Emergency Communications Planning for Airports (2016)

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TRANSPORTATION RESEARCH BOARD WASHINGTON, D.C. 2016 www.TRB.org Research Sponsored by the Federal Aviation Administration SubScriber categorieS Aviation • Security and Emergencies A I R P O R T C O O P E R A T I V E R E S E A R C H P R O G R A M ACRP SYNTHESIS 73 Emergency Communications Planning for Airports A Synthesis of Airport Practice conSultantS James F. Smith Smith–Woolwine Associates Inc. Kimberly A. Kenville University of North Dakota John M. Sawyer JMS Airfield Safety Consulting LLC and Ricardo E. Garcia

AIRPORT COOPERATIVE RESEARCH PROGRAM Airports are vital national resources. They serve a key role in transportation of people and goods and in regional, national, and international commerce. They are where the nation’s aviation sys- tem connects with other modes of transportation and where federal responsibility for managing and regulating air traffic operations intersects with the role of state and local governments that own and operate most airports. Research is necessary to solve common oper- ating problems, to adapt appropriate new technologies from other industries, and to introduce innovations into the airport industry. The Airport Cooperative Research Program (ACRP) serves as one of the principal means by which the airport industry can develop innovative near-term solutions to meet demands placed on it. The need for ACRP was identified in TRB Special Report 272: Airport Research Needs: Cooperative Solutions in 2003, based on a study sponsored by the Federal Aviation Administration (FAA). ACRP carries out applied research on problems that are shared by airport operating agencies and not being adequately addressed by existing federal research programs. ACRP is modeled after the successful National Cooperative Highway Research Program (NCHRP) and Transit Cooperative Research Program (TCRP). ACRP undertakes research and other technical activities in various airport subject areas, including design, construction, legal, mainte- nance, operations, safety, policy, planning, human resources, and administration. ACRP provides a forum where airport operators can cooperatively address common operational problems. ACRP was authorized in December 2003 as part of the Vision 100—Century of Aviation Reauthorization Act. The primary par- ticipants in the ACRP are (1) an independent governing board, the ACRP Oversight Committee (AOC), appointed by the Secretary of the U.S. Department of Transportation with representation from airport operating agencies, other stakeholders, and relevant indus- try organizations such as the Airports Council International-North America (ACI-NA), the American Association of Airport Execu- tives (AAAE), the National Association of State Aviation Officials (NASAO), Airlines for America (A4A), and the Airport Consul- tants Council (ACC) as vital links to the airport community; (2) TRB as program manager and secretariat for the governing board; and (3) the FAA as program sponsor. In October 2005, the FAA executed a contract with the National Academy of Sciences for- mally initiating the program. ACRP benefits from the cooperation and participation of airport professionals, air carriers, shippers, state and local government officials, equipment and service suppliers, other airport users, and research organizations. Each of these participants has different interests and responsibilities, and each is an integral part of this cooperative research effort. Research problem statements for ACRP are solicited periodi- cally but may be submitted to TRB by anyone at any time. It is the responsibility of the AOC to formulate the research program by identifying the highest priority projects and defining funding levels and expected products. Once selected, each ACRP project is assigned to an expert panel appointed by TRB. Panels include experienced practitioners and research specialists; heavy emphasis is placed on including airport professionals, the intended users of the research products. The panels prepare project statements (requests for proposals), select contractors, and provide technical guidance and counsel throughout the life of the project. The process for developing research prob- lem statements and selecting research agencies has been used by TRB in managing cooperative research programs since 1962. As in other TRB activities, ACRP project panels serve voluntarily with- out compensation. Primary emphasis is placed on disseminating ACRP results to the intended users of the research: airport operating agencies, service providers, and academic institutions. ACRP produces a series of research reports for use by airport operators, local agencies, the FAA, and other interested parties; industry associations may arrange for workshops, training aids, field visits, webinars, and other activities to ensure that results are implemented by airport industry practitioners. ACRP SYNTHESIS 73 Project A11-03, Topic S04-16 ISSN 1935-9187 ISBN 978-0-309-38971-6 Library of Congress Control Number 2016933714 © 2016 National Academy of Sciences. All rights reserved. COPYRIGHT INFORMATION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA, FMCSA, FRA, FTA, Office of the Assistant Secretary for Research and Technology, PHMSA, or TDC endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. NOTICE The report was reviewed by the technical panel and accepted for publication according to procedures established and overseen by the Transportation Research Board and approved by the National Academies of Sciences, Engineering, and Medicine. The opinions and conclusions expressed or implied in this report are those of the researchers who performed the research and are not necessari- ly those of the Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; or the program sponsors. The Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; and the sponsors of the Airport Cooperative Research Program do not endorse products or manufacturers. Trade or manufacturers’ names appear herein solely because they are considered essential to the object of the report. Published reports of the AIRPORT COOPERATIVE RESEARCH PROGRAM are available from Transportation Research Board Business Office 500 Fifth Street, NW Washington, DC 20001 and can be ordered through the Internet by going to http://www.national-academies.org and then searching for TRB Printed in the United States of America

