An Airport Guide for Regional Emergency Planning for CBRNE Events (2009)

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TRANSPORTAT ION RESEARCH BOARD WASHINGTON, D.C. 2009 www.TRB.org A I R P O R T C O O P E R A T I V E R E S E A R C H P R O G R A M ACRP REPORT 12 Research sponsored by the Federal Aviation Administration Subject Areas Aviation • Security An Airport Guide for Regional Emergency Planning for CBRNE Events Hollis Stambaugh TRIDATA, A DIVISION OF SYSTEM PLANNING CORPORATION Arlington, VA W I T H Daryl Sensenig Teresa Copping Maria Argabright Joseph Ockershausen TRIDATA, A DIVISION OF SYSTEM PLANNING CORPORATION Arlington, VA Lisa Spencer TRANSSOLUTIONS Washington, DC

AIRPORT COOPERATIVE RESEARCH PROGRAM Airports are vital national resources. They serve a key role in trans- portation of people and goods and in regional, national, and inter- national commerce. They are where the nation’s aviation system connects with other modes of transportation and where federal respon- sibility for managing and regulating air traffic operations intersects with the role of state and local governments that own and operate most airports. Research is necessary to solve common operating problems, to adapt appropriate new technologies from other industries, and to introduce innovations into the airport industry. The Airport Coopera- tive Research Program (ACRP) serves as one of the principal means by which the airport industry can develop innovative near-term solutions to meet demands placed on it. The need for ACRP was identified in TRB Special Report 272: Airport Research Needs: Cooperative Solutions in 2003, based on a study spon- sored by the Federal Aviation Administration (FAA). The ACRP carries out applied research on problems that are shared by airport operating agencies and are not being adequately addressed by existing federal research programs. It is modeled after the successful National Coopera- tive Highway Research Program and Transit Cooperative Research Pro- gram. The ACRP undertakes research and other technical activities in a variety of airport subject areas, including design, construction, mainte- nance, operations, safety, security, policy, planning, human resources, and administration. The ACRP provides a forum where airport opera- tors can cooperatively address common operational problems. The ACRP was authorized in December 2003 as part of the Vision 100-Century of Aviation Reauthorization Act. The primary partici- pants in the ACRP are (1) an independent governing board, the ACRP Oversight Committee (AOC), appointed by the Secretary of the U.S. Department of Transportation with representation from airport oper- ating agencies, other stakeholders, and relevant industry organizations such as the Airports Council International-North America (ACI-NA), the American Association of Airport Executives (AAAE), the National Association of State Aviation Officials (NASAO), and the Air Transport Association (ATA) as vital links to the airport community; (2) the TRB as program manager and secretariat for the governing board; and (3) the FAA as program sponsor. In October 2005, the FAA executed a contract with the National Academies formally initiating the program. The ACRP benefits from the cooperation and participation of airport professionals, air carriers, shippers, state and local government officials, equipment and service suppliers, other airport users, and research orga- nizations. Each of these participants has different interests and respon- sibilities, and each is an integral part of this cooperative research effort. Research problem statements for the ACRP are solicited periodically but may be submitted to the TRB by anyone at any time. It is the responsibility of the AOC to formulate the research program by iden- tifying the highest priority projects and defining funding levels and expected products. Once selected, each ACRP project is assigned to an expert panel, appointed by the TRB. Panels include experienced practitioners and research specialists; heavy emphasis is placed on including airport pro- fessionals, the intended users of the research products. The panels pre- pare project statements (requests for proposals), select contractors, and provide technical guidance and counsel throughout the life of the project. The process for developing research problem statements and selecting research agencies has been used by TRB in managing cooper- ative research programs since 1962. As in other TRB activities, ACRP project panels serve voluntarily without compensation. Primary emphasis is placed on disseminating ACRP results to the intended end-users of the research: airport operating agencies, service providers, and suppliers. The ACRP produces a series of research reports for use by airport operators, local agencies, the FAA, and other interested parties, and industry associations may arrange for work- shops, training aids, field visits, and other activities to ensure that results are implemented by airport-industry practitioners. ACRP REPORT 12 Project 5-01 ISSN 1935-9802 ISBN: 978-0-309-11772-2 Library of Congress Control Number 2009900797 © 2009 Transportation Research Board COPYRIGHT PERMISSION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB or FAA endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. NOTICE The project that is the subject of this report was a part of the Airport Cooperative Research Program conducted by the Transportation Research Board with the approval of the Governing Board of the National Research Council. Such approval reflects the Governing Board’s judgment that the project concerned is appropriate with respect to both the purposes and resources of the National Research Council. The members of the technical advisory panel selected to monitor this project and to review this report were chosen for recognized scholarly competence and with due consideration for the balance of disciplines appropriate to the project. The opinions and conclusions expressed or implied are those of the research agency that performed the research, and while they have been accepted as appropriate by the technical panel, they are not necessarily those of the Transportation Research Board, the National Research Council, or the Federal Aviation Administration of the U.S. Department of Transportation. Each report is reviewed and accepted for publication by the technical panel according to procedures established and monitored by the Transportation Research Board Executive Committee and the Governing Board of the National Research Council. The Transportation Research Board of the National Academies, the National Research Council, and the Federal Aviation Administration (sponsor of the Airport Cooperative Research Program) do not endorse products or manufacturers. Trade or manufacturers’ names appear herein solely because they are considered essential to the clarity and completeness of the project reporting. Published reports of the AIRPORT COOPERATIVE RESEARCH PROGRAM are available from: Transportation Research Board Business Office 500 Fifth Street, NW Washington, DC 20001 and can be ordered through the Internet at http://www.national-academies.org/trb/bookstore Printed in the United States of America

