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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 REPORT 73 TRANSPORTAT ION RESEARCH BOARD WASHINGTON, D.C. 2012 www.TRB.org Research sponsored by the Federal Aviation Administration Subscriber Categories Aviation Airport-to-Airport Mutual Aid Programs IEM, Inc. Research Triangle Park, NC I n A s s o c I A t I o n W I t h SMIth-WoolWInE ASSocIAtES, Inc. Floyd, VA trAnSSolutIonS, llc Fort Worth, TX
AIRPORT COOPERATIVE RESEARCH PROGRAM Airports are vital national resources. They serve a key role in trans portation of people and goods and in regional, national, and inter national commerce. They are where the nationâs aviation system connects with other modes of transportation and where federal respon sibility 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 Coopera tive Research Program (ACRP) serves as one of the principal means by which the airport industry can develop innovative nearÂterm 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). The ACRP carries out applied research on problems that are shared by airport operating agencies and are not being adequately addressed by existing federal research programs. It is modeled after the successful National Coopera tive Highway Research Program and Transit Cooperative Research Pro gram. The ACRP undertakes research and other technical activities in a variety of airport subject areas, including design, construction, mainte nance, operations, safety, security, policy, planning, human resources, and administration. The ACRP provides a forum where airport opera tors can cooperatively address common operational problems. The ACRP was authorized in December 2003 as part of the Vision 100ÂCentury 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 InternationalÂNorth America (ACIÂNA), 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) the 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 Academies formally initiating the program. The 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 orga nizations. Each of these participants has different interests and respon sibilities, and each is an integral part of this cooperative research effort. Research problem statements for the ACRP are solicited periodically but may be submitted to the TRB by anyone at any time. It is the responsibility of the AOC to formulate the research program by iden tifying the highest priority projects and defining funding levels and expected products. Once selected, each ACRP project is assigned to an expert panel, appointed by the TRB. Panels include experienced practitioners and research specialists; heavy emphasis is placed on including airport pro fessionals, the intended users of the research products. The panels pre pare 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 cooper ative 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 endÂusers of the research: airport operating agencies, service providers, and suppliers. The ACRP produces a series of research reports for use by airport operators, local agencies, the FAA, and other interested parties, and industry associations may arrange for work shops, training aids, field visits, and other activities to ensure that results are implemented by airportÂindustry practitioners. ACRP REPORT 73 Project 04Â10 ISSN 1935Â9802 ISBN 978Â0Â309Â25825Â8 Library of Congress Control Number 2012940452 © 2012 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 notÂforÂprofit purposes. Permission is given with the understanding that none of the material will be used to imply TRB or FAA endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and notÂforÂprofit 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 project that is the subject of this report was a part of the Airport Cooperative Research Program, conducted by the Transportation Research Board with the approval of the Governing Board of the National Research Council. The members of the technical panel selected to monitor this project and to review this report were chosen for their special competencies and with regard for appropriate balance. 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 Governing Board of the National Research Council. 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 Research Council, or the program sponsors. The Transportation Research Board of the National Academies, the National Research Council, and the sponsors of the Airport Cooperative Research Program do not endorse products or manufacturers. Trade or manufacturersâ 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 at http://www.nationalÂacademies.org/trb/bookstore Printed in the United States of America