The National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, non- governmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president. The National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. C. D. Mote, Jr., is president. The National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president. The three Academies work together as the National Academies of Sciences, Engineering, and Medicine to provide independent, objective analysis and advice to the nation and conduct other activities to solve complex problems and inform public policy decisions. The Academies also encourage education and research, recognize outstanding contributions to knowledge, and increase public understanding in matters of science, engineering, and medicine. Learn more about the National Academies of Sciences, Engineering, and Medicine at www.national-academies.org. The Transportation Research Board is one of seven major programs of the National Academies of Sciences, Engineering, and Medicine. The mission of the Transportation Research Board is to increase the benefits that transportation contributes to society by providing leadership in transportation innovation and progress through research and information exchange, conducted within a setting that is objective, interdisciplinary, and multimodal. The Board’s varied committees, task forces, and panels annually engage about 7,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individuals interested in the development of transportation. Learn more about the Transportation Research Board at www.TRB.org.

TOPIC PANEL S04-16 KIMBERLY GIBBS, Metropolitan Washington Airports Authority, Washington, DC MARY GRADY, Los Angeles World Airports, Los Angeles, CA JOSHUA GREENBERG, Carleton University, Ottawa, ON, Canada JOHN S. KINNEY, Aspen–Pitkin County Airport, Aspen, CO REESE McCRANIE, Hartsfield–Jackson Atlanta International Airport, Atlanta, GA DAVID McCURDY, Dallas/Fort Worth International Airport, DFW Airport, TX MARC TONNACLIFF, Federal Aviation Administration (Liaison) SEAN CUSSON, Airports Council International–North America (Liaison) SYNTHESIS STUDIES STAFF STEPHEN R. GODWIN, Director for Studies and Special Programs JON M. WILLIAMS, Program Director, IDEA and Synthesis Studies JO ALLEN GAUSE, Senior Program Officer GAIL R. STABA, Senior Program Officer DONNA L. VLASAK, Senior Program Officer TANYA M. ZWAHLEN, Consultant DON TIPPMAN, Senior Editor CHERYL KEITH, Senior Program Assistant DEMISHA WILLIAMS, Senior Program Assistant DEBBIE IRVIN, Program Associate COOPERATIVE RESEARCH PROGRAMS STAFF CHRISTOPHER W. JENKS, Director, Cooperative Research Programs MICHAEL R. SALAMONE, Senior Program Officer JEFFREY OSER, Program Associate EILEEN P. DELANEY, Director of Publications ACRP COMMITTEE FOR PROJECT 11-03 CHAIR JOSHUA D. ABRAMSON, Easterwood Airport, College Station, TX JULIE KENFIELD, Jacobsen/Daniels Associates LLC, Garden Ridge, TX MEMBERS DEBBIE K. ALKE, Montana Department of Transportation, Helena, MT GLORIA G. BENDER, TransSolutions, Fort Worth, TX DAVID A. BYERS, Quadrex Aviation, LLC, Melbourne, FL DAVID N. EDWARDS, JR., Greenville–Spartanburg Airport District, Greer, SC BRENDA L. ENOS, Massachusetts Port Authority, East Boston, MA LINDA HOWARD, Independent Aviation Consultant, Bastrop, TX ARLYN PURCELL, Port Authority of New York & New Jersey, New York, NY FAA LIAISON PATRICK W. MAGNOTTA AIRCRAFT OWNERS AND PILOTS ASSOCIATION LIAISON ADAM WILLIAMS AIRPORTS CONSULTANTS COUNCIL LIAISON MATTHEW J. GRIFFIN AIRPORTS COUNCIL INTERNATIONAL–NORTH AMERICA LIAISON LIYING GU TRB LIAISON CHRISTINE GERENCHER Cover figure: Triennial Exercise at Rochester International Airport, August 2015 ( photo: Peggy Gray).

