AC 00-59
34. SAMPLE SURVEY FORM.
Figure 3-1 illustrates a sample survey form. This is offered as a guide for the planning agency in developing a form tailored to its own emergency plan.
Consider automating (computerizing) the completed data so that the information can be sorted using a variety of "fields". Example of such fields include region (NE, NW...), mission (supplies, medical, passenger...), special equipment (helicopters with "floats" for water rescue, FLIR for locating victims...), or disaster type (high-rise fire, earthquake, etc.). During an emergency, the ability to focus on relevant data can improve the efficiency of the response operation.
35. CONDUCTING THE SURVEY.
Conduct a survey using the initial helicopter and tiltrotor inventory list developed from information received from one or more of the listed organizations. This activity could involve multiple steps in order to get a final list of participants.
a. Develop an initial list of helicopter and tiltrotor operators.
b. Create a survey form.
c. Mail or E-mail the survey form to operators with the following information:
(1) Cover letter describing the nature of the project.
(2) Deadline for responding (advise and highlight), and 11/13/98
(3) Contact person for answering questions or further describing the program
d. Receive the survey forms and, if necessary, retype information onto final form.
e. Send the operator a copy of the final aircraft inventory data form to verify the information.
f. Place the forms in a binder for the AO center. Organize the forms to match the task with the capability.
g. Establish a periodic review cycle for validating the currency of information and modifying it as required.
h. Make a determination on the registration of emergency workers and on whether reimbursement is appropriate and required.
36. VERIFYING AND UPDATING.
The resource inventory will be a compilation of those data forms from operators willing to participate in disaster relief and rescue programs.
Therefore, maintain only forms from committed operators in the disaster relief plan file. Have the operator verify the final data forms so that there are no transpositions, errors, or misunderstandings as to the operator's commitment and use of aircraft. The data forms can be updated by merely copying them and sending them to the individual operators for revision or continued commitment to the program.
Creation of a computerized database can be a very efficient method for 25
maintaining and updating your data.
Even greater efficiencies may be achieved if this file is accessible via the Internet for reference and updating.
37-39. RESERVED.
CHAPTER 4. COMMUNICATIONS
40. COMMUNICATIONS NETWORK. An effective communications capability is essential to deploying aircraft in support of emergency operations. This chapter focuses on the need and methodology for establishing a communications network to implement a vertical flight aircraft support plan for disaster relief.
41. TERMINOLOGY,
PHRASEOLOGY, AND ACRONYMS. Each of the various groups in the disaster relief effort employs terms and phrases unique to their operation. Additionally, a specific acronym (abbreviation) does not always hold the same meaning for all responders. Thus, it is important to teach people to avoid the use of jargon and acronyms. This reduces the potential for misinterpretation.
42. ESTABLISH AN EMERGENCY COMMUNICATIONS NETWORK.
From the initial aircraft request until completion of the mission, the flow of information is critical. Figure 4-1 illustrates a communications network for requesting and managing helicopters and tiltrotor aircraft support. ONLY
ONE ENTITY SHOULD BE
RESPONSIBLE FOR DISPATCHING
VERTICAL FLIGHT AIRCRAFT
SUPPORT AND MANAGING THE ASSOCIATED RESOURCES.
Information is relayed to the command post as the demand changes. Advisories that alter the level of support are relayed through the net on a continuing basis.
The following is a brief explanation of the roles of each entity in the network.
a. Command Post. The command post (CP) is the initial contact point that receives notification of the disaster and requests activation of the disaster plan. Generally, this is the community's communications clearing house or an emergency number where alerts can be issued to authorities. As the plan is implemented and needs are identified, services are requested through the command post.