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences. The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering. The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, on its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine. The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academyâs purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council. The Transportation Research Board is one of six major divisions of the National Research Council. The mission of the Transporta- tion Research Board is to provide leadership in transportation innovation and progress through research and information exchange, conducted within a setting that is objective, interdisciplinary, and multimodal. The Boardâs varied activities 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 individu- als interested in the development of transportation. www.TRB.org www.national-academies.org
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 AUTHOR ACKNOWLEDGMENTS The research reported herein was performed under ACRP Project 04Â10, âAirportÂtoÂAirport Mutual Aid.â IEM was the contractor for this study and TransSolutions, LLC, was a subcontractor. Donald Griffith of IEM was the Project Director. James F. Smith of SmithÂWoolwine Associates, Inc., served as the Principal Investigator. Other authors of this report include Thomas J. Powers of IEM; Gloria G. Bender, Managing Principal of TransSolutions; and Lisa Spencer of TransSolutions. The Research Team would like to express its gratitude to the members of the project panel for their support and insightful comments throughout this research project. The Research Team would also like to thank the many airport directors, state airport operating association representatives, national and global aviation association representatives, state emergency management office directors, state aviation office directors, nonÂaviation mutual aid organizationsâ staff, and federal agency representatives who took the time to share their insights, experience, and opinions with the Research Team and to respond to follow up queries. Additionally, special thanks go to Amanda Welch of Southeast Airports Disaster Operations Group; John Sawyer of Western Airports Disaster Operations Group; Hilary Fletcher of Jviation; Lorie Hinton of Centennial Airport; José Abreu, Lauren Stover, and Manny Rodriguez of Miami International Airport; Teo Babun of AmericasRelief Team; Paul Bartko of the Federal Aviation Administration; Maj. J.J. Grindrod of Florida Air National Guard; Phil Olivieri and Cliff Coll of American Airlines; and Kathryn A. Myers of the University of New Hampshire. The Research Team thanks the American Water Works Association, the University of New Hampshire Technology Transfer Program, and the Western Airports Disaster Operations Group for permission to reproduce materials in the appendices to this Guidebook. CRP STAFF FOR ACRP REPORT 73 Christopher W. Jenks, Director, Cooperative Research Programs Crawford F. Jencks, Deputy Director, Cooperative Research Programs Michael R. Salamone, ACRP Manager Marci A. Greenberger, Senior Program Officer Joseph Brown-Snell, Program Associate Eileen P. Delaney, Director of Publications Ellen M. Chafee, Editor ACRP PROJECT 04-10 PANEL Field of Safety Mark A. Crosby, Portland International Airport (PDX) Port of Portland, Portland, OR (Chair) Lori L. Beckman, Aviation Security Consulting, Inc., Castle Rock, CO Robert B. âRustyâ Chapman, Delta Airport Consultants, Inc., McDonough, GA Dave Fleet, Dave Fleet Consulting, Indianapolis, IN Hilary Fletcher, Jviation Inc., Denver, CO Greg B. Kelly, Savannah Airport Commission, Savannah, GA Marc Tonnacliff, FAA Liaison Lydia T. Kellogg, Airports Council International - North America Liaison Christine Gerencher, TRB Liaison
ACRP Report 73: Airport-to-Airport Mutual Aid Programs is a guidebook that will assist individuals at airports who would like to enter into formal or informal mutual aid agree ments with other airports in the event of a communityÂwide disaster (e.g., hurricane, earth quakes) that requires support and assistance beyond their own capabilities. The guidebook describes the benefits that an airportÂtoÂairport mutual aid program (MAP) can provide. It outlines the different considerations when setting up an airportÂtoÂairport MAP and has many examples, including examples from other industries. Airports are already familiar with entering into mutual aid agreements with their com munity mutual aid partners, but in the event of a