AD-24-1 -479,

Guid line for_ 'DOT/FAAIRD-90/1 1Research-and Developm ent ServiceIntegrating Helicopter Washington, D.C. 20591

Assets, into 1Em rec -Sandra Henninger

IPlanning.JcSystems Ountrol Technology, Inc.1611 -N.-Kent Street,-Suite 910-Arlington,_VA 22209

Final Report

Catherine Adams

-Advanced Aviation Concepts1035-6 Sandy-Run Road

U.S Deportment, Jupiter,-F-L 33478of Transportation This document-is available-to the publicFederallAviation through the, National Technical Information,Administration -Service, Springfield'- Virginia 22161. July 1991

1, C-7

~ tTIN TAh~E T .A-- ---E

-pflltdue 11 lM td

This document is distributed under thesponsorship of the U.S. Department ofTransportation in the interest of informationexchange. The United States Governmentassumes no liability for the contents or usethereof.

Cover photo courtesy of Mike M. Ahlers ofThe Montgomery Journal, Rockville, MD.

-USDepartment 800 Independence Ave. S W

of TrQnspotation Washington. D C. 20591

Federal AviationAdministration

Dear Colleaque,

In the last four decades, helicopters have proven their value tocommunities when disaster strikes. And yet, all too often peoplesimply assume helicopters will appear at an emergency. The truthis that, without careful emergency planning, rotorcraft may notappear or if they do, might not be used to their full potentialand the maximum community benefit. Consequently, emergencyplanners often do not take the best advantage of helicopter assetswithin their planning area. Often there are public service,private, and military helicopters that may be available to helpdeal with a crisis situation. Helicopters and their complementaryheliports are indeed community assets that require advance planningfor their most effective use.

Enclosed, you will find a copy of the final report, "Guidelines forIntegrating Helicopter Assets into Emergency Planning." Theseguidelines are based on accepted disaster planning concepts,tempered with "lessons learned" through the analysis of 18 casehistories ("Rotorcraft Use in Disaster Relief and Mass CasualtyIncidents - Case Studies," DOT/FAA/RD-90/10, June 1990). Theguidelines contain recommendations on how to best integratehelicopters into existing emergency planning in order to providemaximum protection and life saving services in the community.Further information is provided on developing an inventory ofhelicopter resources; surveying helicopter operators capabilities;determining communication capabilities and requirements;designating, establishing, and controlling landing zones; andimplementing a planned helicopter response.

You are free to make copies of the guidelines or you can requestadditional copies from:

Federal Aviation AdministrationVertical Flight Program Office, ARD-30ATTN: Robert D. Smith800 Independence Avenue, S.W.Washington, D.C. 20591

The earlier case studies report may also be requested from theabove office while supplies last. Alternatively, it can be orderedfrom: National Technical Information Service (NTIS), Springfield,VA 22161, phone (703) 487-4650, government accession number AD- r-mA229401.

91-13139

In addition, two video tapes were produced which address theintegratibn of helicopters in emergency planning:

Guidelines for Integrating Helicopters into Emergency Planning;General Audience version, run time 13:00, cost = $10.00.

The Guidelines video explores the basic elements of planning forhelicopter usage. It provides an introduction to the variety ofmissions that helicopters can perform as well and highlights planpreparation, resource inventory, communications, landing areas,and plan implementation. The video has a catchy comic stripopening and all audiences should enjoy and benefit from viewingthis video.

Success by Design... Integrating Helicopters into EmergencyPlanning; Instructional view of guidelines, run time 21:04, cost= 910.00.

Emergency planners, emergency rescue workers, and helicopteroperators will learn the approach to integrating helicopters intoemergency planning. The tape introduces each of the planningelements: plan preparation, resource inventory, communications,landing areas, and plan implementation. This video covers each ofthe planning elements in greater detail than the general audienceshow. It introduces the audience to the various missionshelicopters can perform, discusses common misconceptions abouttheir capabilities, and provides examples of where they have beenused successfully.

Video tapes are $10.00 each which includes postage and handling.You are free to make copies of the video tapes as well, but highervideo quality can be maintained by reordering original tapes. Forrequests from outside the North American continent, other videoformats (such as PAL/SECAM) are available on request at a highercost.) Videos can be obtained by sending a check, money order, orgovernment purchase order and by specifying the exact title of thevideo as it is shown above to:

Media Associates, Inc. Phone 1-800-628-3556Attn: V.G. Jordan or 1-703-866-6100P.O. Box 5747Springfield, VA 22150-5747

After you have reviewed the guidelines, please take the time tocomplete the enclosed response form. We would like to know whetherthe guidelines are useful to you and your community.