b. Incident Commander. In the USA, disaster relief efforts are often conducted using the Incident Command System (ICS). In this system, the Incident Commander (IC) is in charge of implementing the emergency operations plan. The IC notifies appropriate city/county staff and department heads of the action and requests their assistance in "turning on" various emergency operations. The IC or the delegated representative determines the need for aircraft support and provides information to the Air Operations (AO) center. This information includes:
(1) Type of disaster,
(2) Alert level,
(3) Location of disaster,
(4) Anticipated number of people requiring rescue or rapid transport,
(5) Types of helicopter and tiltrotor aircraft support needed,
(6) Locations of staging areas and/or landing zones, 27
Disaster Relief Effort Requirement Activation Command Checklist Post (CP) Incident Requirements Air Operations Verification Commander Director FAA Air Traffic Control Requirements Medical Information Hospital(s) Mission Assignments Landing Air Traffic Control Zones) Helicopters) Communications Plan Emergency Communications Net 11/13/98 FIGURE 4-1. EXAMPLE - HELICOPTER AND TILTROTOR COMMUNICATIONS SYSTEM
AC 00-59
(7) Weather at landing zone including wind speed and direction if possible, and
(8) Possible landing hazards.
c. Air Operations (AO) Center. The AO center will receive, then verify the request from the IC.
Depending on the requirements, the AO center may then communicate with the command post for further operational and support requirements.
(1) The AO center director should be familiar with helicopter capabilities (and tiltrotor capabilities, if appropriate), able to weigh operational risks, and experienced in making decisions under pressure. The AO director is responsible for implementing the vertical flight aircraft communications plan.
(2) The AO center will advise, designate, or request air traffic control (ATC) assistance from the FAA or, if applicable, the airborne air traffic controller (AATC). In addition, the AO center will request vertical flight aircraft support; determine the types and numbers of aircraft needed; determine the anticipated duration of assignments;
establish mission priorities; assess flight crew relief; organize ground support and security for helicopter and tiltrotor landing zones and staging areas; arrange for fuel trucks for sustained operations at staging areas; coordinate aircraft on the ground, in the air, at hospitals, and at staging areas; and disseminate 11/13/98 information such as control maps, frequencies, geographical coordinates of landing zones and staging areas, hazards, call numbers and names of personnel in charge.
(3) In the event a heliport/vertiport directory does not exist, landing site information (latitude, longitude, approach azimuth, potential hazards, notable landmarks, etc.) will be given to pilots.
(4) The AO center continuously monitors activities of helicopter and tiltrotor crews, medical crews, hospitals, air traffic control, and command and control operations. The AO center assesses further operational requirements as disaster details become known and the relief/rescue effort progresses. Air operations may shift staging areas, casualty collection points, hospitals, and emergency landing zones as required.
d. Collocation. Whenever possible, the Command Post, the Incident Commander, and the Air Operation Center should be collocated.
e. Communications Plan.
Smooth interactions among the medical and rescue units with helicopter and tiltrotor support activities and the prioritization of multiple relief requests comprise the most complicated and dynamic tasks of the communications plan. Ideally, the communications plan will help evaluate the initial estimation of damage and assignment of resources and will perform continuous 29
AC 00-59 reassessment of these factors and their impact on the level of support. The information exchanged is the basis for making weighted control decisions regarding the resources required to mitigate the disaster. The communications plan is composed of at least three information components:
(1) Medical information.
Medical tracking includes patient name, means of transport, medical status, and destination. The AO center assesses the requirements to transport medical personnel and special medical supplies or equipment. The AO also determines bed availability and assignment of receiving facilities. (Confidentiality dictates that patient names will not be broadcast unless there is some overriding reason to do so.)
(2) Mission assignments.
Mission assignments include operations, landing zone designation, assessment of rescue efforts, and specification of disaster reliet requirements.
(3) Air traffic control.
ATC consists of information from the FAA and potentially an airborne air traffic controller (AATC, e.g., police helicopter, Civil Air Patrol airplane, etc.). When AATC services are required, this controller will advise and sequence helicopters and tiltrotor traffic in and out of the landing zone and staging areas. The AATC will receive requests from air operations regarding the distribution of outgoing aircraft to hospitals, staging areas, and landing zones. The AATC will also coordinate with FAA ATC as necessary. The FAA will control the restricted airspace, issue 30 11/13/98 NOTAM's, and support the operations on a more general level.
f. Frequency Assignment. A key to information exchange is the establishment of separate, autonomous frequencies for medical, air, and ground operations. (A common frequency for use by all aviation personnel helps pilots to maintain the situational awareness required for safe operations. In addition, pilots need to be able to communicate, on an as-needed basis, with medical and ground operations personnel.) During a disaster, frequency congestion can cause conflicts in transmitting vital information or impede traffic control. Among various operational components, it is important that there be discrete emergency frequencies dedicated to each function.
