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

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46 S e c t i o n 5 “The staff at the airport should be more receptive to the needs and reactions of people who are in shock; [they should have] better communication and [a] better understanding of what the needs really are.” – Family member from an aviation disaster Communications Plan The airport’s family assistance program should include a communica- tions plan that outlines how information will be exchanged by decision makers and responders when the program is activated. The communi- cations plan outlines the information flow between the airport and its partner agencies and how messaging will be provided to affected families and friends, uninjured survivors, survivors who have been transported to care facilities, and possibly most importantly, to the media. Airports following the planning requirement and guidance of FAA Part 139 and the guidance of FAA AC 150/5200-31C will likely already have a communications plan as a part of their AEP. If so, the two plans should be coordinated to avoid duplication of efforts and overloading communications pathways. When developing a communications plan, consider three key ele- ments: stakeholders, tools, and communication type. Identifying Communications Stakeholders The first step in developing a communications plan to support a fam- ily assistance program is identifying the stakeholders who need to send communications and those who will be receiving the messages. While it is possible that all stakeholders supporting the family assistance program may need to receive messages, not all may need to send them. The family assistance program will need to identify which stakeholders need to share information, and with whom. The list in Table 3 can be used to help identify family assistance communications stakeholders that may need to send or receive messages during a family assistance program activation. Identifying Communications Tools Effective communication among stakeholders requires using the right tools to ensure that all responders are informed and able to successfully perform their duties. Several factors help Information Management and Communications General Aviation Airport Note It is recommended that a communications plan be included in the family assistance program. The communications plan should include: • How various response teams will communicate. • Media management and press conference setup. • Signage (preplanned language and preprinted signs). • Sample announcements for the FRC. • Sample announcements in the airport. • Information about the airport opera- tion: What will the airport say? How will it deliver the message? • Briefing agendas for the airport, responding agencies, and local government leadership.

information Management and communications 47 determine which tool(s) should be used for each stakeholder communication. Consider whether information exchange is one-way or two-way; is intended for an individual, small group, or large audience; is formal or informal; or requires any action or response. Existing airport communications plans will define many of the methods and protocols for communication between first responders, incident command, and the airport EOC; many air- ports use radios (typically 800 MHz), cell phones, or email. However, plans may fail to detail the communications methods for communicating with the air carrier’s headquarters, the ARC, hos- pitals, family assistance facilities within the airport (the FRC and PGA), and other stakeholders. Examples of communication tools and methods are: • Conference lines; • Mobile and handheld radios; • Mobile phones; • Cellular-on-wheels trailers; • Landlines – dedicated phone lines; • Scanners and fax machines; • Social media; • Text messaging; • Websites – airport, local government, other; • Email, including prebuilt email lists; Airport Personnel Local/State/Federal Government Personnel Other Partner Groups/Agencies FRC coordinator(s) Fire department Affected air carrier (local and headquarters) PGA coordinator(s) Law enforcement ARC Reunification coordinator(s) Public health officials Hospital representative(s) Airport EOC staff Local/state emergency management representatives FBOs and/or ground handlers Airport public information officer (PIO) Local/state/federal PIO Vendors and concessionaires Local animal control Other air carriers and airport tenants Coroner/medical examiner Designated FAC hotel Federal agency representatives from:  NTSB  FBI  TSA  CBP Media representatives Military, if responding or if colocated with airport facilities Clergy Table 3. Examples of communication stakeholders.

