Managing a Flight Diversion with an Emergency Response at Small, Non-Hub, or General Aviation Airports (2023)

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6 Most ights arrive at their original destination airports; however, some ights can be diverted— most oen to large or medium hub airports. However, small, non-hub, and general aviation airports sometimes receive diverted ights as well. is chapter looks at the dierent types of ight diversions and how they may impact smaller airports. Flight Diversions Flight diversions have not been the main subject matter topic of Airport Cooperative Research Program (ACRP) research until now. ACRP reports and syntheses reference diverted aircra as contributors to irregular operations (Cogliandro, B., et al. 2016) or emergencies (Grith, D., et al. 2014) and are considerations for airport planning eorts (Nash, J. M., et al. 2012), but diverted ights have not been a primary focus of research. A diverted ight is “a ight which is operated from the scheduled origin point to a point other than the scheduled destination point in the carrier’s published schedule” (14 CFR § 234.2). In other words, a diverted flight is an unexpected or unplanned aircraft that arrives at an unintended airport. Diversions can be divided into three general types: 1. Technical stop (gas and go) diversion A stop commonly used to refuel the aircra or to make unexpected essential repairs. No passengers are unloaded or loaded during a technical stop. 2. Incident-level diversion An occurrence other than an accident or emergency related to the operation of a diverted aircra, which aects or could aect the safety of operations, and which results in landing at a non-destination airport. Examples of incident-level diversions include diverted aircra arriving with minor mechanical issues or structural damage or aircra arriving with disruptive passengers or passengers with medical issues. Incident-level diversions also include multiple aircra diverting at the same time to one airport that has limited gate and/or parking avail- ability or an international ight diverting to a non-station airport with no Customs and Border Patrol (CBP) presence. 3. Emergency-level diversion A situation in which the safety of the aircra or of the persons on board is endangered for any reason and the aircra is forced to land at a non-destination airport. Examples include engine failure, smoke in the cockpit, or medical emergencies like cardiac arrest. While the focus of this synthesis is primarily on incident- and emergency-level diversions, routine technical stops are also discussed throughout. C H A P T E R 1 Introduction

Introduction 7   All these extenuating circumstances surrounding diversions are particularly important when considering the available staffing and resources for managing them at small hub, non-hub, and general aviation airports—both internally at the airport and externally with mutual aid and network partners—which is the focus of this synthesis. How Flight Diversions Impact Smaller Airports This synthesis provides insight into how smaller airports manage different types of diversions— primarily incident- and emergency-level diversions with a smaller focus on routine diversions—to demonstrate when they can manage diversions with their capabilities under their authority and jurisdiction and when they need assistance from external sources such as the following. Mutual Aid These are first-response entities like ARFF, fire department, law enforcement, and Emer- gency Medical Services (EMS) when they are contracted with an airport through interlocal or joint-use agreements or are managed through another department under municipal control. Network Partners These are on-airport partners (e.g., airlines, FBOs, ground handlers, concessionaires), com- munity resources (e.g., stores, hotels, busing companies), federal agencies (e.g., the FAA, CBP, and the Transportation Security Administration [TSA], and military organizations (e.g., the Air National Guard [ANG] or the United States Air Force [USAF]) when they are contracted with an airport either through verbal or written agreements. More information about these sources can be found in Chapter 2: Defining the Stakeholders. The term airport capabilities refers to the following factors: Airport Size Smaller airports are the subject of this synthesis and include small hub (SH), non-hub (NH), and general aviation (GA) airports. However, two other GA categories are included as defined by the FAA National Plan of Integrated Airport Systems (NPIAS), which are nonprimary com- mercial service (CS) and reliever (R), for additional clarity. Airport size generally indicates how many aircraft are managed daily and informs the type and amount of personnel, training, and resources these airports have on site to manage regular and irregular operations. Airport Governance Each of the five smaller airport designations studied in this synthesis (SH, NH, GA, CS, and R) have different governance and management structures, contractual service arrangements, and operating characteristics. These organizational differences determine whether first responders Aircraft diversions are simultaneously common and complex. They are common as they occur almost every single day across the United States and sometimes can be anticipated because of obvious circumstances like massive snowstorms. Yet, at the same time, each flight diversion is associated with a wide range of other complex factors like the timing of the occurrence, flight crew status, compounding, and escalating issues like medical or mechanical situations, as well as the capacity and capabilities of the airport receiving the diverted flight.

