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;
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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.
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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.
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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).
CHAPTER 5. HELICOPTER AND FILTROTOR LANDING AREAS
50. INTRODUCTION. During a disaster relief effort, helicopter and tiltrotor operations will require the use of landing areas close to the scene. At locations other than airports, these can be one of several types of sites including: existing heliports or vertiports, predesignated emergencyuse-only landing areas. or on-demand temporary facilities to be used specifically for relief activities. This chapter discusses the general criteria for establishing landing areas to be used by vertical flight aircraft.
a. Landing Site Selection.
Before heliports, vertiports, and emergency landing sites can be established, it is necessary to determine specific site selection and/or approval criteria for such landing zones. This makes it possible to recognize candidate sites for designation as emergency-useonly landing zones and to standardize, to the extent possible, helicopter and tiltrotor emergency landing site facilities for maximum safety and utility.
b. Heliport and Vertiport Design. FAA recommendations for heliport design and construction are contained in AC 150/5390-2, Heliport Design. FAA recommendations for vertiport design and construction are contained in AC 150/5390-3, Vertiport Design. These design ACs were developed by a Government/Industry working group and are intended to represent the MINIMUM REQUIREMENTS for a safe and functional heliport. It is within the prerogative of any jurisdiction to impose additional or more stringent criteria on heliport establishment over and above those contained in the AC. Further information on heliports and vertiports may be obtained from the resources listed in Appendix C.
c. Three Fundamental Requirements. For safe operations at any helicopter or tiltrotor landing site, a pilot needs three things as listed below.
Embellishments on these basic requirements are usually a function of the purpose of the facility, resources available to develop it, and how often it will be used. In a disaster situation with multiple helicopters and tiltrotors participating, it is highly desirable to have multiple approach and departure paths into the landing zone and multiple parking areas. This provides an increased safety margin, operational flexibility, and reduction in operational delay.
(1) Adequate clear airspace for approach and departure (with at least one, and preferably two, departure paths),
(2) Adequate clear space for expected ground maneuvers, and
(3) Adequate current information about wind speed and direction (a wind sock is the ideal source of such information).
AC 00-59
51. SAFETY PERSPECTIVE. In disaster relief efforts, aircraft are sometimes sent on rescue missions that may involve life and death situations.
Under such circumstances, pilots have been known to assume unusual risks willingly. Perhaps their thinking is that such risks are justified in the interest of saving lives. Unfortunately, however, such thinking may lead pilots to take unnecessary and inappropriate risks.
a. Community Resources.
Lives may well be at risk during disaster relief efforts. Community resources are often stretched to the breaking point and beyond. This is a VERY BAD TIME for an aviation accident. Such an accident can bring to a halt the relief effort that the aircraft mission was supporting. It can also bring to a halt other relief efforts as it siphons off resources to deal with the aircraft accident. Thus, instead of bringing disaster relief assistance, an aircraft accident may require significantly more resources that the aircraft would have been able to deliver as an active part of the relief effort.
b. Safety is Paramount. In everyday operations, a pilot requires a certain amount of clear airspace to conduct approach and departure operations safely. In everyday operations, a pilot requires a certain amount of cleared space in order to conduct ground maneuvers safely. A pilot also requires current information about wind speed and direction in order to operate safely at any landing site.
Pilots do not need less clear airspace, less clear ground space, or less current wind information simply because a disaster has occurred. While a disaster 38 11/13/98 may appear to turn the world upside down, the laws of physics still apply.
Thus, in the selection of helicopter and tiltrotor landing sites, pilots should demand sites that provide at least the three basic design elements discussed in paragraph 50c.
52. SELECTION CRITERIA. The FAA Heliport Design Advisory Circular, AC 150/5390-2, contains detailed criteria for heliport design. The FAA Vertiport Design Advisory Circular, AC 150/5390-3, contains detailed criteria for vertiport design.