We hope that these guidelines assist you and your community indetermining your available helicopter resources and how to bestintegrate these special aircraft into your emergency plans.

ii

RESPONSE FORM

Guidelines for Integrating Helicopter Assets into EmergencyPlanning, DOT/FAA/RD-90/ll, July 1991. We are interested in youropinions. Please take a moment to answer *the following questions:

What are your comments on the guidelines:

What are your comments on the associated videotapes:

Have you already considered helicopters in your disaster planning?

What use do you expect to make of this report and the associatedvideotapes?

What should the Federal Aviation Administration consider in termsof future work on issues related to rotorcraft use in disasterrelief? Please feel free to comment widely as we will use yourcomments to identify requirements for further studies.

You may also use this response form to request additional copiesof the written reports:

Rotorcraft Use in Disaster Relief and Mass CasualtyIncidents - Case Studies, DOT/FAA/RD-90/10, June 1990.

Guidelines for InteQrating Helicopter Assets intoEmerQency Planning, DOT/FAA/RD-90/ll, July 1991.

iii

US Deporrmen: I I NO POSTAGEof it iii Iow NECESSARY

Adfltratofl N TNv-~~~ IIF PAILED

BUSINESS REPLY MAILFIRST CLASS PERMIT NO 12438 WASHINGTON 0DC

De-ai, to, P',.a:e Ue $300 POSTAGE WILL SE PAID ey FEDERAL AVIATON A016PII$TOATION

Federal Aviation AdministrationARD-30 Vertical Flight Program OffliceATTN: Robert 0. Smith800 Independence AvenueWashington. D.C. 20591

iv

Technical Report Documentation Page

1. Report No. I 2. Government Accession No. 3. Recipient's Catalog No.D)OT/FAA/RD-90/1-1

4. Title and Subtitle 5. Report DateJuly 1991

Guidelines For Integrating Helicopter Assets Into 6. Peformlng Orgazaton Code"

Emergency Planning7. Author (s) 8. Performing Organization Report No.

Sandra-Henninger and Jack Thompson (SCT), 91 RR-1 8Catherine Adams (AAC)

9. Performing-Organization Name and Address 10. Work Unit No. (TRAIS)Systems Control Technology, Inc.1611 North Kent Street, Suite 910 11. Contract or Grant No.Arlington, Virginia 22209 DTFA01-87-C-00014

12. Sponsoring Agency Name and Address 13. Type Report and Period CoveredU.S. Department of Transportation Final ReportFederal Aviation Administration _.

800 Independence Avenue, S.W. 14. Sponsoring Agency CodeWashington. D.C. 20591 ARD - 30

15. Supplementary Notes

ARD - 30 Vertical Flight Program Office

16. Abstract

In the last four decades, helicopters have proven their value to communities when disaster strikes. Andyet, all too often people simply assume helicopters will appear at an emergency. The truth is, withoutcareful emergency planning, rotorcraf! may not appear or if they do, might not be used to their fullpotential and the communities' maximum benefit. Consequently, emergency planners often do not takethe best advantage of helicopter assets within their planning area, in the form of public service, private,and military helicopters, that may be available to help tnem deal with a crisis situation. Helicopters andtheir complementary heliports are indeed community assets which require advance planning for theirmost effective use.

These guidelines are based on accepted disaster planning concepts, tempered with "lessons !earned"through the analysis of 18 case histories ("Rotorcraft Use in Disaster Relief and Mass CasualtyIncidents - Case Studies," DOT FA.NRD-90110, June 1990). The guidelines contain recommendationson how to best integrate helicopters into existing emergency planning in order to provide maximumprotection and lifesaving services in the community. Further information is provided on developing aninventory of helicopter resources, surveying helicopter operators capabilities, determiningcommunication capabilities and requirements, designating, establishing, and controlling landing zones,and implementing a planned helicopter response.

17. Key Words Heliport 18. Distribution Statement

Rotorcraft Emergency Preparedness This document is available to the publicHelicopter Emergency Planning through the National Technical Information

Communication Mass Casualty Incident Service, Springfield, Virginia 22161.Disaster Relief Landing Area

19. Security Classif. (of this report) 20. Security Classif. (of this page) 21. No. of Pages 22. Price

Unclassified Unclassified 62

Form DOT F 1700.7 (8-72) Reproduction of this document Is authorized

v

IrI

DEDICATION

This document is dedicated to all therotorcraft pilots who have been involved indisaster relief efforts over the years. Itis also dedicated to two individuals who haveled the way with their pioneering efforts toshow how rotorcraft can and should be used tobenefit the community at large:

Harry J. GaynorNational Burn Victim FoundationOrange, New Jersey

Paul R. PowersBell Helicopter Textron Inc.Dallas/Fort Worth HelicopterEmergency Lifesaver Plan (HELP)

vi

TABLE OF CONTENTS

Chapter 1 Introduction ...................................... 1The Need for Guidelines .................................... 3Guideline Goals ............................................. 4Assumptions ................................................. 6Operational Priorities ..................................... 8Potential Helicopter Missions in Support of The