48 establishing a coordinated Local Family Assistance Program for Airports • Electronic notification systems; • Copy machines/runners; • In-person communication (e.g., press conferences); • File sharing services; and • Incident management software. Communication for Affected Individuals Families, friends, passengers, and crew will also need communications tools in order to com- municate with loved ones. The family assistance program should address arrangements for cell phones and chargers, free Internet service, and access to computers or tablets (with chargers) in the FRC, PGA, CRA, and reunification location. Identifying Communication Types In some cases, the type of message dictates how the message should be delivered. It can be helpful to think in terms of data, detail, and family assistance content. Data-driven communication focuses on numbers and information needed for planning, ref- erence, or analytics (e.g., the total number of passengers and crew, the location of the FRC, and the scheduled arrival time of the air carrier’s family assistance team). This is often one-way com- munication that needs to be delivered to response leaders and might be well suited to text mes- sages, emails, or phone calls. However, ensure that official communications are documented, appropriate, and secure when necessary, regardless of the delivery method. Other information is detail oriented (e.g., press releases, status updates, and instructions). Detail-oriented communication may contain data but is also descriptive and contains specifics that go beyond spreadsheet information. This type of communication is not well suited to text messages; it is better conveyed through a longer written format or through two-way communi- cation (e.g., phone calls or press conferences). The third type of communication is family assistance communication, which pairs informa- tion with compassionate and respectful delivery (e.g., briefing family members and uninjured passengers). This communication is best delivered in person whenever possible. Family Assistance Communications A comprehensive family assistance program requires a coordinated communications plan. Central to this effort are open lines of communication between the following: • First responders, • Airport EOC, • PGA, • FRC, • Hospitals, • The ARC, and • The affected air carrier. The affected air carrier’s ground handler, alliance partner, codeshare partner, or contracted service provider may also be included. Information sharing between these stakeholders and locations is critical to ensure that the plan is operational; that the needs of families, friends, and survivors are being addressed; and that responders are gathering the details necessary to ensure that family members and friends can be reunited and are receiving timely information about their loved ones and the response process.

information Management and communications 49 Open communication between these locations can be managed through the EOC, via regu- larly scheduled conference calls (e.g., at 30-minute intervals in the initial 4 to 6 hours), or both. For example, the plan may call for a conference call every half hour. Responders in each location would be expected to participate in the call. Notes would be taken during the call and distributed at a predetermined time to a predetermined list. For issues and updates between conference calls, responders might use an open conference bridge to relay information to a person monitoring the line. This eventually will be switched to scheduled conference calls at specific times. Scheduling Communications With all types of response communication, it is essential to stay on schedule. If a timeline is stated, it should be kept. Ensure that family briefings, conference calls, distribution of press releases, and media interviews all keep to their stated timelines. A late announcement will erode trust and potentially create a disgruntled family member, survivor, or reporter. When creating the plan, establish a realistic time frame for all communication. All responders, survivors, and family members should know when to expect the next communication. Preplanning for Family Assistance Communications Much information can be prepared prior to any aviation disaster that might occur. Air- ports should determine what method best fits their needs. It may be helpful for signage to be preprinted. Initial press releases can be in draft form. Parking information can be printed and stored to be ready for release if needed. All of these items can be coordinated among stakeholders. A family assistance situation report can also be developed to track informa- tion and facilitate EOC briefings or conference calls. (An example of a situation report is included in the EOC airport family assistance checklists discussed in Appendix 3 and pro- vided online.) Examples of family assistance communication tools that can be prepared prior to the occur- rence of any aviation disaster are: • Formatted initial press releases; • Preprinted brochures for survivors, families, friends, and the media explaining various parts of the family assistance program, such as the purpose of the FRC and PGA (examples discussed in Appendix 3); • Predefined conference call agendas; • Prepared email address lists; • Contacts for translation services; • Preplanning for how to obtain phones, Internet access, and computers for use by survivors and friends and family; • Identifying or retaining a conference call line and participant codes; • Preprinted information-gathering forms for the various response sites (PGA, FRC) (examples discussed in Appendix 3 and provided online); and • Status board to show overall condition of the family assistance response. Once the planner has documented the stakeholders, mode of communication, type of com- munication, and how frequently the communication should occur, the communications plan should detail what to do with all this information. The plan should have steps for securing documents and analyzing the information that has been gathered. It should also detail how to disseminate the gathered information to those that need it. For example, the NTSB and local and state officials will want to know information about the various response sites, including how many people are there and what agencies are involved.

