AC 00-59 hazardous material spill can change the wind speed and direction thereby affecting the boundaries of dangerous areas. In addition, aircraft SHOULD NOT BE USED for removing "decontaminated" personnel from hazardous materials control areas because of possible "off-gassing" of contaminates. In the closed space of an aircraft, contaminates can have an adverse effect on flight crews and rescue personnel. Hazardous materials should be transported aboard aircraft only in accordance with 49 CFR Parts 171-18, the Hazardous Materials Regulations.
0. Search and Rescue (SAR) Missions. Normally, these missions would be handled by Civil Air Patrol (CAP), United States Coast Guard (U.S.C.G.), U.S. military, or public service (State Police) units. Those who regularly practice these types of operations with their own aircraft and crews are most likely to be integrated already into the existing disaster response plan. Additional vertical flight aircraft from the local community should only be used for SAR work in cases of extreme urgency and their efforts should be coordinated by the responsible SAR agency. The FEMA "Urban Search and Rescue Response System - Field Operations Guide" is a useful reference on this topic.
Helicopters are often more effective than airplanes in finding missing persons since they can safely operate at 40 knots and 500 feet AGL. At 1000 feet and 90 knots, airplanes are usually more cost effective in finding downed aircraft.
10 11/13/98
p. Communications Support.
In large-scale disasters, most forms of normal communications may be disabled for various periods of time.
Helicopters can provide limited emergency communications (radio relay, message transport, etc.) and aid in reestablishing disabled communications systems by moving communications assets, repositioning/replacing antennas for cellular communications, etc.
q. Return of Personnel and Equipment. During a disaster, vertical flight aircraft may be used to return personnel and equipment to their respective bases. These missions may or may not be accorded a high priority, depending on individual circumstances, agreements, and orders of the Incident Commander. After a disaster, rescue equipment may not be returned to the owning department for several days or even weeks. At this point, ground transportation will most likely be used.
r. Livestock Support. The benefits of using vertical flight aircraft in disaster relief work are not limited to aiding people. Valuable livestock, stranded by snowdrifts or floodwaters, have been sustained with food transported by helicopters.
7. OPERATIONAL PRIORITIES.
Helicopters and tiltrotors are extremely versatile aircraft and can be used to great advantage in many applications.
Their versatility mandates that priorities be established as part of any vertical flight aircraft integration plan in order to assure that the most important jobs are accomplished on a timely basis. As vertical flight aircraft become available in a given emergency situation, they
AC 00-59 need to be assigned the most critical missions first according to the needs of the Incident Commander (IC). Also, as more aircraft become involved in the relief effort, rights-of-way must be established so the various aircraft do not interfere with each other during their respective missions.
a. Safety. The number one priority in any aviation activity is safety.
An all-encompassing, pervasive concern for safety in all aircraft applications will maximize the benefits derived from their use. Operators are responsible for compliance with FAA satety and air traffic regulations.
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b. Mission Priority. Generally, the highest priority missions are in direct support of lifesaving efforts.
Other missions may not be life critical, but they are important support functions that may be requested by the Incident Commander.
c. Consideration of Personnel on the Ground. Regardless of the mission type, it is imperative that missions be carried out so as not to impair the efficiency of workers on the ground or to endanger survivors or relief personnel.
8-19. RESERVED.
CHAPTER 2. PLAN PREPARATION
20. PLANNING ASSUMPTIONS.
Four planning assumptions were made in formulating these guidelines:
a. Situational Problems. It is assumed that situational problems such as traffic, debris, floodwater, or location can interfere with deployment of ground transportation in the aftermath of any catastrophe, disaster, or mass casualty incident.
b. Timely Availability of Vertical Flight Aircraft. It is assumed that vertical flight aircraft will be available in a timely manner from various civil, private, and/or military sources.
c. Pre-existing Plans and the Incident Command System (ICS). It is assumed that participating municipalities have pre-existing disaster response plans or emergency plans in place and that they will either operate under the auspices of the Incident Command system (ICS) or another locally developed emergency response structure.
d. Control. Due to the limits imposed by weather and availability, helicopters and tiltrotors should not be considered an essential part of any plan.
If the Incident Commander (IC) determines there is a requirement for their use and the community has vertical flight assets, then the vertical flight response plan can be activated.
Spontaneous response by air resources with a sense of "just coming to help" can be counterproductive and should be strongly discouraged.
