Incorporating ADA and Functional Needs in Emergency Exercises (2018)

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Incorporating ADA and Functional Needs in Emergency Exercises A Synthesis of Airport Practice James F. Smith Smith-WoolWine, inc. Panacea, FL Todd W. Haines critical riSk Group, llc Keller, TX 2018 Research sponsored by the Federal Aviation Administration Subscriber Categories Aviation 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 90

ACRP SYNTHESIS 90 Project 11-03, Topic S04-19 ISSN 1935-9187 ISBN 978-0-309-39043-9 Library of Congress Control Number 2018947108 © 2018 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. Cover photo credit: Lawrence Rolon 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 necessarily those of the Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; or the program sponsors. 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They are where the nation’s aviation system 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 operating 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 spon- sored by the Federal Aviation Administration (FAA). ACRP carries out applied research on problems that are shared by airport operating agen- cies 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 activi- ties in various airport subject areas, including design, construction, legal, maintenance, 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 participants 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 industry organizations such as the Airports Council International-North America (ACI-NA), the American Associa- tion of Airport Executives (AAAE), the National Association of State Aviation Officials (NASAO), Airlines for America (A4A), and the Airport Consultants 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 formally 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 organi- zations. Each of these participants has different interests and responsibili- ties, and each is an integral part of this cooperative research effort. Research problem statements for ACRP are solicited periodically 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 problem statements and selecting research agencies has been used by TRB in managing coop- erative research programs since 1962. As in other TRB activities, ACRP project panels serve voluntarily without compensation. Primary emphasis is placed on disseminating ACRP results to the intended users of the research: airport operating agencies, service pro- viders, 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.

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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 S CRP STAFF FOR ACRP SYNTHESIS 90 Christopher J. Hedges, Director, Cooperative Research Programs Lori L. Sundstrom, Deputy Director, Cooperative Research Programs Michael R. Salamone, Manager, Airport Cooperative Research Program Gail R. Staba, Senior Program Officer Demisha Williams, Senior Program Assistant Eileen P. Delaney, Director of Publications Natalie Barnes, Associate Director of Publications Kami Cabral, Editor ACRP PROJECT 11-03 PANEL Joshua D. Abramson, Easterwood Airport Management, College Station, TX (Chair) Debbie K. Alke, Montana DOT, Helena, MT (retired) Gloria G. Bender, TransSolutions, LLC, Fort Worth, TX David A. Byers, Quadrex Aviation, LLC, Melbourne, FL David N. Edwards, Jr., Greenville–Spartanburg Airport District, Greer, SC Brenda L. Enos, Burns & McDonnell, Kansas City, MO Linda Howard, Independent Aviation Consultant, Bastrop, TX Patrick W. Magnotta, FAA Liaison Matthew J. Griffin, Airports Consultants Council Liaison Liying Gu, Airports Council International–North America Liaison Adam Williams, Aircraft Owners & Pilots Association Liaison Christine Gerencher, TRB Liaison TOPIC S04-19 PANEL Cecilia Feeley, Rutgers University Center for Advanced Infrastructure and Transportation, Piscataway, NJ Stephanie M. Murphy, Metropolitan Washington Airports Authority, Washington, DC Kristin Rollwagen, Metropolitan Airports Commission (MSP), St. Paul, MN Lawrence J. Rolon, Los Angeles World Airports, Los Angeles, CA Meaghan Smalley, Jacksonville Aviation Authority (JAA), Jacksonville, FL Laurel Van Horn, Open Doors Organization, Chicago, IL Lillian Miller, FAA Liaison Christine Gerencher, TRB Liaison

