AC 109-1 DATE 3/3/82
ADVISORY CIRCULAR
DEPARTMENT OF TRANSPORTATION Federal Aviation Administration Washington, D.C.
FAR GUIDANCE MATERIAL Subject: AVIATION SECURITY - ACCEPTANCE AND HANDLING PROCEDURES - INDIRECT
AIR CARRIER SECURITY PURPOSE. This circular provides information and quidance which should be used by "indirect air carriers" when accepting and handling property to he carried by "air carriers" or by the operator of any civil aircraft for transportation in air commerce.
2. CANCELLATION. AC 121-19, dated March 17, 1976, subject as above, is cancelled.
RELATED READING MATERIAL. Title 14, Code of Federal Requlations (CER), Chapter II, Part 296, contains rules pertaining to the classification and exemption of indirect air carriers and air freight forwarders respectively. Title IX, section 902(h) (2), of the Federal Aviation Act of 1958, and Title I, section 110(b) of the Hazardous Materials Transportation Act, sets forth criminal penalties governing persons who deliver or cause to be delivered hazardous materials to air States registry anywhere in air commerce.
4. BACKGROUND.
General. Over the past several years, bomb incidents at New York, Miami, Los Angeles, Sacramento, and Washington National Airports, the destruction by bombs of passenger aircraft in the air and on the ground, and the discovery of active bombs in passenger checked baggage and in air cargo facilities has consistently demonstrated the need for adequate security measures which will preclude an explosive device being introduced into the air transportation system. further, mishandling, mispackaging, and mislabeling of hazardous materials carried in air transportation has posed significant risks to the air traveling public and transportation workers. The public expects security measures which will ensure a safe and secure flight as well as strict compliance with applicable hazardous Initiated by: ACS-100
materials requlations. Although the security measures presently in use have brought about a reduction in scheduled air carrier hijackings, the number of sabotage and hazardous materials incidents have increased to a point where the industry needs to give priority attention to the application of positive and practical measures desioned to assure safe air transportation. It is vital that the air transportation industry implement improved and effective security and hazardous materials measures which are economically acceptable, operationally sound, and will ensure safe air transportation.
b. Air Carriers. Air carriers are presently required to have security procedures by which they are required to assure that baggage is checked in by a responsible agent or representative and prevent checked baggage and cargo from being loaded aboard their aircraft unless handled in accordance with their procedures. FAA approved air carrier security programs now in effect are designed to prevent unauthorized access to checked baggage and cargo, to preclude tampering with or adding to the content of the baggage, and to assure that baggage is accepted only from ticketed passengers. These programs also contain procedures for the safeguarding of cargos, including small package service cargo. Procedures now in effect appear adequate once the property is in the custody of an air carrier.
Previously, a need was identified to assure that the property received by the air carrier does not contain bombs or other expiosive devices. 1o achieve that goal, the FAA issued Federal Aviation Requlations, Part 109, on December 13, 1979, which requires each indirect air carrier to adopt and carry out a security program that is designed to prevent or deter the unauthorized introduction of any explosive or
5. DEFINITIONS. For the purpose of this Advisory Circular the following definitions apply:
a. Air Carrier. An air carrier is a U.S. or foreign air carrier (operations departing or within the U.S. only) directly engaged in the operation of aircraft pursuant to a Certificate of Public Convenience and Necessity, foreign air carrier permit, or other economic authority issued by the Civil Aeronautics Board or the holder of an Air Carrier Operating Certificate or an Operating Certificate issued by FAA.
b. Indirect Air Carrier. An indirect air carrier means any person in the territorial jurisdiction of the United States who undertakes indirectly to engage in the air transportation of package cargo when that property is to be or may be delivered for carriage aboard an air carrier. Indirect air carrier does not mean a corporation that maintains and uses its own truck(s) to deliver property manufactured by that corporation for carriage aboard an air carrier.
c. Package Cargo. Package cargo is that property tendered to, and accepted by, an indirect air carrier which is or may be intended for transportation aboard an air carrier. Excepted from this category is cargo such as cash, instruments, 2 Par 4
film, documents, or other gods exclusively contracted for by known commercial clients and easily recognizable as such items.
d. Civil Aircraft. Any aircraft other than one used exclusively in the service of any government or of any political subdivision thereof, except a government owned aircraft engaged in carrying persons or property for commercial purposes would be a civil aircraft.
e. Air Commerce. Means interstate, overseas, or foreign air commerce or the transportation of mail by aircraft or any operation or navigation of aircraft within the limits of any Federal airway or any operation or navigation of aircraft which directly affects, or which may endanger safety in interstate, overseas, or foreign air commerce.