21. BASICS.
a. Acquire a Full Understanding of Existing Plans. The first step for a local emergency management planner in the integration of local vertical flight assets is to have a full understanding of any existing plans, agreements, regulations, and jurisdictional issues. Survey all operational procedures, mutual-aid agreements, service limitations, and regulations in the area of jurisdiction.
[The quickest and most efficient way to gather this information is to contact your Local Emergency Planning Committee (LEPC), Regional Planning Committee (RPC), and regional FEMA office. See also Appendix A. The goal is to integrate helicopters and tiltrotors into existing plans and Incident Command Systems, not to change the core of emergency planning that already exists.
Once a familiarity of existing plans is acquired, it will be easier to incorporate the elements for vertical flight aircraft integration. Search out the air medical transport services in the region and encourage them to participate actively in the planning process.
b. Train First Responders in Al Elements of the Plan. First responds who want to use helicopters and tiltrotors need to know how to obtain them, how to communicate with them, their landing zone requirements, and their safety requirements. The Incident Commander (IC) should be able to assess the emergency situation and determine whether helicopter or tiltrotor aircraft support is both necessary and available. Depending on 13
AC 00-59 the scope of the incident, the IC may activate the air operations (AO) branch of the Incident Command System.
Requesters and emergency operations personnel should first determine the adequacy of ground support as a means of mitigating or assessing the incident.
c. Establish a Central Control Point and Dispatch Center for All Helicopter and Tiltrotor Operations.
Air operations control should normally be collocated with the primary emergency operations center or command post. Alternatively, air operations could be located separately in a facility that can handle all the parameters of flight operations. For example, the National Burn Victim Foundation (NBVF) in Basking Ridge, New Jersey uses the American Telephone & Telegraph (AT&T) Flight Operations Center to serve as its air operations (AO) center. The selected AO center should be in the communications network, have defined procedures and protocols, be able to file flight plans, provide weather briefings, and communicate with in-flight aircraft regarding mission assignments and estimated times of arrival (ETA). In addition, it should assign appropriate resources based on the requests of the Incident Commander.
22. ALERT LEVELS. It is recommended that different vertical flight aircraft alert levels should be defined based on the complexity of the anticipated disasters and the response time of the available aircraft. During a 14 11/13/98 disaster, the Incident Commander will determine the appropriate alert level.
Figure 2-1 provides one example of how vertical fight aircraft alert levels might be structured.
a. Level 1 could encompass locally available assets that could generally respond within two hours.
First tier responders might include hospital-based EMS helicopters; city, state, and government assets; and local commercial and private helicopters.
b. Level 2 could reach to any State or National military resources that may be available within a two to six hour response time. U.S. Army National Guard (ARNG) helicopters may be a potential resource. These aircraft could be added to those responding under alert level 1.
c. Level 3 helicopters and tiltrotor aircraft could be requested from reserve and active duty military installations. In mass evacuation situations, the military frequently has the largest available vertical flight aircraft and some can transport 20 or more people at a time. Level 3 aircraft may require over six hours to respond.
(Emergency planners should be aware that once the Federal Response Plan has been implemented, Federal resources, including active military units, will not be available unless the State requests their support through the Federal Coordinating Officer at FEMA's Disaster Field Office.)
AC 00-59 Alert Levels 1 1 3 2 2 3 2 RESPONSE TIME: LESS THAN 2 HOURS Private/Government RESPONSE Military Active Duty CRANE THE 1 10 A ZIME: MORE THAN Units HOURS 11/13/98 FIGURE 2-1. EXAMPLE - VERTICAL FLIGHT RESPONSE ALERT LEVELS
AC 00-59
d. Commentary. Each locality and jurisdiction is unique. For example, some communities may be collocated with a major military installation that could provide a rapid response time. In such a case, military vertical flight assets might better be assigned to level 1 of the response alert. In addition, note that the response times given in this paragraph for levels 1, 2, and 3 are examples. Different times might be selected depending on local circumstances.
d. Notification and Request for Standby Status. When either level 1 or 2 is implemented, participants involved in the next higher level should be notified and asked to assume standby status.
e. Recognition of Existing Alert Systems. Many communities already have alert levels and corresponding checklists. Where such systems exist, vertical flight response levels should be integrated in a manner that is consistent with the planning doctrine. Some existing plans use more than three levels.
f. Major Catastrophic Disasters. If the magnitude of the disaster warrants activation of the Federal Response Plan (FRP), Federal resources can only be acquired through the Federal Coordinating Officer (FCO).
