Establishing a Coordinated Local Family Assistance Program for Airports (2017)

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81 S e c t i o n 9 “When I arrived at the airport the next morning, I did not have any identification. I gave the TSA represen- tative a business card from a representative from Homeland Security who visited me at the hospital so he could verify who I was so I could pass through security.” – Survivor of an aviation disaster Closure of the Family Assistance Center/Families in Transit The closing of the FAC is determined by a complex set of events that influence the most appropriate time to conclude operations. Following are some considerations that may influence this decision: • On-scene operations decrease or conclude, • Injured passengers are able to travel to their homes or final destinations, • Uninjured passengers travel to their homes or final destinations, • The site phase of the NTSB investigation concludes, • The majority of victims’ remains are released, • A group memorial service is conducted, and • The victims’ families and loved ones return home. After the closure of an FAC, the affected survivors, families, and friends may continue to have questions regarding the accident, response, and recovery efforts. If the airport is operating the FAC, it may be beneficial to develop an information resource (e.g., a one-page handout/brochure) that includes names and phone numbers for appropriate federal, state, and local agency contacts. Examples of resources that may be included on this handout are: • The local ARC disaster mental health team or equivalent; • Airport point of contact for long-term communications; • NTSB TDA Division, Office of Safety Recommendations and Communications; • Local crisis hotlines; and • Aviation disaster family associations. Recovery of Vehicles Belonging to Passengers and Crew Recovery of vehicles belonging to passengers and crew should be coordinated directly with the affected survivors, their families, or loved ones. Individuals who are not granted express permission by the survivors, their families, or loved ones should not be authorized to gain access Recovery and Post-Response Considerations General Aviation Airport Note Document how the airport/community will provide support to the responders following the closing of the FAC. The airport may: • Provide a debrief to all responders by the ARC or behavioral health professionals. • Create a memorial/hold a moment of silence. • Have staff wear ribbons on their lapels for remembrance. • Hold a recognition ceremony for responders.

82 establishing a coordinated Local Family Assistance Program for Airports to any personal vehicles. Vehicles belonging to deceased passengers can be identified by coordi- nating with law enforcement to confirm license plate numbers. In some instances, airport staff may need to escort family members through the parking facility allowing them to identify and reclaim their loved one’s vehicle. It is expected that some airports will use a towing service to move vehicles to a secure on-airport site until the appropriate persons can retrieve them; how- ever, it should be ensured that there is no charge for towing or parking. Crash Site Activities: Investigation and Recovery of Remains and Personal Effects The NTSB will continue the on-scene investigation until all necessary information and evi- dence have been collected and will maintain communication with the affected parties (e.g., airport, air carrier) during this phase. In addition, airport representatives should refer to FAA AC 5200/150-31C for investigative responsibilities. The NTSB’s TDA Division will reach out to the airport following legislated aviation disasters and on a case-by-case basis following non- legislated events to answer questions regarding the investigation that airport leadership may have. As the response phase shifts to recovery, airports should be aware of ongoing operations, which may affect their schedules and duties. Some items to be aware of are: • Airport operators may need to work with the affected air carrier and its vendors for badging and access to the scene. • As return of remains continues from the scene, airport operators need to be aware of the potential for affected families and friends to be on airport grounds and in the terminal, and be considerate of their needs. The need to make provisions for ongoing gathering areas at the airport, away from the public and media, should be anticipated. • If personal effects are located, they should be treated as evidence and turned over to the proper authorities. It is recommended that airports outline a social media and photography policy for their staff who may be on the scene. Care and compassion should be shown when taking photos of the crash site, ensuring that photographs of human remains, bodily fluids, and personal effects are not released for public use or posted on social media sites. Crash Site Visit for Families, Friends, and Survivors Affected survivors, families, and friends often ask to visit the crash site. Airports should work with the affected air carrier to honor these requests and have provisions in place for these site visits. Ahead of the visit, participants should be advised about the sights and smells they may encounter while on the scene; this is typically communicated by the NTSB or ARC. Addition- ally, it has become customary to place bales of straw close to the scene to create an impromptu memorial (see examples in Photo 2 and Photo 3). Any site visit must be coordinated with the NTSB if it is still conducting investigative activities at the site. In a legislated accident, the site visit must be coordinated with the NTSB and the air carrier; the airport’s role is likely to be limited. In a non-legislated/general aviation disaster, the airport may provide logistical assistance or may coordinate with other organizations such as the ARC to support the request. Things to consider prior to granting the visit are: • The condition of the site (e.g., have the personal effects and human remains been removed?); • The health and safety of the families/survivors, including airport activity, flight restrictions, access to the scene, and security;