6. ACTION.
a. Standard Security Program. As mentioned above, to reduce the possibilities of an act of sabotage, including an in-flight bomb explosion, the FAA found it necessary through issuance of FAR Part 109 to require all indirect air carriers to put into use a security system acceptable to the Administrator which is intended to prevent or deter the introduction of any unauthorized explosive or incendiary device into package cargo intended for shipment by air. A Standard Security Program which meets the requirements of Part 109 is available to authorized representatives of indirect air carriers. Requests for copies of the aforementioned security program should be directed to regional Civil Aviation Security Divisions or appropriate Civil Aviation Security Field Offices having jurisdiction over the geographical areas involved. A mailing list of these offices is enclosed as Appendix 1. Persons accepting items destined for shipment aboard aircraft other than "indirect air carriers" are encouraged to voluntarily implement the procedures encompassed by the Standard Security Program. Inasmuch as the procedures encompassed by the SSP are not subject to discussion in a publication of this type, FAA will provide technical assistance, as necessary, to facilitate implementation.
b. Hazardous Materials Training Program. If an indirect air carrier accepts and handles packages containing hazardous materials, a training program is essential in order to assure compliance with all applicable requlations. If an indirect air carrier or other shipper elects to implement a policy not to accept.
hazardous materials for transportation, a limited training program is still necessary. The program should include instructions on the recognition of hazardous materials and procedures to assure that such materials are not accepted. If requested, the FAA will be available to assist as necessary in the development of a hazardous materials training program.
(1) Program Necessity. Operating experience in the transportation of hazardous materials has revealed several incidents involving improper packagina, Par 5 3
marking, labeling, certification, handling, and consolidation of dangerous articles offered to certificate holders for carriage in air commerce. A review of information available to the FAA has disclosed that personnel of indirect air carriers who handle hazardous materials are not always aware of, or familiar with, he applicable DOT Requlations prescribed in 49 CFR, Parts 100-199, Hazardous ateriais Requlations (HMR). A training program is recommended to insure that indirect air carrier personnel responsible for accepting, packaging, consolidating, or otherwise handling hazardous materials are adequately trained.
(2) Initial Training. Initial training should be accomplished upon assignment to such duties with recurrent training scheduled annually. Training, as a minimum, should include the following:
(i) Procedures to ensure that all cargo accepted from shippers is in compliance with requirements for the proper packing, marking, labelina, classification, and shipping documentation as required by 49 CFR.
(ii) Specific requirements delineated in 49 CFR for the type(s) of hazardous materials being handled by the indirect air carrier for air transport.
(iii) Selected package cargo procedures.
(iv) Container loading procedures.
(v) Cargo and makeup area security.
(vi) Procedures for handling consolidated shipments.
(vii) Procedures for transfer of cargo from indirect air carrier to direct air carrier including procedures to ensure that hazardous materials are properly identified to the air carrier.
(viii) The compatibility, loading, storage, and handling characteristics of hazardous materials.
c. Area of Consideration. An indirect air carrier is required to apply security safeguards established by the FAA to prevent or deter the introduction of any explosive or incendiary device into the air transportation system when package cargo is accepted from other than known shippers at the geographical locations listed in the Indirect Air Carrier Standard Security Program, Appendix I.