50 establishing a coordinated Local Family Assistance Program for Airports The EOC, FRC, PGA, and hospital representatives will need to gather a significant amount of information regarding the response at their locations. It is recommended that a scribe be appointed in each of these areas to assist in record keeping and information management. If the aviation disaster is a legislated event and the affected air carrier has representatives at the airport, the air carrier may take the lead on family assistance communication and tracking. This should be determined during the planning phase so that expectations are clearly defined and documented in the family assistance program. If the aviation disaster is non-legislated or the air carrier has no representatives at the airport, communication may need to be handled by the airport. In this case, it is recommended that the airport gather and track the following information on a regular basis (usually once per hour): • Names, contact information, and number of people from the various responding organiza- tions in each area (this can be accomplished through establishing a check-in process); • Number of affected people in each area (PGA, FRC, transported to hospitals); • Significant decisions made in each of the areas; • Issues that need to be resolved; • Any decisions that are waiting for approval from leadership; • Critical information concerning family members that needs to be brought to the attention of leadership (injuries, security threats); • Urgent needs or wants of family member or survivors (e.g., translators); • Schedules for FRC and PGA briefings (to be conducted before media briefings); • Schedules for media briefings; and • Location of the flight crew members and their condition, if known. Public and Media Relations Considerations Signage Flight Information Display Systems Signage at the airport needs to reflect that the status of the affected flight is not “business as usual.” Many airport and air carriers change the flight information display system (FIDS) flight status to “see agent.” FIDS updates at many airports are handled directly by the air carriers. If the air carrier does not have a representative or if the FIDS is controlled by the airport, the airport will need to update the FIDS screens. For flights with a large number of passengers who are non- English speaking, consider displaying the FIDS message in more than one language. Also, ensure that any codeshare flight numbers are included on the signage. Consider both departures and arrivals locations; some airports have separate display systems in the baggage area. Ticket Counter Signage Research conducted for this guidebook showed that airports prefer family members to be personally directed or escorted to the FRC; some airports also provide a map of the FRC loca- tion. Posting a sign with the information (for example, “Family Reception Center Is Located Conference Room B”) seems to advertise the location and may attract the media to the room. Personally escorting family members is the best practice and is the method preferred by most airports and airlines surveyed. If the number of family members overwhelms the airport’s and air carrier’s ability to provide personal escorts, then signage may be the only alternative, and it could be needed with little notice. Planners should document the need for flipcharts or a white- board to use in this instance; these may need to be placed both at ticket counter and baggage claim areas. The language for these signs (for example, “Airport Friends and Relative Center →”) should also be documented in the plan.

information Management and communications 51 Accurate Information In a legislated accident, information should be cleared through the appropriate channels prior to being released. Mostly likely this means information will need to be cleared by the affected air carrier or the NTSB. For non-legislated aviation disasters and all other situations, information concerning the aviation disaster or response should be vetted through the appropriate channels prior to being released to the media, survivors, families, or others. Families, friends, and survi- vors should always, to the extent possible, be updated prior to the media and public. Media Preparing Information for the Media Airports may set up a JIC to address public and media communications. The JIC is a loca- tion where personnel from the airport, the air carrier (if available), government agencies, the ARC, and others manage crisis communications and public affairs information. It is the hub for preparing information that will be distributed to the media and the general public following an aircraft accident. The advantages of using a JIC are that the material is produced as a col- laboration between all members and that the message is consistent when released to the public. However, it is important to know that the JIC will not distribute any information unless it is approved by incident command, unified command, or an appropriate designee. While a large JIC will be focused on the accident, some airports have found it beneficial to set up a small JIC that collaborates on information about the response for survivors and families. Press Briefing Room Respect the privacy of the affected family members and survivors when choosing a loca- tion for the press briefing room. The press briefing room should not be located near any of the family or survivor gathering areas, including any of the ground transportation bays or loading areas. Referral Phone Number for the Media Following an aircraft accident, the airport can expect to be flooded with calls from the local, national, and international media. To prepare for this, a family assistance program should include directions for publishing a media inquiry phone number. This number may belong to the airport, the air carrier, or an outside agency contracted to handle public relations. If the avia- tion disaster is legislated, it is important to include the air carrier’s toll-free number for families and friends to call when inquiring about their loved ones. Security and the Media Ensuring the safety and security of survivors and families is a basic function of any family assistance program. The family assistance program should include methods for protection of family members from unwanted media attention. If family members wish to speak to the media, they may do so, but the interview should be held far away from any family or survivor gather- ing points. Reporters may attempt to gain access into the FRC or PGA. Security personnel and responders should be vigilant to ensure that any traditional or social media reporters in a fam- ily or survivor gathering space are escorted out. Several airports reported that the media have used disguises to gain access to the FRC, in multiple instances even posing as clergy. In those examples, the local clergy in the FRC were able to help identify the imposters. Families should also be asked to report anyone who is acting suspiciously or who approaches them under false pretenses. One airport representative stated that following an aviation disaster, reporters were interviewing survivors as they were on stretchers waiting to go to the hospital. Post security staff