CRP STAFF FOR ACRP REPORT 12 Christopher W. Jenks, Director, Cooperative Research Programs Crawford F. Jencks, Deputy Director, Cooperative Research Programs Michael R. Salamone, ACRP Manager S. A. Parker, Senior Program Officer Eileen P. Delaney, Director of Publications Maria Sabin Crawford, Assistant Editor ACRP PROJECT 5-01 PANEL Field of Security Robert P. Olislagers, Arapahoe County (CO) Public Airport Authority, Englewood, CO (Chair) H. Norman Abramson, Southwest Research Institute, San Antonio, TX Dave Cardenas, Los Angeles World Airports, Los Angeles, CA K. Scott Kimerer, City of Burien, Burien, WA Mike Mandella, Port of Seattle Fire Department, Seattle, WA Julie Raines, Northern Kentucky University, Highland Heights, KY Gina C. Wesley, University of Louisville, Louisville, KY Paul L. Friedman, FAA Liaison Michael West, TSA Liaison John V. Barson, Centers for Disease Control and Prevention Liaison Joseph Lafornara, Environmental Protection Agency Liaison Joedy W. Cambridge, TRB Liaison Christine Gerencher, TRB Liaison AUTHOR ACKNOWLEDGMENTS The research reported herein was performed under Airport Cooperative Research Program (ACRP), Project 5-01, FY 2006 by the TriData Division of System Planning Corporation, Arlington, Virginia. Hollis Stambaugh was the Project Director, Principal Investigator, and author of this report. Co- investigators for the project included Daryl Sensenig, senior analyst Joseph Ockershausen, research associate Lorrie Jacobsen, Rocco Cassagrande, from subcontractor Gryphon Scientific, and Lisa Spencer, from subcontractor TransSolutions. Teresa Copping served as administrative assistant, and Maria Argabright assisted with the final report. C O O P E R A T I V E R E S E A R C H P R O G R A M S

ACRP Report 12: An Airport Guide for Regional Emergency Planning for CBRNE Events addresses the details airports should cover in their hazard and threat assessments and in their Airport Emergency Plans (AEPs) and Annexes so that response to significant incidents can be more thoroughly and accurately planned. It also discusses special issues involving terrorist use of chemical, biological, radiological, nuclear, or explosive (CBRNE) materials targeted to air- ports, and the mutual aid that would be drawn from beyond the immediate locale. The results of an airport survey on preparedness and the highlights from selected AEPs are presented for consideration by other airports. Also, federal emergency preparedness standards are compared to the provisions of AEPs in general, with suggestions on priorities for upgrading AEPs to meet those standards. This report documents and presents the results of a study on airport emergency prepared- ness, why AEPs need to be coordinated with the strategic and tactical disaster plans of sur- rounding jurisdictions, and how those regional mutual aid partners can contribute to air- port preparedness for major incidents. The report also addresses making AEPs compliant with the National Response Framework and the National Incident Management System. Eighteen AEPs were analyzed. Responses to a questionnaire on airport capabilities for emer- gency response informed the research, along with a collection of after-action reports and industry standards. The findings of the study suggest that while airports currently coordi- nate with local first responders at some level, wider connections with other regional part- ners, and more varied joint training exercises and assets are needed to maximize the pro- tection of people and property at airports and to streamline mutual aid in the event of a major incident. Moreover, AEPs, in general, need a more detailed plan for addressing a wider range of threats and hazards, to better define an emergency operations center, and to provide assistance to families in the event of casualties at the airport. The Tri-Data division of System Planning Corporation prepared this report for TRB under ACRP Project 5-01. ACRP has the following related works: • ACRP Project 4-04, “Exercising Command-Level Decision Making for Critical Incidents at Airports.” • ACRP Report 5: Quarantine Facilities for Arriving Air Travelers: Identification of Planning Needs and Costs. Readers are advised to access capsule descriptions and links to a variety of emergency management, infrastructure protection, and security-related items published by TRB at www.TRB.org/SecurityPubs. F O R E W O R D By S. A. Parker Staff Officer Transportation Research Board

C O N T E N T S 1 Summary 5 Chapter 1 Background 7 Chapter 2 Research Approach 9 Chapter 3 Findings 10 Special Considerations for CBRNE 16 Upgrading AEPs and Coordinating with Other Jurisdictions 21 Discussion of Airport Survey Results 24 Highlights and Ideas from Selected AEPs 29 Chapter 4 Conclusions, Recommendations, and Suggested Research 29 Conclusions 29 Recommendations 30 Suggested Research 31 Chapter 5 Literature Review and Bibliography: Applicable Laws, Rules, Regulations, and Standards Related to Emergency Planning and Disaster Response at Airports 31 U.S. Department of Transportation 32 U.S. Department of Homeland Security (DHS) 32 Transportation Security Administration 33 Department of Labor 33 Environmental Protection Agency 33 National Fire Protection Association Standards 35 Other Publications of Interest 36 List of Acronyms 37 Appendix A Questionnaire 39 Appendix B AEP and NIMS Evaluation Matrix