What follows is a limited discussion of the basic points that should be considered when designing or designating helicopter and tiltrotor landing sites, regardless of whether the facility is permanent or temporary, extensive or simple.
a. Location. When selecting the location of an emergency-use landing zone, whether temporary or permanent, bear in mind the ultimate purpose of the facility. Landing zones near the disaster site and the emergency room entrance at the receiving hospital are most desirable, but not at the expense of safety, communications, and operations. The landing area at the scene should be placed sufficiently far away from activity centers that rotorwash will not blow dust or supplies around and noise will not interfere with communications.
AC OU-59
b. Approach and Departure Paths. Like all aircraft, helicopters and tiltrotors require clear airspace for safe operations during approaches and departures. In selecting landing sites, it is critical to choose locations that provide at least the minimum airspace recommended by the FAA. At landing sites, one of the most common helicopter accidents involves collisions with off-facility obstacles. Such accidents might involve a collision with a tower, trees, or a wire strike. These accidents can destroy the aircraft and injure the occupants. Selection of sites with additional airspace is encouraged because it provides an additional safety margin. Obstacles (buildings, antennas, wires, etc.) must not penetrate either the approach/departure surfaces or the transitional surfaces (see AC150/5390-2 and AC150/5390-3). Aircraft operate best when taking off or landing into the wind. Thus, while one approach/departure path may be acceptable at some locations, two or more paths are recommended as a way to provide greater safety and operational flexibility during varying wind conditions. Approach and departure paths should not pass over command posts, treatment areas, or operationally congested ground areas where rotorwash and/or noise may interfere with communications and operations.
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c. Minimum Recommended Size - FATO. The minimum recommended size of the final approach and takeoff areas (FATO) is a function of the largest aircraft expected to use the facility (see AC150/5390-2). (Keep in mind that the largest helicopter may be a military aircraft such as the UH-1 or the UH-60 Blackhawk.) At landing sites, the most common helicopter accidents involve collisions with obstacles. Such accidents might involve a main rotor hitting a wire or pole, a tail rotor strike, or catching a helicopter skid on some very short object. All of these accidents have the potential to destroy the aircraft.
Choosing and designing landing sites that exceed the minimum requirements can increase the safety margin.
d. Minimum Recommended Size - Safety Area. For safe operations, the size of the safety area around the FATO (see AC150/5390-2) is a function of the largest helicopter expected to use the facility (Consider both civil and military helicopters as appropriate.).
The safety area provides clearance between the edge of the FATO and buildings, trees, fences, telephone poles, wires, hillsides, or anything else that could be struck by main or tail rotors.
Increasing the minimum tip clearance between helicopter rotors and objects that could be hit can increase the satety margin. This is particularly a concern for objects that are hard to see, such as wires, or things whose color allows them to blend into the background when visibility is poor. For nighttime operation at a temporary or unimproved landing site, a minimum tip clearance of 40 feet is recommended.
AC 00-59
e. Wind Indicator. At a landing zone, a means of informing the pilot of the wind velocity and direction is essential. The recommend means is a wind sock. (At facilities that are only used during disasters, acquire wind socks that can quickly be instailed on a temporary basis.). Placement is critical, particularly if the landing site is located near a building. Locate the wind sock so that it does not to interfere with flight operations while still giving a true indication of wind speed and direction.
In areas with swirling or varying winds, such as near buildings or in mountainous areas, two or more carefully placed wind socks may be required to accomplish this. At landing sites, one of the more common helicopter accidents involves inaccurate or unavailable information on wind direction and speed. Such accidents might involve a hard landing due to an unexpected tail wind or a collision with an improperly located wind indicator.
The use of properly located wind socks is recommended because it provides an additional safety margin. For night operations, a lighted wind sock should be used. Care should be taken to ensure that this lighting is installed in a way that does not degrade a pilots' night vision.
f. Surface Slope (in degrees).
The landing surface should be flat (no bumps or depressions) and level or as near level as possible, but in no case should the slope exceed 10 degrees from the horizontal. .
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g. Surface Composition.