Recovery and Post-Response considerations 83 • Protection from the media; • Steps needed to ensure that medical services are available; • Management of the visitors (entry/exit points); • Support services (behavioral health/spiritual) at the scene; and • Access to lavatories. Considerations for conducting the site visit include: • If under the control of the NTSB, the site visit must be coordinated with the investigator in charge; • Visits are typically conducted at the end of the day after investigators have concluded their on-site activities; and • Time limits and expectations should be set in advance. Photo 3. Comair Flight 3272: January 9, 1997, Monroe, Michigan. Courtesy of Jennifer Stansberry Miller. Photo 2. Cessna 560 Citation V, Circuit City Stores, N500AT: Accident occurred February 16, 2005, in Pueblo, Colorado. Photograph provided by Tricia Coffman, whose husband, David Coffman, perished on this flight.

84 establishing a coordinated Local Family Assistance Program for Airports Coordinate with local jurisdiction on available resources to support families during the visit. Provisions to consider are the overall health and safety of visitors, transportation to the site, pro- tection from the elements (umbrellas, blankets), and availability of water and food (e.g., nuts, protein bars, fruit juice) if needed. Crash Site Visits for VIPs and Officials Airports should anticipate requests to view the crash site by local, state, and federal officials, as well as other interested parties. Airports should work closely with the requesting parties and the agencies (e.g., FBI, NTSB, local law enforcement) responsible for site access to determine the feasibility of the requests. Planners should recognize that it is not recommended, nor is it common practice, to have non-family members visit the crash site in the immediate hours, days, or weeks following a crash, especially while recovery efforts are ongoing. Priority for such a visit is given to the affected indi- viduals first, and other requests may be considered on a case-by-case basis. If permission is granted, visitors should be escorted by local law enforcement, and it should be ensured during the visit that photographs are not taken, families/survivors and the media are not present, and recovery efforts have concluded. Memorial Service In the United States, it is common to see an organized nondenominational memorial service after an aviation disaster. Though one can expect to see this more in legislated and large-scale events, airports should prepare to receive a request to hold a service or manage spontaneous gatherings on airport grounds. Provisions for the health and safety of those in attendance and also any airport traf- fic, including arriving/departing aircraft, need to be considered. In a legislated accident, the local ARC chapter will assist in coordinat- ing a service. In the past, these services have been held at churches and synagogues, meeting halls, school gymnasia, and other venues of suffi- cient size. Although typically held at the city of occurrence, they have also been held at the departing and arriving cities of the flight, sometimes simultaneously. Long-Term Implications Anniversaries Airports should be aware of the annual anniversary of an aviation disaster. Though the first year may draw the most visitors, including the media, it is common to have visitors in sub- sequent years. Important factors to consider include: • The size and scope of the crash, which may influence visitors and interest; • Media interest; and • The possibility that family members and survivors may be traveling through airports to visit the crash site or attend memorial services. Monuments It can be customary for families and loved ones to request the creation of a monument or memorial at or near the crash site. Family assistance legislation instructs air carriers not to create General Aviation Airport Note The community may wish to have a memorial service. This is normally planned with the assistance of the local chapter of the ARC. Families and friends may also be part of the planning.