8 Managing a Flight Diversion with an Emergency Response at Small, Non-Hub, or General Aviation Airports like ARFF, fire department, law enforcement, and EMS are governed by the airport and can provide this capability, or they need outside assistance from mutual aid (e.g., city or county emergency management resources) to perform this critical role. More information about mutual aid can be found in the next section and in Chapter 2. Airport Infrastructure Infrastructure refers to the physical features of an airport that include runway type and length, instrument flight rules, terminal size, ramp space, number of common-use gates, and number of boarding bridges. As airport infrastructure is finite, its capacity can become a critical factor during diversions. For example, if an airport receives a surge, which is an influx of several diverted aircraft at one time, this can lead to more aircraft than there are gates or parking areas, and more passengers than can be managed effectively in a terminal. On-airport Personnel and Expertise The number of on-airport staff members employed by or contracted with an airport who are trained and qualified to manage equipment and communication technology varies among smaller airport sizes. With limited staff sizes, smaller airports often cross-train employees to perform operations and emergency functions and generally do more with less. Personnel availability can be an issue during diversions, especially if they occur after hours. Airport Resources Staff and others contracted by smaller airports need a variety of resources to manage diver- sions such as the following: • Supplies: Available fuel or deicing chemicals for aircraft and items like bottled water and cots for passenger care. • Equipment: Airstairs, tow bars, snowplows, and fire trucks are among the most commonly used equipment. • Technology: Weather and flight-tracking websites are used to maintain situational awareness while mass notification systems are used to communicate critical information. Airport and Partner Preparedness Factors associated with preparedness include planning, training, collaborating, and learning from experience. Smaller airports use stand-alone diversion plans, diversion checklists, stan- dard operating procedures (SOPs), irregular operations (IROPS) plans that include provi- sions for passenger care, and AEPs. However, some small airports do not reference any plans. And most only train for emergency situations as part of Part 139 compliance, not diversions specifically. The more airports create, share, and update diversion-related plans after diversion events as well as collaboratively train for aircraft diversions with mutual aid and network partners, the more prepared they are to handle the unexpected. Smaller airports that are part of a regional group or emergency working group (EWG) are often most prepared to manage diversions. Notification Factors associated with notification include tracking, timing, and airport accessibility. Notification tracking relates to how smaller airports use available technology or establish rela- tionships with network partners like larger hubs in their region to be aware of changing flight conditions. Notification timing impacts how well airports can prepare for a diversion’s arrival, whether during or after airport hours. It impacts whether an airport has enough personnel, infra- structure, and resources available and ready when notified of a diversion—whether internal to the airport or from mutual aid or network partners. Accessibility is the ability of decision makers, typically air traffic controllers and airlines, to have accurate 24/7 contact information to notify the correct personnel (e.g., a director or operations manager) at smaller airports through the correct means (e.g., email, radio frequency, or text number).

Introduction 9   Communication Communication within the airport and among mutual aid and network partners during a diversion event impacts how well the event is managed and mitigated. Communication success depends on whether the airport has predetermined communication channels, frequencies, and procedures (e.g., email, text, or chat feature) for use within the airport and with external partners, and whether the airport can shift to designated alternative (backup) systems if networks become overloaded to continue to coordinate efforts. In addition, communication depends on the use of commonly used and understood language to ensure clarity among all involved in mitigating the effects of a diverted aircraft. Hours of Operation Hours of operation can play a big role in determining whether an airport can manage a diversion with its own resources or needs assistance. This is also an important factor when considering common escalating factors that can turn an incident into an emergency or make an emergency even more challenging, such as the following: • Off-hours: When airports receive an aircraft and/or deplaned passengers after an airport’s normal business hours. This can pose issues for deplaning, processing (international flights), and rebooking passengers. It also can pose issues meeting basic passenger needs like com- munication, nourishment, and space to rest. • Extended delay: These mainly occur during long-term weather events when passengers and aircraft are grounded at an airport for longer periods than expected. This can pose issues for flight crews that might time out, for airport supplies that might diminish, and for people who might lose patience. Considering these factors, an issue with just one, like preparedness or notification, can impact the way a smaller airport can manage a flight diversion that arrives, whether routine or with moderate to severe issues. A greater number of factors that are negatively impacted increases the odds that a smaller airport needs to ask for outside assistance. Scope of Work This synthesis consists of published literature, an airport survey, airport interviews, and case examples of current practices from SH, NH, and GA airports that have managed diverted flights from the routine to the emergency-response level. The synthesis documents practices and lessons learned from these smaller airports as well. It also provides several practical sample diversion- related checklists from airports interviewed as well as from other ACRP guidance that can sup- port airport operators and emergency response personnel during emergency and non-emergency flight diversions. It also includes a sample tabletop training exercise and a sample memorandum of understanding (MOU). Synthesis Overview The synthesis describes the wide range of services that smaller airports may need to provide during diversion events and gives current guidance on how to plan for and augment staff and resources with local emergency, mutual aid, and network partners. The intended audience for this synthesis report includes airport operators and emergency response personnel at small hub, non-hub, and general aviation airports. In this synthesis, Chapter 2 defines the stakeholders involved at smaller airports—internal and external to the airport—that manage incident and emergency level responses to flight diversions.

10 Managing a Flight Diversion with an Emergency Response at Small, Non-Hub, or General Aviation Airports Chapter 3 provides the methodology for obtaining the data needed to complete this synthesis, which involved a literature review, a survey, interviews, and case examples. Chapter 4 digs deeper into an analysis of the literature review, focusing on how smaller airports manage flight diversions before, during, and after a diversion, including lessons learned and successful prac- tices. Chapter 5 describes and summarizes survey and interview results from smaller airports and how they plan for and manage diverted aircraft. This chapter also provides various per- spectives on flight diversion response, from the airport, pilot, FAA, FBO, technology provider, and regional network vantage points. Chapter 6 provides in-depth synopses from seven airports from each NPIAS designation (small hub, non-hub, and general aviation) on their experiences planning for, managing, and mitigating flight diversions associated with incident and emer- gency response in collaboration with their respective mutual aid networks. Chapter 7 looks at the benefits of collaborative planning associated with diverted flights, while Chapter 8 lists the challenges diversions present. A summary of findings is provided in Chapter 9, and the remaining sections provide a glossary, acronyms, and references. A series of appendices provide interview- and survey-related information and sample diversion checklists, including a Grab and Go diver- sion checklist (for airport supervisors).