ACKNOWLEDGMENTS The researchers wish to acknowledge the generous sharing of time and experience by the airport experts who contributed to this study by responding to the survey, being interviewed, or providing documentation: Airports Contributors Aspen/Pitkin County Airport John Kinney, CM Bismarck Airport Matthew Remynse Blue Grass Airport (Lexington) Scott Lanter, AAE Blue Ridge Regional Airport Jason Davis Boise International Airport Sarah Demory, AAE Burbank Bob Hope Airport Lucy M. Burghdorf Cecil Airport Justin Fletcher Centennial Airport Lorie Hinton Colorado Springs Airport Brett Miller, ACE Denver International Airport Heath Montgomery, Laura Coale, Jason Taussig, Steve Lee, AAE Devils Lake Airport John M. Nord DFW International Airport Paul Martinez, Mary Jo Polidore, Phillip Mongeu, David McCurdy Eagle River Union Airport Robert Hom Eugene Airport Cathryn Stephens, AAE, Tammie Hartje Fort Dodge Regional Airport Rhonda Chambers Fort Lauderdale–Hollywood International Airport Michael Nonnemacher, AAE Grove Regional Airport Lisa Jewett, Mike Reed Hartsfield–Jackson Atlanta International Airport Gus Hudson Hector International Airport (Fargo) Darren Anderson, CM, David Bush Jacksonville International Airport Meaghan Smalley Joplin Regional Airport Steve Stockam, Peter Kaufmann Lakeland Linder Regional Airport Nan Walsh, CM, Adam Lunn, CM, ACE, Brett Fay, CM, John Maddox Lambert–St. Louis International Airport Elizabeth Smart, AAE Livermore Airport Leander Hauri, AAE, Justin Drinkwater, CM Los Angeles International Airport Mary Grady, Jacqueline Yaft, Cassandra Heredia, Richard Chong Martha’s Vineyard Airport Sean C. Flynn, CM Memphis International Airport Roger Riddle Miami International Airport, Miami-Opa Locka Executive Airport Dan Agostino, Nelson Mejias, Phil DiMaria, Nicolas Marian Minneapolis–St. Paul International Airport Kristi Rollwagen Morristown Airport Rosemary Rizzo, AAE, ACE New River Valley Airport Keith Holt North Little Rock Airport Clay Rogers Orlando International Airport Duane Kann, Tom Draper Owatonna Degner Regional Airport Dave Beaver Phoenix Deer Valley Airport Ed Faron, AAE Phoenix Goodyear Airport Joseph A. Husband, CM Phoenix Sky Harbor International Airport Christopher Rausch, ACE Raleigh–Durham International Airport John K. Graves Range Regional Airport Shaun Germolus, CM Reno–Tahoe Airport Mike Scott, AAE, Thomas Nelson, Jaime Edrosa, Christina Gonzales, Romona Fisher, CM Rochester (MN) International Airport & City of Rochester Kurt Claussen, Tiana Russow, Ken Jones Rock Hill–York County Airport Steven Gould, CM Ronald Reagan Washington National Airport Paul Malandrino Salt Lake City International Airport Terry R. Craven, CM, ACE San Francisco International Airport Toshia Shavies Marshall, Larry Mares Savannah/Hilton Head International Airport Fred McCosby, AAE Seattle Tacoma International Airport Kristine Ball Soldotna Airport Kyle Kornelis Southwest Florida International Airport Lisa LeBlanc-Hutchings Watsonville Municipal Airport Rayvon Williams, CM, Daniel Bloecher, Marjorie Bachman, Tom Hail, Rosa Meyer Western Nebraska Regional Airport Raul Aguallo Willow Run Airport Col. Christopher J. Mullin, USMC (Ret.), CM, David DiMaria, CM Yeager Airport Nick Keller, CM Yuma International Airport Gladys Wiggins The research team thanks the publisher and editor of Airport Improvement magazine and Kristin Vanderhey Shaw, the author of the article “2015 Recertification Full-scale Exercise with Emphasis on Social Media Use” that appeared in the November/December 2015 issue of that magazine. Peggy Gray took the pictures for the article and to document the drill for the airport; she graciously gave permission to reproduce her photographs. Throughout the study, the topic panel and the ACRP project officer provided sound advice, practical assistance, and encouragement.