Recovery and Post-Response considerations 85 permanent monuments without the input of the affected survivors, families, and friends. Fol- lowing this guidance, it is advised that all airports, regardless of type of accident, include those affected by the accident in the planning and creating of any permanent monument or memo- rial being considered. The passion and dedication of the affected families in ensuring that a monument is created should not be underestimated, nor should their appreciation once the monument is completed. Following are two examples from a commercial aviation disaster and a private, general aviation disaster. Alaska Airlines Flight 261 – January 31, 2000 (See Photo 4) The families related to Alaska Flight 261 (AS261) were the drivers of this project. They volunteered their expertise and time to fly to monthly meetings in California, drove throughout the Northwest visiting bronze designers and foundries, and donated their resources to make the project happen. The air carrier provided substantial funding. Without the families’ dedication, caring, and willingness to put other aspects of their lives aside, the Alaska Flight 261 monument would not have been such a beautiful piece of art dedicated on-site during the third-anniversary memorial, January 31, 2003 (Campbell, no date). To commemorate the anniversary of the accident, a significant number of family members (30 to 50) visit the memorial annually, transiting through affected airports. Cessna 560 Citation V, Circuit City Stores – February 17, 2005 (See Photo 5) Circuit City corporate management coordinated the efforts for the creation and design of the monu- ment, covered its cost, and chose its location. It is situated in a small cemetery 3 miles from the airport, on the corner of the property near the crash site. The monument was unveiled and dedicated at the 1-year anniversary of the crash. Families report appreciation for the effort put forth by the corporation. When choosing a site on or near the airport, airports should consider safety above location. In an interview, Detroit Airport representatives shared concerns about the location of the monu- ment from Northwest Air Flight 255, which stands near the airport property at a heavily trav- eled interstate exit ramp. Although this is the location the families requested, airport personnel relayed their continued concerns for visitors’ safety. Because the monument should be influenced by the families and loved ones of the survivors and victims, the size and scope of the results vary. It is recommended to create a working group composed of the affected survivors, families, friends, and community members to work on the project. Planning considerations should include monument design, location, land usages/ ownership, finance and fundraising, construction, liability insurance, and long-term maintenance. Photo 4. A visitor looks at names inscribed on the AS261 memorial sundial at Port Hueneme, California. Courtesy of Sue Warner-Bean.

86 establishing a coordinated Local Family Assistance Program for Airports Monuments should strive to honor all onboard the flight, including passengers and crew. Most reflect a design free of religious symbols and icons. Visits by Family Members, Friends, and Survivors, and the Public Airports should be aware that affected survivors, families, and friends will likely want to visit the crash site in the months or years following a disaster. Past testimony from aviation disaster victims’ families shows that there is not necessarily a particular time when they will decide to visit the site; it could be 1 month or 20 years after the event. Airports should be aware of this and have provisions in place to support these requests for site visits. Blue Grass Airport (LEX) in Lexington, KY, reported a request from a family member who asked to visit the site over 8 years after the crash of Comair Flight 5191. Even though it was a legislated accident, the airport was contacted about the visit, and the airport ensured that the request was fulfilled by its staff. Lesson Learned: Comair Flight 5191, August 26, 2006 Over 8 years after the crash of Comair Flight 5191, Lexington Blue Grass Airport personnel were con- tacted by an employer of the deceased to assist a family with a request to visit the crash site. Based on this family’s cultural and religious practices, a visit to the site to perform a religious ritual was pertinent to its healing process. The airport honored this request and coordinated a site visit on behalf of the family. At the time of the accident, the airport placed a pin locator at the exact site of the nose of the aircraft to ensure that it always knew where the crash site was. This pin was linked to GPS technology, which ensured that the family was taken to the correct location. Airport personnel escorted the family to the site of impact and allowed the family to burn incense as part of its grief healing ritual. Based on its experience, the airport encourages all airports and response personnel to be as open and accommodating with families as pos- sible. For example, knowing that it is not always best practice to allow an item to be burned inside airport property, personnel understood the need for the bereaved to do this and allowed it. The airport also encourages planners to consider placing a GPS pin locator at impact sites to assist in locating the proper spot after the recovery and cleanup efforts end. This became important in assisting the family. Spontaneous Memorials Memorials and the placement of items in memory of the victims are actions airport planners need to expect following an aviation disaster. One airport interviewed has designated a protected Photo 5. Tricia Coffman and her children pay respects to her husband and their father at the monument near the crash site of Cessna 560 Citation V, Circuit City Stores, in Pueblo, Colorado. Courtesy of Tricia Coffman.