Landing surfaces should be capable of supporting one and one-half times the heaviest helicopter's maximum takeoff weight and should be skid-resistant. All helicopter and tiltrotor landing areas should be free of dust, loose dirt, other forms of loose debris and objects, and gravel smaller than one and one half inches in diameter. (Rotorwash can pick up and throw small gravel at a significant speed.) Turf landing zones are quite suitable, but vegetation should be no higher than 12 to 18 inches in height. Wheeled helicopters are especially sensitive to soft landing surfaces. For control of dust in dirt areas, a helpful practice is to wet down the landing area using a hose before landing operations begin.
h. Obstructions and Obstacles. Within the FATO; lights, tie-downs, etc. should be flush with the surface. Obstacles, such as signs, poles, light fixtures, or fire extinguishers should be kept well clear of helicopter and tiltrotor maneuvering areas. This is particularly relevant for those objects that are difficult to see from the air, such as power lines, telephone lines, guy wires, and poles that blend into the background. Obstructions should be noted to pilots and, for night operations, should be lighted in a way that will not interfere with the aircrew's night vision.
Ball markers can be an effective means for marking obstacles such as power lines and guy wires.
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i. Lighting. Lighting systems are necessary to support night operations, but usually, the installation of permanent lighting systems is only practical at permanent landing sites.
Portable lighting systems are commercially available and can be used at temporary facilities. Flares, vehicle lights, and other light sources may be acceptable field expedients if trained personnel deploy them under very carefully controlled circumstances. To avoid the temporary destruction of the pilot's "night vision," special care must be taken in the placement and orientation of lighting.
j. Security. For permanent sites, fences and/or hedges can effectively restrict inadvertent or unauthorized access to heliports and helipads, but they must not present a hazard to flight operations. It is absolutely essential to have specially trained personnel responsible for security at temporary landing zones.
Confusion and excitement can create dangerous situations for persons on the ground as well as for aircraft using the facility. For on-the-scene landing areas, an effective barrier of vehicles or very secure rope can aid in keeping the flow of relief activity away from the operational area.
k. Triage Areas (if appropriate). The primary concern in establishing a temporary landing zone to support disaster relief efforts should be aeronautical safety and efficiency of operations. On the other hand, in disaster situations, high priority is always placed on saving lives and relieving suffering of the casualties.
Therefore, emergency landing zones 11/13/93 should be situated close to triage areas in order to facilitate and expedite patient transport. However, their location should be chosen so that aircraft operations do not interfere with the efforts of triage and medical teams, do noi further endanger the victims, and do not add to patient discomfort with noise;
rotorwash, and flying debris.
I. Logistical Support. Long term operations require support in the areas of fuel, maintenance, flight crew food, fluids, rest, etc. Planning must reflect these needs and provide a means of obtaining the necessary resources.
These logistical support requirements are built into the Incident Command System.
m. Another Reference. During the 1980's and 1990's, the FAA published several dozen reports dealing with heliport/vertiport design and planning. Many of these reports deal with research that sought to validate specific heliport design requirements. A concise summary of these various efforts is contained in the FAA report Safe Heliports Through Design and Planning, A Summary of FAA Research and Development, FAA/RD-93/17.
Heliport and vertiport planners and designers should take advantage of this summary as a quick way to become familiar with the results of numerous research projects.
AC 00-59
53. SURVEYS AND INVENTORY.
Once site selection criteria are established, it then becomes possible to survey, inventory, and catalog all of the existing and potential landing sites. The first step is to locate and identify all existing local aviation facilities that are capable of supporting aircraft operations. Specific attention should be paid to:
a. Public-use Heliports, Vertiports, and Airports,
b. Private-use Heliports, Vertiports, and Airports, and
c. Hospital Heliports.
54. SURVEY OF EXISTING AVIATION FACILITIES. In responding to a specific disaster, there may be multiple locations available for use as an aviation staging area. The choice of the "best" location can be made on a quicker and more reliable basis if the deciding official has rapid access to current information on the available facilities. (See also FAA AC00-7, State and Regional Disaster Airlift (SARDA) Planning, for additional guidance on this issue.)
a. Location and Services.