CONCLUSION. While implementation of the security procedures set forth in Part 109 and recommended herein may increase the indirect air carrier's cost, it is believed that these costs will be offset to a certain extent through a possible reduction in pilferage problems; but an even greater benefit may accrue to the indirect air carrier or other shipper through assurance of a high level of 4 Par 6
protection against public endangerment through unauthorized introduction of explosives, incendiary devices, or other potentially hazardous materials into passenger carrying aircraft. FAA believes that prudent indirect air carriers and others with a sense of public responsibility, regardless of requlatory requirements, will want to institute these safeguards to further assure the safety and security of the air traveling public.
Rickard t Lally RICHARD F. LALLY Director of Civil Aviation Security Par 7 5 (and 6)
Appendix 1
REGIONS CASFO/CASFU'S
FAA ALASKAN REGION Civil Aviation Security Division, AAL-700 701 C Street, P.O. Box 14 Anchorage, Alaska 99513 Commercial: 907-271-5557 FTS: 8-907-271-5557 Civil Aviation Security Field Office - ANC CASFO P.O. Box 6478 Anchorage, Alaska 99502 Commercial: 907-243-4338 FTS: 8-907-243-4338
FAA CENTRAL REGION Civil Aviation Security Civil Aviation Security Division, ACE-700 Field Office - MCI CASFO 601 East 12th Street P.O. Box 20003 Kansas City, Missouri 64106 Kansas City, Missouri 64195 Commercial: 816-374-3901 Commercial: 816-243-3820 FTS: 8-758-3901 FTS: 8-754-3820 Civil Aviation Security Field Office - STI, CASFO 4534 North Lindberg Boulevard Suite 431 Bridgeton, Missouri 63044 Commercial: 314-425-7050 FTS: 8-279-7050
FAA EASTERN REGION Civil Aviation Security Division, AEA-700 Federal Building #111 JFK International Airport Jamaica, New York 11430 Commercial: 212-995-9520 FTS: 8-665-9520 Civil Aviation Security Field Unit - BAL CASFU Pier C - Baltimore-washington International Airport Baltimore, Maryland 21240 Commercial: 301-962-2795 FTS: 8-922-2795 Civil Aviation Security Field Unit - EWR CASFU United Airlines Hangar #14, Room #2 Newark Airport Newark, New Jersey 07114 Commercial: 201-645-3701 FTS: 8-341-3701 1
Appendix 1
REGIONS CASFO/CASFU'S FAA FASTERN REGION (Continued) Civil Aviation Security Field Office - DCA CASFO Room 11, Commuter Terminal Washington National Airport Washington, D.C. 20001 Commercial: 703-557-0265 FTS: 8-557-0265 Civil Aviation Security Field Unit - IAD CASFU Box 17174 Dulles International Airport Washington, D.C. 20041 Commercial: 703-285-2539 FTS: 8-557-0266 Civil Aviation Security Field Office - JFK CASFO Building #141, Room 260 JFK International Airport Jamaica, New York 11430 Commercial: 212-995-7080 FTS: 8-665-7080 Civil Aviation Security Field Unit - LGA CASFU United Airlines Hangar #2 Room 322, La Guardia Airport Flushing, New York 11371 Commercial: 212-995-2860 FIS: 8-665-2860 Civil Aviation Security Field Office - PIT CASFO P.O. Box 12315 Administration Building Greater Pittsburgh Int'1 Airport Pittsburgh, Pennsylvania 15231 Commercial: 412-644-2845 FIS: 8-722-2845 2
Appendix 1
REGIONS FAA EASTERN REGION (Continued)
FAA GREAT LAKES REGION Civil Aviation Security Division, AGL-700 2300 East Devon Avenue Des Plaines, Illinois 60018 Commercial: 312-694-7412 FTS: 8-384-7412
CASFO/CASFU'S Civil Aviation Security Field Office - PHL CASFO TWA Hangar, Room 310 Philadelphia International Airport Philadelphia, Pennsylvania 19153 Commercial: 215-596-1970 FTS: 8-596-1970 Civil Aviation Security Field Office - ORD CASFO Room 158 2300 East Devon Avenue Des Plaines, Illinois 60018 Commercial: 312-694-7289 FTS: 8-384-7289 Civil Aviation Security Field Office - CLE CASFO Cleveland Hopkins Int'1 Airport Room 104, Federal Facilities Bldg.