23. SPECIAL RESPONSE PROCEDURES. It is appropriate to 16 11/13/98 develop procedures for potential disaster scenarios in a particular region. These disasters could be among the following, depending on the community profile:
a. Natural Disasters Such as Hurricanes, Forest Fires, Tornadoes, Earthquakes, Floods, or Blizzards;
b. Airplane Crash at or Near a Local Airport;
c. Terrorist Incidents;
d. Hazardous Materials Spill;
and
e. High Rise Building Fire.
Figure 2-2 provides a sample procedures outline for a high rise fire.
24. PLANNING VERSUS INTEGRATION. A deputy fire chief in Phoenix, Arizona has stated, iPlanning is necessary and required, but often it is a paper plan on a shelf and unusable during an actual event.
Experience has shown that the best disaster outcome has occurred in communities that have integrated helicopter operations into daily 'routine' operations and standard operating procedures. These procedures provided expansion capability and it became a natural act to expand to disaster level operations - rather than a foreign, unused plan. Integrating these procedures into the Incident Command System enhanced this 'routine' expansion capability."
25-29. RESERVED.
Fire Departments)
- Conduct survey of all local high-rise building rooftops.
- Publish and distribute a directory with drawings, photos, etc.
(Periodic review, validation, and revision of this directory are required.)
- Coordinate fire-fighting procedures with building management.
- Develop and train fire crews in operational procedures for helicopters (and tiltrotors if appropriate).
- Maintain equipment (rescue nets, rappelling gear, fans, etc.)
- Exercise crowd control on the rooftop during evacuation.
Vertical Flight Support Units
- Coordinate and cooperate with disaster planning agency.
- Maintain appropriate aircraft configurations.
- Conduct training and participate in full-scale exercises.
- Adopt specified safety and operational standards.
Police Departments)
- Provide landing zone (LZ) security.
- Provide security in the vicinity of the fire site.
- Exercise crowd control at the fire site.
High-rise Building Management - in accordance with local codes.
- Review and agree to the provisions of the plans.
- Maintain available access to rooftop for evacuation.
- Maintain rooftop clear areas and/or emergency helipads.
- Notify fire department of changes and modifications.
FIGURE 2-2. SAMPLE HIGH-RISE FIRE RESPONSE PROCEDURES 17
CHAPTER 3. RESOURCE INVENTORY
30. INTRODUCTION. A key to the rapid and efficient deployment of helicopter and tiltrotor aircraft to support relief or rescue efforts is a list of commercial, private, government, and military operators who have agreed to commit aircraft. This chapter provides guidelines for developing a list of vertical flight assets and organizing that list to facilitate the dispatch of these aircraft to the scene.
31. IDENTIFY AND SURVEY
HELICOPTER AND TILTROTOR OPERATORS. Initially, in obtaining commitments from vertical flight aircraft operators for disaster relief and rescue operations support, the planning agency should compile a list of area operators. Knowing who to call and the type of task that the aircraft will be performing will improve the efficiency of the response/rescue process.
a. Creating a Resource Inventory. The names of helicopter operators are available from several sources locally, regionally, and nationally. Consider starting with the organizations listed in Appendix A in order to reduce the time involved in seeking such information. You may be able to order lists from a combination of the organizations and to use the information to develop mailing and resource lists. In some cases, computer runs or membership rosters may be obtained free of charge. However, there may be a fee for this service.
b. Identify Civil Operators.
The sources listed in Appendix A can provide names and contacts of civil helicopter operators who can aid in the development of this list. In particular, contact the air medical services organization(s) in your area. These operators usually know the other operators in the region and the services that each can provide. Encourage EMS operators to participate actively in your planning process.
c. Identify Military Operators.
Each state has a National Guard Adjutant General (AG). This state-level AG can provide a listing of military vertical flight assets, both active and reserve, that are available within the state. In addition, the state-level AG provides a direct conduit for identifying and requesting military assets trom other states and/or active military sources. Listed in Appendix A is the National Guard Adjutant General (AG) who can provide the address and phone number of the AG in each state.