Recovery and Post-Response considerations 87 area on airport property, outside of the terminal and traffic flow, where people can leave flowers and other commemorative items; its response plan includes placing condolence books there for visitors to sign. Lesson Learned: Comair Flight 5191, August 26, 2006 (See Photo 6) In order to create a space away from on-airport operations, LEX had a vinyl banner made to become the focal point for families, the public, and responders to pay their respects. When it came time to deconstruct the memorial, all of the items, including the banner, were gathered and properly prepared for long-term storage. The flowers were not discarded; they were placed in sealable plastic bags for safekeeping. The banner, flowers, and miscellaneous items were placed in the care of the Aviation Museum of Kentucky. This decision was made by a com- mission of local planners and affected family members who worked together to make key decisions, such as planning a permanent monument, following the accident. As Comair Flight 5191 families and the local community began to plan for the 10th anniversary of the crash in 2016, the airport personnel reported that these items were to be removed from storage and placed on display at the arboretum on the University of Kentucky’s campus, where the Flight 5191 sculpture was placed. Airport officials state that the banner they had created did not have a UV coating; therefore, it began to deteriorate. They recommend having banners created with a UV coating. Special Considerations The impact of an aviation disaster, whether ending in loss of life or change in life (as with survivors), profoundly changes those affected and, of course, responding agencies. Following an aviation disaster, airport representatives should be aware that there is not a specific time frame for when grief ends and when requests from the affected may cease. Occasionally following large-scale aviation disasters, aviation disaster family associations form to advocate for legislative change on a federal level. One of the most powerful examples of this comes from Families of 3407, the family association related to Continental Connection Flight 3407. General Aviation Airport Note Ensure that the Family Assistance Plan has instructions for spontaneous memo- rials, including: • Where the public can place flowers and other items, • Condolence books to be given to the families, and • What to do with items following the response. Photo 6. LEX airport created this impromptu memorial following the crash of Comair Flight 5191. Courtesy of Lexington Blue Grass Airport.

88 establishing a coordinated Local Family Assistance Program for Airports Buffalo Niagara International Airport (BUF) reported a request from this association to hold a press conference on the crash’s 1-year anniversary with United States Senator Chuck Schumer of New York. Airport personnel honored the request and facilitated a meeting area on airport property where the families and the Senator could gather with the press. Additionally, airports can expect to have family members transit through their facilities when traveling back to the crash site for memorials/anniversaries. Planners should be aware of this in case a situation arises where support or services may need to be supplemented if the air carrier cannot provide them. Responder Readiness and Recovery: Psychological Resilience for Employees and Responders Emergency service providers, airport personnel, vendors, and mutual aid partners who work during a response can develop an acute stress response, even developing post-traumatic stress symptoms over time. It is normal to experience an array of thoughts and emotions following a traumatic event; however, if the thoughts and feelings do not get resolved and they interrupt daily life, professional counseling should be sought. The importance of taking care of oneself on a daily basis, prior to an event, cannot be underscored enough. Lifestyle choices to incorporate into daily life to build up resilience to stress include: • Sleeping 8 or more hours a night, although sleeping too much can indicate possible problems; • Exercising (including walking) a minimum of three times a week for 30 minutes; • Eating a healthy diet of fresh foods; • Limiting alcohol consumption; • Cultivating a strong support system of family, friends, and colleagues; • Maintaining community/church involvement; and • Being engaged in hobbies/sports. Mitigating the traumatic stress response requires a healthy daily life- style prior to the event, but also requires having key support techniques in place following an event. The following list includes actions a person can take to help reduce the impact of traumatic stress: • Use critical incident stress management (CISM) programs and resources, • Use a professional peer support program to offer support and guidance, • Exercise, • Sleep, • Maintain a healthy diet, • Have a support system and interests outside the work environment, and • Become educated on strategies and best practices for stress management. During a response and in the recovery phase, it is appropriate to have employees wear rib- bons of remembrance on their clothing. It is also recommended to ensure that employees who work during a response have access to an employee assistance program (EAP) or emotional support program. General Aviation Airport Note Airports should document the process for ensuring that all responders have access to behavioral health support and critical incident stress management fol- lowing the response. Airports should: • Provide referrals, • Provide briefings, and • Allow for time off.

Recovery and Post-Response considerations 89 Research has shown that, following a disaster, airports, EMS, law enforcement, and air carriers have held luncheons, dinners, and other gatherings to bring employees together for support and appreciation of their efforts. In addition: • One-year anniversaries should be remembered and acknowledged; • If an employee was killed in an aviation disaster, on-site memorial spaces, such as gardens or memorial plaques, can be important remembrances for staff, responders, and the com- munity; and • Employee memorials, moments of silence, and ribbons worn on clothing can all be meaning- ful to employees and volunteers. Recommended Training and Additional Resources Additional training and resources include: • Building Workforce Resilience through the Practice of Psychological First Aid – A Course for Supervisors and Leaders. Offered through the National Association of County and City Health Officials – free online course, https://live.blueskybroadcast.com/bsb/client/CL_DEFAULT. asp?Client=354947&PCAT=7365&CAT=9403. • ACRP Report 22: Helping Airport and Air Carrier Employees Cope with Traumatic Events, Kenville et al., Transportation Research Board of the National Academies, Washington, D.C., 2009, http://www.trb.org/Publications/Blurbs/162365.aspx. Section 9: Recovery and Post-Response Issues Summary and Checklist This checklist provides planning guidance for airport response following the closing of the FAC. This information should be addressed in the family assistance program and documented in supporting materials. M If the airport is the responsible party for the FAC, develop a one-page handout or pamphlet with resources for families after they return home. The pamphlet may include contact infor- mation for: – Local ARC disaster mental health team, – Airport point of contact, – NTSB Transportation Disaster Assistance Division, – NTSB Office of Safety Recommendations, – NTSB communications, – Local crisis phone numbers, and – Aviation disaster family associations. M Create instructions for coordinating with law enforcement for family member access to vehi- cles parked at the airport. M Include instructions for the airport to keep in touch with the NTSB regarding lingering issues that could affect the operation of the airport or assistance for family members. M Include instructions for issuing credentials to vendors and others who will be working as part of the investigation, as well as instructions for personal effects management, removal of remains, and removal of the aircraft. M Develop a social media and photography policy regarding the protection of privacy for families and others associated with aviation disasters and disaster response. – No photos or streaming of the crash site, human remains, bodily fluids, or personal effects will be distributed on social media or for any public use.