Cleveland, Ohio 44135 Commercial: 216-433-7262 FTS: 8-293-4031 Civil Aviation Security Field Office - DIW CASFO James M. Davey, North Terminal Mezzanine Detroit Metropolitan Airport Detroit, Michigan 48242 Commercial: 313-941-1176 FIS: 8-372-3298 Civil Aviation Security Field Office - MSP CASFO Room 112 6301 34th Avenue, South Minneapolis, Minnesota 55450 Commercial: 612-725-3410 FTS: 8-725-3410 3
AC 109-1 Appendix 1
REGIONS
FAA NEW ENGLAND REGION Civil Aviation Security Division, ANE-700 12 New England Executive Park Burlington, Massachusetts 01803 Commercial: 617-273-7352 FTS: 8-836-1352
FAA NORTHWEST MOUNTAIN REGION Civil Aviation Security Division, ANM-700 Boeing Field, FAA Building Seattle, Washington 98108 Commercial: 206-767-2555 FTS: 8-396-3555 4 3/3/82
CASFO/CASFU'S Civil Aviation Security Field Office - SEA CASFO Room 426, Administration Building Seattle-Tacoma Int'l Airport Seattle, Washington 98158 Commerical: 206-767-2580 FIS: 8-396-2580 Civil Aviation Security Field Office - DEN CASFO 10455 East 25th Avenue Aurora, Colorado 80010 Commercial: 303-837-2335 FTS: 8-326-2335 Civil Aviation Security Field Office - SLC Post of Duty P.O. Box 22094 Salt Lake City Int'1 Airport AMF Salt Lake City, Utah 84122 Commerical: 801-524-4032 FTS: 8-588-4032 Civil Aviation Security Field Office - BIL, Post of Duty Room 205 Billings Logan Int'l Airport Rillings, Montana 59101 Commerical: 406-657-6236 FIS: 8-585-6236
Appendix 1
REGIONS CASFO/CASFU S
FAA SOUTHERN REGION Civil Aviation Security Civil Aviation Security Division, ASO-700 Field Office - MIA CASFO P..O. Box 20636 P.O. BOx 592336 Atlanta, Georgia 30320 Miami, Florida 33159 Commercial: 404-763-7271 Commercial: 305-871-5506 FTS: 8-246-7271 FTS: 8-350-2638 Civil Aviation Security Field Office - SJU CASFO Second Floor, Room 200 Puerto Rico International Airport San Juan, Puerto Rico 00913 Commercial: 809-791-3582 FTS: 8-809-791-3582 Civil Aviation Security Field Office - TPA CASFO P.O. Box 22541 Tampa International Airport Tampa, Florida 33622 Commercial: 813-879-3900 FTS: 8-826-2570 Civil Aviation Security Field Office - ATL CASFO 1568 Willingham Drive Suite D, Room 111 College Park, Georgia 30337 Commercial: 404-763-7871 FTS: 8-246-7871 5
Appendix 1
REGIONS CASFO/CASFU'S
FAA SOUTHWEST REGION Civil Aviation Security Civil Aviation Security Division, ASW-700 Field Office - DFW CASFO P.O. BOx 1689 P.O. BOx 61289 Fort Worth, Texas 76101 Parkway Plaza Commercial: 817-624-4911 x217 DEW Airport Station FTS: 8-736-9217 Dallas, Texas 75261 Commercial: 214-574-2115 FTS: 8-741-2115
FAA WESTERN-PACIFIC REGION Civil Aviation Security Civil Aviation Security Division, AWP-700 Field Office - LAX CASFO P.O. Box 92007 P.O. 45018 Worldway Postal Center Worldway Postal Center Los Angeles, California 90009 Los Angeles, California 90045 Commercial: 213-536-6325 Commercial: 213-642-5180 FTS: 8-966-6325 FTS: 8-966-5180 Civil Aviation Security Field Office - SFO CASFO 831 Mitten Road Burlingame, California 94010 Commercial: 415-876-2853 FTS: 8-466-2853