52 establishing a coordinated Local Family Assistance Program for Airports at all survivor and family gathering areas as well as the ticket counter and baggage claim areas to keep the affected individuals secure from the press. There has been at least one aviation disaster in which a member of the media was also the friend of an affected passenger. A reporter who comes to the FRC because a loved one was involved in the event should be treated like any other friend or family member. However, if a member of the media assumes the role of reporter in the room, he or she should be asked to discontinue that activity out of respect for others’ privacy. If the reporter is unwilling to do so, it is appropriate to have the reporter leave the room. Families, friends, or survivors with access to social media may want to post information, photos, or videos from the PGA or FRC. They should be respectfully instructed not to do so, out of respect for the privacy of others in the room. This information can be conveyed in briefings, through signage, and in any informational brochures that may be distributed. (Examples are discussed in Appendix 3.) Media Relations Guidance for Airport Employees Airport staff will almost certainly be asked about the accident, both at work and when off duty. Providing them with guidance can help ensure that the airport’s message is consistent and appropriate. Media relations professionals stress that “no comment” is not an appropriate response and suggests that the individual may be hiding information. Instead, airport leadership should develop a common set of talking points for employees. Some of these can be pre- written and included in family assistance materials and checklists. These prepared talking points can be updated and distributed quickly following an aviation disaster. The talking points should be distributed to all airport staff who have customer or public contact, including anyone answering the phone on the airport’s behalf. Many air carriers and some airports have preprinted media information cards that are distributed to employees. These cards contain a list of media relations contacts, phone numbers, and web addresses for the media to use in their reporting. The cards also contain the location of the media briefing area. Some airports print media information on the back of a badge; this might include a prepared statement that staff can use, such as “I am not an authorized spokesperson, and it would be inappropriate for me to comment. Please contact our public information officer at ___-___-____.” All staff should be informed of the location and times for press briefings. Employees can be useful in directing the media to the appropriate press briefing location. It is valuable to develop an airport employee social media policy in advance of the possible occurrence of an aviation disaster. The social media policy instructs employees not to post infor- mation, photos, or descriptions of any accident-related or family assistance activities on any social media channel. Staff should have annual training on the policy, and a copy of it should be distributed at the time of an aviation disaster. Communicating with the Press and the Public Website The airport’s website and social media channels can be used to distribute information about the airport’s aviation disaster response, including the family assistance response. Some airports also use a special website for aviation disaster information; searchers may be directed to the site via a link on the airport’s commercial website, or the airport may create a curtain or landing page to temporarily replace the normal home page. The website can include basic statements about