The command post and the AO center should be able to monitor these frequencies simultaneously for reporting or requesting changes to the support levels. As hospital facilities approach saturation or as landing zone requirements are relayed to the command post, resources can be shifted or new demand levels can be established. Figure 4-2 summarizes some of the participants, the type of information being relayed, and the frequency ranges that are commonly used.
43. ESTABLISH PROCEDURES AND PROTOCOLS. Avoiding chaos and unnecessary radio traffic is one primary objective of writing and adopting a disaster relief plan.
Determining who is in charge and what procedures should be carried out will help minimize the confusion that often accompanies a disaster.
PARTICIPANTS AIRBORNE ATC TO PILOT FAA TO PILOT LZ CONTROL TO PILOT AO TO PILOT LZ CONTROL TO AIR CONTROL LZ CONTROL TO AO AO TO LZ CONTROL AO TO HOSPITAL AO TO POLICE CP TO AO MED CREW TO HOSPITAL HOSPITAL TO AO PILOT TO AO PILOT TO CP PILOT TO AIRBORNE ATC AC 00-59
INFORMATION FAA Air Traffic Control VHF, UHF
VHF, VAP, VHF, ETA Landing Zone FM UHF UHF UHF Landing Zone Conditions: VHF, Windspeed/Direction UHF, Lighting/Availability FM Landing Zone Coordinates/ Landmarks VHF, UHF VHF, UHF, FM VHF, UHF VHF, UHF VHF, UHF, FM On-Scene ATC of VHF, VHF, UHF, Cellular FM, Landing Zone UHF FM Phone (VHFUHF, Alert Notification Cellular Phone Damage Assessment Video UHF, VHF, Mission Assignment UHF FM, Mission Requirements Cellular Phone Security/Ground Control Cellular Phone
FM, FM, ETA Hospitals Cellular Phone FM VHF, UHF Hospital Resources FM Patient Status FIGURE 4-2. SAMPLE COMMUNICATIONS MATRIX 11/13/98
AC 00-59
a. Written Procedures. Every jurisdiction and mission should have written, established procedures in place for the smooth coordination, contro., and performance of rescue operations.
Protocols should be specific to avoid misinterpretation of authority for
b. Organized Protocols. It is advisable that protocols be organized by disaster type, controlling agency, and the aircraft operators' mission capabilities. Protocols and procedures should focus on areas of information inherent in the communications net. In addition, regular exercise of the plan is just as important as plan development.
44. MEDICAL INFORMATION.
Many types of medical information are critical to relief and rescue efforts including evaluation of injuries and special equipment needs. Information about the following may need to be communicated:
a. The command post or emergency operations center for alerting the medical community, i.e.
hospitals, helicopter and tiltrotor operators, physicians, Red Cross, and volunteer agencies;
b. The disaster scene, including the location(s) of victims;
C. The medical control unit to request special equipment, to specify patient care, to transport requirements, and to relay changes in bed availability;
32 11/13/98 requesting resources and controlling various activities relating to the disaster scene. Because different types of disasters often dictate different requirements, the procedures should also be flexible to be responsive to the specific disaster at hand.
d. The triage area for treatment, stabilization, and priority for transport;
e. The landing zone for special transport instructions depending on the severity of injury;
f. The AO center to the receiving facility for patient condition updates, aircraft estimated time of arrival (ETA), bed availability, and en route care requirements; and
g. The log book for problems or deviations from established procedures including causes or rationale behind deviations and results. Pictures and video may enhance the recall process during a post-incident analysis.