FOREWORD Airport administrators, engineers, and researchers often face problems for which information already exists, either in documented form or as undocumented experience and practice. This infor- mation 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 Cooperative 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 knowl- edge 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. PREFACE By Gail R. Staba Staff Officer Transportation Research Board This report focuses on how airports include persons with disabilities and others with access or func- tional needs (DAFN) into emergency exercises. In the United States, the main laws and regula- tions that bear on this synthesis are the Americans with Disabilities Act of 1990, the Post-Katrina Emergency Management Reform Act of 2007, the Americans with Disabilities Act Amendments Act of 2008, the Air Carrier Access Act of 1986, and FAA Advisory Circular 150/5200-31C Airport Emergency Plan. Practitioners also include the FEMA definition which adds temporary access and functional needs. Because not all functional needs are visually or readily apparent, airports find that including these community members with DAFN in emergency exercises improves the safety of passengers, airport visitors, and employees at airports. The report describes effective practices and provides additional resources and tools in appendices. The appendices can be found on the TRB website (www.trb.org) by searching for “ACRP Synthesis 90.” Information used in this synthesis was acquired through literature review and telephone interviews with representatives of 23 airports, 3 airlines, and 4 aviation-oriented organizations. Dr. James F. Smith, Smith-Woolwine, Inc., and Todd W. Haines, Critical Risk Group, LLC, synthesized the information and wrote the report. The members of the topic panel are acknowledged on page iv. This synthesis is an immediately useful document that records the practices that were acceptable within the limitations of the knowledge available at the time of its preparation. As progress in research and practice continues, new knowledge will be added to that now at hand.

AUTHOR ACKNOWLEDGMENTS An interview-based effort such as this synthesis requires considerable time and cooperation from the interviewees at airports and other organizations. The research team is grateful for the generous assistance given by the following individuals: Airports Council International Europe Federico Bonaudi Alaska Airlines Jana Osborne Allegiant Travel Company Jennifer Barfenstein Asheville Regional Airport Kevan Smith, Rita Yanz Aspen-Pitkin County Airport John Kinney, Fil Meraz Ben Gurion International Airport Avi Bachar (ISRATEAM Ltd) Boise Airport Sarah Demory, Jordan Bauer, Amy Snyder Brunswick-Golden Isles Airport Michael Menon, Josh Cothren Cork Airport Eibhlin McGrath Denver International Airport Jennifer Harris, Dave Cunningham, Nick Meacher, Jason Taussig Fort Lauderdale/Hollywood International Mike Nonnemacher, Jason Alvero, Linda Merrill Airport General Mitchell International Airport Kyle Mirehouse ISRATEAM Ltd Avi Bachar Jacksonville International Airport Bryan Long, Debbie Long Los Angeles International Airport Cassandra Heredia Manchester International Airport Ashley Horsfall, Samantha Berry (OCS Ltd) Minneapolis-St. Paul International Airport Shelly Lopez, Phil Burke Phoenix Sky Harbor International Airport Chris Rausch, Mary Beth Thompson, Mike O’Shaughnessy Portland International Airport Kori Nobel Range Regional Airport Shaun Germolus Reduced Mobility Rights Ltd Roberto Castiglioni Reno-Tahoe International Airport Tom Nelson, Mike Scott, Ted Ohm San Francisco International Airport Toshia Marshall, Davis Coe, Gloria Louie, Chris Birch, Reginald Saunders, Jeff Airth, Jessica Feil, Larry Merritt San Jose Mineta International Airport Barry Brown Seattle Tacoma International Airport Kristine Ball, Keith Gillin Southwest Florida International Airport Lisa LeBlanc-Hutchings, Julio Rodriguez Tyson McGhee Airport Trevis Gardner Vancouver International Airport Cal Currie, Cathy Nyfors, Marcia Strang Virgin Australia Airlines Kirk Demers

1 Summary 2 Chapter 1 Introduction 2 Introduction 2 Definition of the DAFN Population and How Airports Define Their Community for Emergency Exercises 3 Legal Environment 4 Regulatory Setting for Emergency Planning and Exercises 4 DAFN and Emergency Exercises 5 How Airports Find Community Resources to Assist in Developing an Inclusive Program 6 American Association of Airport Executives Emergency Management Conference 6 Summary 8 Chapter 2 Method 8 Scope of Synthesis 9 Method 10 Data Analysis and Presentation 14 Chapter 3 Findings 14 Emergency Planning and Exercises Data 22 Findings 23 Chapter 4 Conclusions and Further Research 23 Conclusions 24 Further Research 26 References, Bibliography, and Other Resources 28 Acronyms and Abbreviations 29 Glossary 32 Appendix A Script for Interviews 33 Appendix B Participants 34 Appendix C DAFN-Inclusive Exercise Scenario from MSP 35 Appendix D Sample DAFN-Inclusive Training Materials from LAX C O N T E N T S

36 Appendix E ADA-Inclusive Exercise Worksheet from JAX 37 Appendix F List of Resource Groups to Involve in DAFN-Inclusive Emergency Planning and Exercises 38 Appendix G Checklist for Integrating the DAFN Community in Emergency Exercises 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.