With regard to existing facilities, it is important to note not only their location, but the services, supplies, and other aviation amenities they may have to offer. Of particular interest is the availability of aviation fuel. Regularly 42 11/13/98 published Flight Information Publications (FLIP) are excellent sources of information on existing facilities, and are readily available from the FAA and the National Oceanic and Atmospheric Administration (NOAA).
b. Medical or First Aid Facilities. Another area of interest is the medical or first-aid facilities located nearby and the direction, distance, and recommended routes to and from the nearest hospitals and trauma centers.
Many air medical transport services have already surveyed their regions and developed "predesignated landing zones." Such listings, where available, can be very helpful. Provide this last information to all police and fire units, as well as all ambulance services in the area.
c. Hotels and restaurants.
Survey and document motels and restaurants adjacent to aircraft landing sites. This information can be essential in supporting relief personnel for extended operations during a lengthy relief effort.
d. Constraints Posed by Annual Events. Facility XYZ may be ideal as an aviation staging area for almost any disaster in a particular county. However, consider that this may be the location of a high-priority annual event (state fair, Kentucky Derby, Indianapolis 500, etc.) that is likely to take place even in the face of a disaster. Such events and their time schedules should be documented so that disaster relief planners can consider choosing the second-best staging area during the time of this annual event.
AC 00-59
55. SPECIAL ARRANGEMENTS
WITH HELIPORT OWNERS AND OPERATORS. If private-use heliports are to be incorporated into the disaster response plan, it will probably be necessary to make special arrangements with the owners or operators. Usually, there are significantly more private-use heliports than public-use heliports in any given area. Thus, the use of such special arrangements may yield a broader-based heliport system that can better meet the needs of the community in the event of a disaster. This may also prove useful during lesser emergencies.
56. DEVELOPMENT OF PUBLIC-
USE HELIPORTS AND VERTIPORTS. In many parts of the country, the number or distribution of landing sites in the area is inadequate to meet the requirements of the planned disaster response. Where this is the case, make a concerted effort to develop public-use heliports and vertiports to assure that they are established where they are needed. Not only would such a program enhance the community's ability to respond to disasters, but it would also provide business and transportation benefits to the public under normal, everyday conditions.
Under the auspices of the FAA's National Plan of Integrated Airport Systems (NPIAS), the FAA's Airport Improvement Program (AIP) can provide grants of up to 90 percent for planning and construction of public-use heliports, vertiports, and airports. For assistance in developing public-use heliports and vertiports, contact the FAA Regional Heliport Coordinator (see Section 2 of Appendix A), the state aviation department, and the local (city or county) planning department.
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57. PREDESIGNATION OF
EMERGENCY-USE-ONLY LANDING SITES. It is advisable to pre-designate as many energency-useonly landing zones as possible in parks, ball fields, parking lots, vacant lots, etc.
This will augment the network of established landing facilities and expand the coverage of a potential vertical flight response. The same set of site selection criteria should be applied to the choice and designation of these sites as suitable emergency landing fields and helicopter and tiltrotor staging areas. For area hospitals with small (or no) helipads on the premises, sites to handle overflow aircraft operations should also be identified and designated as auxiliary landing zones. These may include sites that can be temporarily blocked off in nearby fields, parking lots, and roads.
58. DOCUMENTATION OF LANDING SITES. As the existing and potential landing zones in the jurisdiction are being identified, it is then necessary to document them.
Collect the pertinent data and consolidate them in a directory to be used by helicopter and tiltrotor pilots.
Include photographs and/or drawings of the rooftops of all high-rise buildings in the area that are beyond the reach of ground-based fire fighting and rescue apparatus. Local helicopter pilot organizations or operators will usually be happy to assist in putting this information into a standardized form.
Prepare a directory of maps and charts, drawings and/or aerial photos of landing zone locations and layouts and send copies to all concerned. Revise and distribute this document as often as 43
necessary to keep pace with new construction and other geographical changes. Consider the use of a computerized database for greater efficiency in using and updating these data.