Airport administrators, engineers, and researchers often face problems for which informa- tion already exists, either in documented form or as undocumented experience and practice. This information may be fragmented, scattered, and unevaluated. As a consequence, full knowledge of what has been learned about a problem may not be brought to bear on its solution. Costly research findings may go unused, valuable experience may be overlooked, and due consideration may not be given to recommended practices for solving or alleviating the problem. There is information on nearly every subject of concern to the airport industry. Much of it derives from research or from the work of practitioners faced with problems in their day-to-day work. To provide a systematic means for assembling and evaluating such useful information and to make it available to the entire airport community, the Airport Coop- erative Research Program authorized the Transportation Research Board to undertake a continuing project. This project, ACRP Project 11-03, “Synthesis of Information Related to Airport Practices,” searches out and synthesizes useful knowledge from all available sources and prepares concise, documented reports on specific topics. Reports from this endeavor constitute an ACRP report series, Synthesis of Airport Practice. This synthesis series reports on current knowledge and practice, in a compact format, without the detailed directions usually found in handbooks or design manuals. Each report in the series provides a compendium of the best knowledge available on those measures found to be the most successful in resolving specific problems. FOREWORD All airports are faced with the challenges of dealing with the flow of accurate informa- tion during emergencies—flows within the airport’s organization, between the airport and its response partners, and between the airport and the public, either directly or through the media. Changing technology affects all these flows, and airports are challenged to acquire and effectively use the technology. Many airports find benefits from going beyond regulatory minima for communication plans. This is true of the FAR Part 139 airports as well as for the general aviation airports. An effective communication plan enhances not only safety but also customer service. The focus of the report is on emergency communications planning and is specifically designed for use by airport senior management, public information officers, and first responders and emergency managers. The most direct and useful parts of this report are the sample communication plan tables of contents, field operations guides, and the checklist of effective communications plans. These materials were derived from a survey of 60 U.S. airports regarding their specific communications plans and procedures as well as from five highly detailed case examples and five additional focused interviews. The checklist is designed to assist airport managers, emergency managers, and planners in the development, implementation, and evaluation of effective communications plans or crisis communications plans. James F. Smith, Smith–Woolwine Associates Inc.; Kimberly A. Kenville, University of North Dakota; John M. Sawyer, JMS Airfield Safety Consulting LLC; and Ricardo E. Garcia, collected and synthesized the information and wrote the report. The members of the topic panel are acknowledged on the preceding page. This synthesis is an immediately useful document that records the practices that were acceptable within the limitations of the knowl- edge available at the time of its preparation. As progress in research and practice continues, new knowledge will be added to that now at hand. PREFACE By Gail R. Staba Senior Program Officer Transportation Research Board