32. RESOURCE SURVEY. Do not assume that every helicopter and tiltrotor operator within a region is willing to devote aircraft to support a relief operation on demand. Instead, develop a reliable resource list that can be used at the time of an emergency by surveying each operator in advance to determine the level of commitment and detailed information regarding available resources.
a. Survey. Conduct a survey of each helicopter and tiltrotor operator to obtain commitments and pertinent data regarding key personnel, bases of operations, types of aircraft, on-board communications and rescue equipment, 19
AC 00-59 mission capabilities, and operational limitations. Organize this information into "assistance" categories as part of a resource inventory and request checklist. This will enable transportation and rescue requirements to be matched with an operator's capabilities (i.e., external-load for bringing in supplies or pulling debris from the disaster scene, litter configuration to carry victims from the scene, searchlight for nighttime damage assessment, etc.)
b. Limitations. The emergency planner must understand that
HELICOPTERS AND TILTROTORS
SHOULD ONLY BE ASSIGNED
TASKS THAT THEY ARE CAPABLE OF PERFORMING. Operators may not be willing or able to provide aircraft support to perform all of the missions required for the relief effort. This may be due to schedule limitations (e.g., the aircraft is out on a current mission); by operational constraint (e.g., the pilot cannot perform the flight or the aircraft is down for maintenance); or by federal regulation or insurance limitations (e.g., the aircraft:
cannot perform sling loading, cannot transport patients by external-loads, or is not equipped to transport litters).
Special attention should be given to the types of services the aircraft operator is willing to provide. In addition, a procedure should be established for backup resources when or if an aircraft is unavailable.
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33. TASK MATCHING. One of the objectives in a resource survey is to obtain an operator "profile" for "task matching". This allows the air operations (AO) center to request aircraft support after considering the equipment and capabilities of specific aircraft. Figure 3-1 is a sample helicopter and tiltrotor resource survey data form that can help in the data gathering effort. The types of data and a description of their purpose are listed below:
a. Name, addresses), and telephone number(s) of the operator's bases) of operations. This information should also include fax numbers for immediate distribution of flight operations, E-mail address, and cellular telephone numbers in the event that land-line transmission becomes impossible.
b. Points of contact should be on a 24-hour basis) and after-hours telephone number(s). Each contact person should be a key individual with authority to dispatch aircraft and staff support to the disaster scene.
c. Additional points of contact (in the event the first line of authority is unavailable). In some cases, the first point of contact may be unavailable and a second in command will need to be identified. Think of a worst case situation (e.g., a holiday weekend) and list all available contacts.
For Agency Use Only Name of Operator: Telephone Number: Fax Number: Region: NWNE After-hours Telephone Number(If different than daytime phone): Address (or base of operations): Ist Point of Contact: Cellular Phone: Telephone: Dispatched: Yes_ No SW__SE AC 00-59 Must Have authority to dedicate helicopter resources to relief activity 2nd Point of Contact: Telephone: Launch Time:
Must have authority to dedicate helicopter resources to relief activity if Ist point of contact is unavailable Return Time:
Flight Operations Manager or Chief Pilot: Telephone:
List helicopters that company can dedicate to relief operations and complete or check relevant information:
Make Commu- Base # # Pay- Response Duration Special Equipment Mission Helicopters Cost and nications of Crew Litters load Time per of Flight Capabilities dispatched per Model & Ops that in 50 NM Time in Hour N# Naviga- # can be Lbs in Hrs/Mins tion Pax carried Hrs/Mins Fuel Used Cargo Hook __ Aerial Photo Passenger Only_ Date Searchlight FLIR Litter/ Aeromed Time Out Jet A Public Address Hoist _ External Load Mission 100 LL Emergency Med. Kit Rescue Net Damage Assessment Time In Other(list) Supplies Call Sign VHF Cargo Hook Aerial Photo Passenger Only. Date _ UHF Searchlight FLIR Litter/Aeromed Time Out Loran Public Address Hoist External Load Mission RNAV_ Jet A Emergency Med. Kit... Rescue Net Damage Assessment Time in Xpond 100 LL Other(list)_ Supplies Call Sign GPS VHF Cargo Hook Aerial Photo Passengers Only Date_ UHF_ Public AddressFLIR Searchlight Litter/Aeromed Time Out Loran Hoist_ External Load Mission RNAV Jet A Emergency Med. KitRescue Net Damage Assessment Time In Xpond 100 LL Other(list) Supplies_ Call Sign_ GPS Operational Limitations: Describe any limitations that might interfere with participation in the Disaster relief/rescue effort:
IFR Flight: Are helicopters/flight crew certified for IFR operations? Yes. No Night Flight: Are there any missions that are prohibited for night flight?
