while providing input and support to the IC as well as the EOC operation section chief. Medium Hub/Small Hub/Non-Hub EOC Assignments The key roles in the EOC should follow the same pattern in terms of placing individuals who can best function in a particular role, which is the point of integrating NIMS/ICS—everyone enters the situation with a common understanding of how things are managed. For smaller airports, there may be situations where specific individuals actually manage more than one role in the NIMS/ICS structure due solely to small staff size. For example, if there are only two staff persons available one may retain the EOC manager as well as the operations section chief and finance section chief while the other manages logistics, planning and the media. Each role in the ICS structure should be looked upon as a role or responsibility, not necessarily as an individual person. The most common aspect of NIMS/ICS experienced at airports is that the IC is usually in charge of the tactical response, while the EOC manager and staff normally support the IC and all those responding. ICS Organization Chart Templates for All Contingencies Now that the most common positions and roles have been identified and discussed, it is appropriate to examine how an airport might organize their personnel during a major incident or event and define the reporting and communications relationships among all key stakeholders.

20 A Guidebook for Integrating NIMS for Personnel and Resources at Airports The manner in which personnel resources are best organized and visualized in organization charts will vary depending on whether the airport is dealing with an aircraft crash, loss of power supplying movement area lighting, a tornado, or other significant event. A collection of separate ICS organization chart templates is provided in Appendix B as guidance for airports. The tem- plates depict ICS positions and communications pathways at the airport CP and at the airport EOC and correlate to the types of incidents that Part 139 airports address in their AEP. The templates cover: 1. General set up for managing an incident or event without using an EOC 2. General set up for managing an incident with the EOC activated 3–5. Aircraft accident: Phases I, II, and III 6. Crowd control 7. HAZMATs incident 8. Power outage–movement area lighting 9. Sabotage and bomb threat response 10–12. Structure or fuel farm fire: Phases I, II, and III 13. Terrorism incident response 14. Tornado 15. Flood GA airports, though not required by the FAA to comply with the AEP AC 150/5200-31C, can benefit from deploying an ICS system to manage incidents or events. Becoming familiar with those templates that pertain to the risks and threats they may face could help GA airports restore normal operations quickly and limit the loss of life and property. Airports can utilize these templates in tabletop training and exercises, and review with stakeholders so all have an opportunity to determine whether any changes to the organizational matrices are needed to reflect the realities of their particular airport and mutual aid community. Involving On- and Off-Airport Stakeholders in Planning and the AEP During a response to an incident or event, there will be a number of outside stakeholders responding to the airport to assist. Some will simply provide additional resources already resident on-airport, such as fire fighters, EMS, and law enforcement. Others have a specific mission and capability that is not organically resident on-airport, such as the American Red Cross, NTSB, state coroner, and/or state or federal health departments [FAA, TSA, Federal Bureau of Investigation (FBI), and so forth]. It is expected that these stakeholders will have rehearsed response protocols with the airport before an incident or event occurs. The airport will most likely be leading the coordination and direction when they arrive. To the extent these stakeholders can be woven into the fabric of the EOC and the overall response, integration amongst all responders will likely improve. For small airports, the need to preplan with mutual aid agencies is even more important as smaller airports often are limited in their resources and can quickly become overwhelmed in a large-scale incident or event. The development of the AEP and incorporating a fully involved ICS structure for response should include a broad spectrum of stakeholders and mutual aid responders to ensure key issues are not inadvertently neglected. Stakeholders and mutual aid organizations should be identified by agency name and contact phone number and not be attached to a personal name. Included in the AEP should be the following: • Airfield access familiarization/maps (grid ideally) • Staging areas • Updated contact lists • Credentialing to allow access through barricaded areas

Integrating NIMS and ICS at Part 139 Airports 21 • Logistical resources such as mobile command vehicle access, HAZMAT trailer, decontamina- tion, and triage trailers • Communications protocols • EOC response requests • ICS organization chart templates for field and EOC staff • ICS checklists per role for field and EOC staff The AEP planning should cover these incidents and events within the structure of an ICS deployment: • Aircraft accident • Terrorism incidents • Structure and fuel farm fires • Natural disasters • HAZMATs • Sabotage • Power failure for airfield lighting • Water rescue (if applicable) • Crowd control Airports may also want to consider including response plans for other specific events such as: • Pandemic • Active shooter • Regional grid power loss • Weapons of mass destruction attack (WMD) • Other events/incidents the region is vulnerable to Representatives from the following should be considered and their existing response plans should be known and referenced when creating and updating AEPs. Mutual aid responders should be aware of how the airport will structure incident or event management using ICS both during a precontingency situation and while responding and returning to normal operations. This is especially important to make sure off-airport responders do not assume they will respond in a particular ICS role that is not compatible with the airport’s plan. This is especially sensitive with the role of IC. Furthermore, the off-airport stakeholders can use the oppor- tunity to update their respective emergency plans for various contingencies. Where a given stakeholder has its own response plans, it is critical that there not be any conflict between their blueprint for action and the airport’s. A list of stakeholders to consider includes the following at a minimum: • Airport manager • Airport public safety (police/fire/ARFF) • Airport operations • Airport maintenance and support • Local/state law enforcement/fire/EMS • Coroner’s office • American Red Cross • State agencies • Federal agencies (FBI, ATF, TSA, CBP, and others) • Local emergency management • Airport tenants • Local hospitals • Department of health • Local utility support organizations

22 A Guidebook for Integrating NIMS for Personnel and Resources at Airports Helpful Action Checklists by ICS Position FEMA provides a comprehensive list of NIMS/ICS checklists that cover a broad spectrum of incident sizes. For those who may not regularly initiate an ICS-guided response, it is good practice to have checklists on hand. Checklists are used throughout the aviation industry. Even the so-called “experienced hands” who have emergency response experience on a weekly basis usually refer to checklists, if for no other reason than to double check their deployment. In the heat of the moment, in a high-stress, high-impact response situation, it is easy to miss something that otherwise could have been caught by simply scanning the checklist. To download the checklists of greatest interest to your airport, go to: http://www.training. fema.gov/EMIWeb/IS/ICSResource/index.htm. Airports then can use these as a basis for developing their own checklists for positions they are likely to staff, and have them as part of the incident deployment package. Additionally these checklists should be designed and tested during training to vet their utility and appropriateness, and be flexible enough to allow for changes to be made as needed. Checklists should be readily available and laminated to sustain a number of events. It is best to keep these checklists readily available in a form other than simply electronic to allow for use should data systems fail. Depending on the airport, copies of these checklists could be located in the EOC, operations vehicles, police vehicle, ARFF vehicles, and elsewhere as deemed necessary. Building and Better Defining the List of Resources Internal and External to the Airport When planning for incident response and mitigation, airports should consider the resources they have on site that can be deployed to the scene. This is also important to consider with mutual aid agencies while coordinating contingency plans as previously discussed as well as resources from local community or state agencies. In most cases, the airport will not require all the resources listed, but having a quick list of names, numbers and, in some cases, a pre-approved contractual arrangement for emergency procurement can help to obtain those resources in a more timely fashion. Examples include things like pre-approved local hotel room banks for crew rest requirements, portable generators, light plants, cranes, tow trucks or dump trucks; this is especially useful in snow emergencies or other emergencies where the region is impacted and competition for resources can cause a delay in the response or recovery of an incident or event at the airport. There are many resources not normally organic to the airport organization that may be required in emergencies, and this list is best developed through a working group process using SMEs on staff and from stakeholders.