information Management and communications 53 airport assistance to the affected families and passengers; it can also include the toll-free family inquiry phone number provided by the air carrier. Other important phone numbers and links to web addresses may also be included. Social Media During the research for this project, many airports reported that they have incorporated social media messaging into their emergency response plans, with several giving specific attention to family assistance considerations. Airports may use dedicated online social media accounts for emergencies or may use specially designated hashtags. Social media is a mode of two-way communication; therefore, the family assistance program should also address the need to monitor and respond to social media inquiries. An important consideration is the monitoring of social media channels for statements, questions, and con- cerns posted by survivors, family members, and friends. Social media can be a valuable source of information and an important avenue to communicate with those affected. Press Releases Press releases can be used to spread detailed messages to the media. While the majority of the press releases will be prepared in the JIC, the air carrier should be consulted prior to releasing any press release that specifically mentions its response activities. Many airports plan to send their first press release within 30 to 60 minutes of the disaster’s occurrence. Prior to issuing any press release, families and survivors should be briefed on its content. Press Conferences Press conferences are generally held in conjunction with the responding agencies. The affected air carrier or its representative, if available, should be included in all press conferences. Messaging Regarding Family Assistance Following are examples of the type of messages that the airport can deliver regarding family assistance: • That the airport is supporting the affected air carrier in establishing and operating an FRC and PGA. (Note: This would apply to aviation disasters with air carrier involvement.) • That the airport has established an FRC/PGA. (Note: This would apply if there were limited or no air carrier involvement.) • To explain the purpose of the FRC/PGA: It is a short-term, private facility where affected individuals can receive information and assistance until an FAC is established. • That the airport is supporting/coordinating efforts to reunify uninjured passengers with fam- ily members and friends. • That the airport is working closely with the air carrier, local hospitals, the ARC, and pub- lic health organizations to obtain information about the location and condition of injured passengers. • That the air carrier has established a toll-free number for families (if available). If it is a non- legislated aviation disaster or there is no air carrier involvement, consider providing an alter- native number to direct family inquiries. • To request that reporters respect the privacy of those affected. • That the airport, air carrier, and ARC response teams are assisting passengers and families. • To advise where and how often the airport is posting updates (on a website or social media channels).

54 establishing a coordinated Local Family Assistance Program for Airports • To provide information on the status of NTSB involvement (e.g., the airport has been noti- fied by the NTSB that it has a team en route; the NTSB is the agency responsible for investi- gation of the accident). • To list the agencies or nongovernmental agencies that are involved in family assistance (e.g., the ARC, local clergy). • To describe any airport operational impacts (e.g., short-term airport parking is closed, but passengers may park in the long-term lot and the airport is providing shuttles; the airport is temporarily closed). • To provide details about any designated memorial location where the public can gather, write condolences, or leave flowers or mementos. • To direct those wishing to volunteer their assistance to contact the ARC. Section 5: Information Management and Communications Summary and Checklist This checklist may be used to develop a communications plan for the airport family assistance program and when communicating with those affected by an aviation disaster. The information should be documented in the family assistance program. M Identify and document stakeholders who will need to receive and send communications during a response. M Identify and document the tools used to communicate with the various stakeholders. M Identify what types of communication will be sent and received during an event. M Determine what type of communication will be received from each stakeholder or location (data, detail, or family assistance) and ensure that the correct delivery method is being used to deliver the message. M Preplan some communications; for example, develop templates for press releases, prepare email lists, or predefine conference call agendas. M Plan steps for changing the messaging on the flight information display screens and other signage in the airport (keeping in mind the use of multiple languages). M Place employees near ticket counters or entrances of the airport to escort or direct family members to the FRC. M Develop a process to validate all response- or family-related information in the EOC prior to distributing it. M Set up a JIC or room for agencies to gather and coordinate on informational releases to ensure consistent, accurate messaging. M Determine a location for the press briefing room (should not be near any survivor or family gathering area). M Set up a phone line for the media to call for information. M Publish (on website or through other channels) the media phone number and, when known, the toll-free air carrier family information phone number. M Set up security to ensure that reporters and other members of the media do not have access to the family assistance response locations. Include directions to ask clergy, volunteers, and family members to be aware of reporters who may get into the FRC. M Provide directions to tell family members not to post pictures or information from the FRC on social media. M Document a role in the response for a social media monitor. M Provide a representative for press conferences; ensure that the airport representative has information about the family assistance response and is prepared to speak about it. M Document a plan for receiving and documenting phone calls requesting information. M Prepare language to use for voice mails and other incoming lines to the airport.

information Management and communications 55 M Prepare language explaining that the air carrier will make initial contact with family members in response to legislated aviation disasters. M Address which organization will notify waiting families and friends of loved ones’ involve- ment in a non-legislated aviation disaster. M Include instructions for airport representatives designated to speak to families and survivors. Detailed information is in Section 6 and Appendix 3. Key points: – Remain factual, timely, and relevant; – Set and keep timeline for briefings; and – Brief the passengers, family, and friends prior to briefing the media.