CONTENTS 1 SUMMARY 3 CHAPTER ONE STATE OF THE PRACTICE 2015 Recertification Full-Scale Exercise with Emphasis on Social Media Use, Rochester, Minnesota (RST)—Navigating Social Media Within an Airport Emergency Exercise, 3 Summary, 7 8 CHAPTER TWO COMMUNICATION AND INFORMATION AT AIRPORTS Communications and Information, 8 Accidents, Emergencies, Disasters, and Crises, 9 National Incident Management System (NIMS) and the Incident Command System (ICS), 9 Importance of Communications in Airport Emergencies, 10 Airport Emergency Communications and Technological Change, 10 Types of Airport Emergency Communications Plans, 10 Determining What Is Needed in the Emergency Communications Plan, 11 Using Airport Emergency Communications Plans for Non-Emergencies, 11 12 CHAPTER THREE SCOPE AND METHODOLOGY Selection of Airports, 12 Literature Review, 12 Survey and Response Data, 12 Case Examples, 13 Data Analysis, 14 15 CHAPTER FOUR EMERGENCY AND CRISIS COMMUNICATIONS PLANNING AND PLANS Management of Airport Emergency Communications, 15 Staffing and Training for National Incident Management System and Incident Command System, 15 Nature of Airport Emergency Communications Plans, 15 Models of Airport Emergency Communications Planning, 17 Airports Developing and Creating Communications Plans, 17 Fort Lauderdale–Hollywood International Airport (FLL), 17 Hartsfield–Jackson Atlanta International Airport (ATL), 18 Jacksonville International Airport (JAX), 18 Lambert–St. Louis International Airport (STL), 18 San Francisco International Airport (SFO), 18 Aspects Addressed by Emergency Communications Plans, 18 Planning Processes and Procedures, 19 Value of Pre-planning for Emergency Communications, 19 Roles of Partners and Stakeholders, 19 Evaluation of Effectiveness of Emergency Communications Plans, 20 Training, 20 Barriers and Challenges to Effective Emergency Communications Planning, 20

21 CHAPTER FIVE ROLES OF THE PRIMARY AUDIENCES FOR THIS STUDY Senior Airport Management, 21 Modern Airport Public Information Officer (PIOs), 22 First Responders and Emergency Managers, 23 Role of the Emergency Operations Center, 23 Transparency Dilemma in a Command and Control Environment, 24 25 CHAPTER SIX ROLE OF SOCIAL MEDIA 28 CHAPTER SEVEN ISSUES WITH CONTACT LISTS 29 CHAPTER EIGHT EVALUATING THE EFFECTIVENESS OF EMERGENCY AND CRISIS COMMUNICATIONS Evaluation, 29 Application of Lessons Learned, 30 32 CHAPTER NINE CONCLUSIONS AND SUGGESTIONS FOR FURTHER RESEARCH Successful Practices and Lessons Learned, 32 Conclusions, 32 Suggestions for Further Research, 33 35 ACRONYMS 38 GLOSSARY 41 REFERENCES AND BIBLIOGRAPHY 45 APPENDIX A SURVEY QUESTIONS 59 APPENDIX B PARTICIPATING AIRPORTS 61 APPENDIX C CASE EXAMPLES 70 APPENDIX D FOG1—LEAD PIO FUNCTIONS AND DUTIES 72 APPENDIX E FOG2—DEPUTY LEAD PIO FUNCTIONS AND DUTIES 75 APPENDIX F FOG3—FUNCTIONS AND DUTIES OF PIO COORDINATOR FOR SOCIAL MEDIA 76 APPENDIX G FOG4—FUNCTIONS AND DUTIES OF PIO IN PR OFFICE OR 24-HOUR DUTY OFFICER 77 APPENDIX H FOG5—FUNCTIONS AND DUTIES OF PIO AT MEDIA ASSEMBLY SITE

Note: Photographs, figures, and tables in this report may have been converted from color to grayscale for printing. The electronic version of the report (posted on the web at www.trb.org) retains the color versions. 78 APPENDIX I FOG6—FUNCTIONS AND DUTIES OF PIO AT NEWS CONFERENCE SITE 80 APPENDIX J FOG7—FUNCTIONS AND DUTIES OF AIRPORT PHOTOGRAPHER 81 APPENDIX K FOG8—FUNCTIONS AND DUTIES OF AIRPORT VIDEOGRAPHER 82 APPENDIX L FOG9—FUNCTIONS AND DUTIES OF AIRPORT GRAPHIC DESIGNERS 83 APPENDIX M CHECKLIST FOR EFFECTIVE PLANNING PRACTICES FOR CREATING AND SUSTAINING EFFECTIVE EMERGENCY COMMUNICATIONS PLANS FOR AIRPORTS