Minimum Landing Area Requirements _ Geographical(range of operations limitations)or Other Limitations:_ 11/13/98 FIGURE 3-1. SAMPLE HELICOPTER RESOURCE SURVEY DATA FORM
AC 00-59
d. Name and telephone number(s) of flight operations manager and/or chief pilot.
Information regarding aircraft mission(s), air traffic control, radio frequencies, flight hazards, landing zones, and traffic patterns should be transmitted to this individual in advance of dispatch if possible.
e. Number, make, and model of aircraft and their mission capability. Each helicopter and tiltrotor aircraft, along with the registration or "N" number, should be listed Additionally, identify the passenger capacity and any special equipment available so that the aircraft can be matched with the relief/rescue task.
f. Base of operations and response time per 50 nautical miles.
In dispatching aircraft, their location in relation to the scene is a critical factor.
Identify their operating bases and how long it will take the aircraft to arrive at the scene based on the block speed (liftoff to touchdown) of that particular aircraft. Consider this and the mission requirement that the aircraft will be performing when requesting helicopter or tiltrotor support. The response time should include engine start up, run up, etc.
g. Duration of flight. In making mission assignments, consider when refueling and change of aircrew will be required. Knowing the duration of flight will assist the AO director in programming resources over a given period of time.
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h. Load Capacity.
(1) Passengers. Number of ambulatory (able to walk) passengers the aircraft can carry.
(2) Litter Patients.
Number of litters the aircraft can accommodate.
(3) Payload. Amount of weight, including both supplies and passengers, that the aircraft can safely carry under standard conditions, both internal and external (sling load), if appropriate.
i. Fuel requirements. It may be possible to have a staging area close to the scene where aircraft can be refueled. A tanker truck carrying the required fuel such as Jet A or 100 Octane can be positioned at the staging area to eliminate time-consuming ferry flights back to an airport or operations base. If extended operations are planned, helicopter and tiltrotor operators may want to bring their own consumables (oil, hydraulic fluid, transmission fluid, etc.). Active and reserve military units have the capability to provide fuel transportation, storage, and dispensing equipment.
j. Size of landing area required. Helicopter and tiltrotor operators may require a landing area that is larger than what is recommended in AC150/5390-2, Heliport Design.
Note any special requirements.
AC 00-59
k. Operational limitations. In operating helicopters and tiltrotors, there are several limitations that must be recognized:
(1) Geographical locations of the scene. A particular aircraft operator may not wish to operate outside a specified radius.
(2) Political.
Jurisdictions or command hierarchies may require that certain aircraft resources be called out in a particular order such as police helicopters, first;
hospital helicopters, second; private resources, third; Army National Guard, Army, or Coast Guard, fourth, etc. The order is likely to vary from jurisdiction to jurisdiction.
(3) Environmental. This field denotes whether a particular aircraft is certified for flight in inclement weather (winds, icing, reduced visibility, etc.) or whether the operator has a corporate/company policy of no instrument flight rules (IFR) operations or no nighttime flights. In addition, altitude and temperature restrictions are very important in many parts of the country.
(4) Personnel. Take into consideration that personnel must be qualified to conduct operations under the environmental conditions.
(5) Mission. Some types of missions require specific FAA approval. For example, an operator must obtain FAA approval as an "FAR 133 operatori prior to conducting external-load operations.
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1. Specialized equipment.
Each operator may have the ability to perform a variety of tasks beyond carrying passengers. Often, this involves either special equipment or an aircraft configuration that is required for a special task:
(1) Searchlight. Used in night operations to locate victims, assess damage, spotlight potential landing areas or hazards that should be removed.
(2) Rescue net. Rescue net carried from a tether underneath the aircraft or a hoist (either externally or internally mounted).
(3) Rescue hoist. Many helicopters have a cable and winch system that allows the insertion and extraction of emergency personnel or the extraction of victims from areas where the helicopter is unable to land.
(4) Forward looking infrared (FLIR). Sensor used for locating victims, evaluating potential landing areas, etc.
(5) Cargo hook.
Supplies can be carried outside the aircraft using a tether suspended from the cargo hook. This can be useful in areas where conditions prevent even a helicopter or tiltrotor aircraft from landing. Consult the FAR's for applicability.
(6) Aerial photographic pod. Useful for filming disaster scene for developing disaster relief control maps, pinpointing landing zones, identifying areas that need first priority for cleanup or rescue.