45. MISSION ASSIGNMENT. AO center mission assignment functions may be ground-side or airborne depending on the resources available.
Mission assignment duties are a command and control function that may encompass damage assessment, resource requirements and requests, air traffic control, and resource management. The AO director will do the following:
a. Manage emergency operations and aircraft mission assignments;
AC 00-59
b. Determine the agency that will provide aircraft for use in AATC;
c. Prioritize activities based on alert levels (i.e., determine airspace requirements), advise the authorizing agency on the nature and extent of damages, and call for ground and airborne support, etc.;
d. Provide damage assessment and notify the IC/command post of resource requirements and available staging areas close to the scene;
e. Advise the IC/command post, manage resources as relief requirements shift geographically, adjust the response levels as the need diminishes; and
f. Maintain a log on problems or deviations from established procedures including causes or rationale. Pictures and video can enhance recall during post-incident analysis.
46. AIR TRAFFIC CONTROL. Air traffic control will likely be conducted using a local ATC facility, a temporary emergency ATC facility, an AATC, or a combination of these facilities. All air traffic issues should be coordinated with local FAA personnel during development of the disaster response plan(s). Procedures should include the following:
a. Determine the agency that will control air operations at the disaster scenes;
11/13/98
b. Coordinate with the FAA/ATC on when and where to "hand off' aircraft;
c. Provide "fixes" for landing zones or staging areas or advising air operations of landmarks for ground reference in locating the site(s);
d. Determine traffic flow and advise the command post and air operations of patterns in advance of dispatch, if possible;
e. Sequence aircraft for approach to landing zones or staging areas;
f. Control departing aircraft to a disaster support area, a receiving facility, or a hand-off point to FAA/ATC for further guidance to intended destination;
g. Control the flow of observation/surveillance aircraft or approved broadcast media aircraft within or around the disaster scene if allowed under 14 CFR 91.137, Temporary Flight Restrictions;
h. Provide damage assessment to command post for further allocation or management of relief resources; and
i. Maintain a log on problems or deviations from established procedures including causes or rationale behind deviations and results - pictures and video may enhance the recall process during debriefing.
AC 00-59
47. PREDETERMINED
HELICOPTER AND TILTROTOR CALL SIGNS. Establish a procedure for determining helicopter and tiltrotor call signs that identify participating aircraft during a disaster activity and document it in the plan. This aids ATC personnel in separating the rescue aircraft from the general flow of traffic.
ATC may be accomplished by the FAA ATC facility closest to the scene, by FAA Air Route Traffic Control Center (ARTCC) personnel, or by an airborne "air control" aircraft.
a. One method of designating call signs could use the last three digits of the aircraft's registration number,
(e.g., N9465S), preceded by the identifier "Lifesaver" or "Rescue," resulting in the call sign, "Rescue 65- Sierra." (Sierra is the phonetic code for the letter S. The phonetic alphabet is used in all aviation call signs.)
b. Another means of assigning special call signs is to combine the aircraft role with part of its registration number and the number of persons the aircraft can rescue or transport. For example, if the aircraft registration number is N9465S and it can carry no litters and two passengers, the call sign would be "Lifesaver 5-Sierra-0-2."
c. Predesignation of Call Signs. Whenever possible, helicopter and tiltrotor aircraft will be preassigned a call sign for use during relief/rescue operations. The planning coordinator responsible for managing the aircraft inventory should advise the operators of the call signs when they are assigned and reconfirm them upon dispatch.
34 11/13/98
48. TEMPORARY FLIGHT RESTRICTIONS (TER).
a. Federal Aviation Administration/Air Traffic Control (FAA/ATC). Federal Aviation Regulations 14 CFR Part 91.137 and, in Hawaii, 14 CFR Part 91.138 authorize the FAA to set aside airspace over the scene of an accident, disaster, or some other special event. This allows the FAA to route the normal flow of traffic away from the area. These regulations provide for the immediate establishment of temporary restricted airspace to provide a safe operating environment for disaster relief aircraft, among other reasons. It will be important for the AO center to determine the need for and the extent of restricted airspace through discussions with appropriate personnel.