90 establishing a coordinated Local Family Assistance Program for Airports Site Visit for Families, Friends, and Survivors M Include information on crash site visit protocols in the family assistance program. – If the NTSB is conducting the on-site phase of the investigation, any site visit should be coordinated with it. – If it is a legislated accident, the site visit is coordinated with the NTSB and air carrier. – If it is a non-legislated accident, the airport or other individual or agency may conduct the visit if it so chooses, in coordination with the NTSB. � Considerations prior to granting permission to visit: • Condition of site: Have human remains been removed? Have personal effects been removed? • Health and safety of the survivors/families: look at airport activity, flight restrictions, access to scene, and security. • Protection from the media. • Provision for medical services. • Provision for mental health professionals, clergy, and other support services at the scene. • Access to lavatories. M If the airport chooses to conduct a site visit: • Coordinate with NTSB investigators. • Have appropriate authorities or the ARC inform those affected about the sights and smells they might encounter. • Place bales of straw near the site as an impromptu memorial. • Plan to conduct the visit at the end of the day. • Set time limits and expectations prior to the visit. • Coordinate with the local jurisdiction about transportation, security, umbrellas, blankets, water, food, and other health and safety considerations. Memorial Service M Consider planning for memorials in the family assistance program. – If the aviation disaster is legislated, the ARC will assist in coordinating the memorial service. – If the aviation disaster is non-legislated, the airport might find smaller groups of friends, families, or the community holding impromptu vigils. Airports should ensure that plan participants are safe from airport traffic and similar dangers. Anniversary of the Event and Beyond M Include guidance on handling the anniversary of an aviation disaster in the family assistance program. – Each year, visitors may pay respect to the victims of the disaster by visiting the site or monument. – There may be media interest. – Family members may be traveling through airports to visit the site or memorial. – Family members may travel to the site for many years. Monument and Memorials M Place guidance about a monument in the family assistance program. – If the airport or an agency decides to put up a monument, consult with the survivors and families during planning and construction. – It is best to have a working group of community members and families work on the project. – Consider safety first when constructing the monument.

Recovery and Post-Response considerations 91 M Place details outlining plans for spontaneous memorials in the family assistance program. – Designate a protected area outside of the traffic flow area where people may leave flowers and other items to honor victims of the aviation disaster. – Place condolence books for the public to sign. – Plan what to do with the items that are left by the public and at the site. For instance: � Flowers, � Banners, and � Stuffed animals. – Place UV-protected banners on the site to direct the public. Responder Readiness and Recovery M Include information about the airport’s resources for helping employees following an avia- tion disaster. Examples of information that might be incorporated are as follows: – Encourage responders to lead a healthy lifestyle as part of their emergency preparedness; this will help develop their resilience when responding to disasters: � Eating and sleeping well. � Exercising. � Developing a strong network of family and friends. � Involvement in community/church. � Participation in hobbies/sports. – After the event response: � CISM has been proven beneficial. � Encourage use of a professional peer support program. � Encourage responders to exercise. � Remind responders to pay attention to sleep and diet. � Remind responders to use a support system and maintain interests outside of work. � Acknowledge the 1-year anniversary. � If an employee was killed, consider a memorial garden, plaque, or on-site memorial. � Consider employee memorials, moments of silence, and ribbons on lapels, which can be meaningful to employees.