communityÂwide disaster even first responders can be overwhelmed. An airport is an important asset in a community, one that can be a catalyst for community recovery. During a communityÂwide disaster, other airports in the region can help by providing exactly the right type of assets and human resources to assist in meeting operating requirements. Two organizations have been created to provide such resources in the event of such a disaster: the Southeastern Airports Disaster Operations Group (SEADOG) and the Western Airports Disaster Operations Group (WESTDOG). These organizations came about as a way for airports to assist other airports in their region. Innovative Emergency Management (IEM), as a part of ACRP Project 04Â10 âAirportÂtoÂAirport Mutual Aid Programs,â looked at WESTDOG, SEADOG, and other industries to identify best practices as they relate to organizational structure and the logistical, financial, and legal considerations that apply to an airportÂtoÂairport MAP. The research completed by the IEM team suggests that the region and size of an airport toÂairport MAP is only a function of those who participate; whether itâs only two airports, comprises all of the intrastate airports, or is a geographic area that comprises many states, the fundamental considerations remain the same. Individuals who are seeking to establish an airportÂtoÂairport MAP now have a resource to help guide them through the process. F O R E W O R D By Marci A. Greenberger Staff Officer Transportation Research Board
1 Summary 4 Introduction 5 Goals of the Project 6 Study Methods 8 Chapter 1 Airport-to-Airport Mutual AidâNeeds and Benefits 8 Airports Know Airports 9 Needs for AirportÂtoÂAirport Mutual Aid 11 Benefits of AirportÂtoÂAirport Mutual Aid 14 The Match of Needs and Benefits 15 Chapter 2 Existing Organizations 15 Types of Existing AirportÂtoÂAirport Mutual Aid Programs 18 Characteristics of Existing AirportÂtoÂAirport Mutual Aid Programs 18 Functions of Existing AirportÂtoÂAirport Mutual Aid Programs 20 Chapter 3 Non-Aviation Mutual Aid Programs 20 Introduction 20 The Intrastate Mutual Aid Program Committee 21 Interstate Mutual Aid Program Offices 22 Development of the Mutual Aid Program Concept 22 The First Step 22 Overcoming Obstacles 23 Standard Operating Procedures 23 Execution of the Mutual Aid Program 25 Sustaining a Mutual Aid Program 25 Conclusion 26 Chapter 4 Mutual Aid Expectations 26 Importance of Expectations for Program Design 26 Key Expectations 29 Summary of Expected Functions 31 Chapter 5 Relationships among Airports 31 Awareness among Airports 31 Importance of Senior Leadership at Airports 31 Trust and Reliability 32 Recognition by Key Agencies 32 Matching Types of Need and Aid 32 Organization C O N T E N T S
37 Chapter 6 Establishing a Program 37 Creation of New Mutual Aid Programs 38 Who Can Start the Process? 39 Scoping Process 39 Organizational Development 40 Local Government Involvement 40 Other Stakeholders 42 Liability and Reimbursement 43 Publicizing Existence and Services of Mutual Aid Programs 44 Funding Considerations 46 Chapter 7 Procedures and Considerations for an Airport Requiring Aid 46 Incident Preparedness Activities for All Airports 47 Legalities 48 PreÂDisaster Activities 48 PostÂDisaster Activities 50 Chapter 8 Procedures and Considerations for Airports Wishing to Volunteer Aid 50 Incident Preparedness Activities for All Airports 51 Legalities 52 PreÂDisaster Activities 54 PostÂDisaster Activities 56 Chapter 9 Procedures and Considerations for Coordinators of Aid 56 Fundamental Concept 56 Functions 58 Coordinators 59 Communications 61 Useful Model for Detailed Operations 62 Chapter 10 Choices for Airports Regarding Mutual Aid A-1 Appendix A Airport Personnel Contacts B-1 Appendix B WESTDOG Manual C-1 Appendix C New Hampshire Mutual Aid Enabling Law D-1 Appendix D New Hampshire Public Works MAP Requesterâs Checklist E-1 Appendix E New Hampshire Public Works MAP Requesterâs Letter F-1 Appendix F Sample State Mutual Aid Compacts G-1 Appendix G Utilities Helping UtilitiesâManual H-1 Appendix H Checklist for Airports Requesting Aid (per Time Phase)
I-1 Appendix I Checklist for Airports Volunteering Aid (per Time Phase) J-1 Appendix J Security Access Procedures K-1 Appendix K Model Delegation Letter L-1 Appendix L Assistance Request Form M-1 Appendix M Form to Volunteer Assistance N-1 Appendix N Airport-to-Airport Mutual Aid Program Situation Report O-1 Appendix O Glossary of Acronyms Note: Many of the photographs, figures, and tables in this report 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.