The AO center will request that the nearest FAA/ATC authority restrict the airspace involved. In making the request, the AO center must provide the FAA with the following information:
(1) Identity the reason for declaring FAR 14 CFR 91.137 (Temporary Flight Restrictions) or FAR 14 CFR 91.138, as appropriate,
(2) Identify the location by means of an azimuth and a distance (in nautical miles) from a ground-based navigational aid (accuracy is critical),
(3) Duration of expected restriction - a time frame can be estimated or the restriction can be active "until further notice," and
AC 00-59
(4) Altitudes affected - these may be dictated by the nature of the disaster, winds, spatial arrangement and heights of buildings, number of aircraft needed for rescue operations, etc., and who will be directing relief activities.
b. Further information on the types of restrictions and related procedures is available in FAA AC No.
91-63, Temporary Flight Restrictions, and in FAA Handbook 7930.2 "Notices to Airmen," (See Chapter 8, Flight Data Center NOTAM Procedures, sections 8- 1, b and 8-3). Avoid requesting a larger TFR than what is necessary. Once a TFR is requested, it may take 20 minutes to an hour or longer before it becomes effective.
c. Fragile Structures.
Consider the case of a building, a highway overpass, or other structure that has partially collapsed due to an earthquake, a terrorist bomb, or some similar event. Such a structure is "fragile" in that further collapse could be caused by a relatively small outside force such as rotorwash or vibrations induced by aircraft noise. There may be victims, alive and dead, trapped within this structure. Rescue workers may be working to locate and extricate these victims. The FAA has received several UNCONFIRMED reports that helicopters may have caused the further collapse of such a fragile structure.
Aircraft noise can also frustrate the efforts of rescue workers listening with highly sensitive sensors to locate victims trapped under the rubble.
Planners and aircraft operators should be aware of these possibilities.
11/13/98
d. Protection of People in Fragile Structures. Temporary flight restrictions (TFR's) are an effective tool for protecting people from the risk of the further collapse of a fragile structure.
TFR's should be sufficiently large to mitigate these hazards. However, airspace restrictions should not be so large that they interfere unnecessarily with valid and safe air operations. The variability and uncertainties of fragile structures do not lend themselves to a rigorous measurement of risk thresholds. However, a TFR that extends to 2000 feet above the ground and out to a radius of one nautical mile around the structure appears to provide reasonable protection without being excessive. Due to the limited field experience on this issue, the FAA is soliciting reports of both problems and successes in efforts to protect fragile structures during rescue operations.
Send such reports FAA, General Aviation and Vertical Flight Program Office, AND-710, 800 Independence Ave. SW, Washington DC 20591 and reference this AC.
49. DOCUMENTATION.
Organization, education, and training are the keys to efficient disaster response. The emergency response plan will serve as a guide during times of emergency, as a training tool for new disaster relief personnel, and for exercises. The communications plan should be located in the overall disaster relief plan as a separate tabbed section.
The following list details communication plan elements:
AC 00-59
a. Definitions and acronyms for understanding disaster, aircraft,.
medical, and radio terminology and phraseology;
b. Organizational flow chart, general description of responsibilities for each component of the communications network;
c. Step-by-step process in requesting resources based on alert levels;
d. Telephone and radio frequency lists of communications authorities by network component, participating helicopter and tiltrotor operators (including government flight operations), facsimile numbers, frequencies for UHF/VHF, FM, AM, short-wave, citizen's band, cellular telephone numbers, etc.;
. Communications equipmen requirements for emergency use based on relief/rescue role;
f. Instructions on assigning call signs for new volunteer aircraft operators;
g. Sample briefing documents or forms that can be easily completed and hand delivered or Faxed to authorities, dispatch centers and/or aircraft operators;
h. Responsibilities and procedures for each participant in the disaster relief effort; responsibilities and procedures for each mission type for new participants; and 36 11/13/98
i. Distribution (to participants) of the control maps that can be marked up to identify staging areas, landing zones, or relief areas (see also Chapter 5).