Disaster/MCI Relief Effort ........................... ..... 8

Chapter 2 Plan Preparation .................................. 13Basics ..................................................... 13Alert Levels ............................................... 14Special Response Procedures ................................ 16

Chapter 3 Aircraft Resource Inventory ....................... 17identify and Survey Helicopter Operators ................... 17Creating a Resource Inventory .............................. 17Resource Survey ............................................ 19Conducting the Survey ...................................... 24Verification and Updating .................................. 25

Chapter 4 Communications .................................... 26Definitions of Terminology, Phraseology, and Acronyms ...... 26Establish an Emergency Communications Net .................. 26Establish Procedures and Protocols ......................... 30Medical information ........................................ 32Air Traffic Control .................... .... 32Mission Assignment ..................... ............. 33Documentation .............................. ... ............. 34

Chapter 5 Landing Areas ...................................... 35Selection Criteria .................... . .................... 35Surveys and inventory ...................................... 43

Chapter 6 Plan Activation, Exercises, and Post Analysis ..... 46Plan Activation ............................................ 46Exercises .................................................. 47Post-Incident Analysis ..................................... 48

List of Acronyms ............................................. 50

Appendix A Outline of Elements for Typical Helicopterintegration Plan ................................. A-I

Appendix B Bibliography ..................................... B-!

vii

LIST OF FIGURES

page

Figure 1 1990 EMS Coverage .................................. 7Figure 2 Response Alert Levels .............................. 15Figure 3 High-Rise Fire Response Procedure .................. 16Figure 4 Sample Helicopter Resource Survey Data Form ........ 20Figure 5 Helicopter Communicaticns System ................... 27Figure 6 Communications Matrix .............................. 31Figure 7 Minimum Landing Zone Requirements .................. 41Figure 8 Visual Approach and Departure Protection Area ...... 42Figure 9 Plan Activation .................................... 46

LIST OF TABLES

Table 1 Resource Inventory Sources ......................... 18Table 2 Heliport Information Sources ....................... 36

Aoaesslon To'NTIS GRA&IDTIC TAB 0UnannouncedJust if icatio

ByDistribution/Availability Codes

~Aa I and/bi7

fDist~Speoial

viii

CHAPTER 1INTRODUCTION

On Friday, January 13th, 1982, Air Florida Flight 90, a Boeing737-222 with 74 passengers and 5 crew members on board, crashedin a blinding snowstorm on takeoff from Washington NationalAirport. it first struck the 14th Street Bridge, congested withrush hour traffic, and then came down in the ice-covered PotomacRiver below. Only four passengers and one crew member survivedthe accident.

At 11:00 A.M. on Friday, January 13, 1982, the NationalWeather Service (I-WS) in Washington issued a specialweather statement that continued an earlier winter stormwarning and predicted that snow woula continue into theafternoon and, at times, become mixed with sleet andfreez3nc rain.

At 2:00 P.M., because of the deteriorating weatherconditions, the federal government agencies announcedearly dismissal of their employees, releasing some 400,000commuters into the streets. Area schools also begandismissal early.

At 3:00 P.M., the District of Columhia Department ofTransportation was notified that an additional four inchesof snow would fall. In the downtown area and on accessroads, the traffic was slow and hazardous. A partialgridlock had developed downtown with traffic blocking somekey intersections.

At 3:59 P.:., Air Florida Flight 90, a Boeing 737aircraft, carrying a total of 79 people, was cleared fortakecff by National Airport control tower. Taking off ina northwesterly direction over the Potomac, it immediatelylost altitude, struck six vehicles on the inbound span ofthe 14th Street Bridge (about 20 feet from the Virginiashore), continued through the railing on the northwestside of the span, and crashed into the river, which wascovered with five to eight inches of ice. The weatherconditions were poor and deteriorating, temperature was inthe low 20's and visibility was less than one-half mile.";

At 4:1! P.M., the U.S. Park Police were notified of theaczciden and asked to sed ..- _ of its medevac helicootersto the scene to assist in rescuing the survivors, some ofwhom were now reported to be in the water.

U.S. Park Police pilot Don Usher, and paramedic Gene Windsor,responded to the call. A fellow police officer plowed the rampwith his personal 4-wheel drive vehicle and assisted the flightcrew in pushing the helicopter out of the hanger. The policemen,on standby duty at U.S. Park Police Headquarters in AnacostiaPark, Maryland, quickly grabbed life preservers and rope, boardedtheir Bell LongRanger, and took off. Usher flew "Eagle One"toward the 14th Street Bridge.

"Rotorcraft Use in Disaster Relief and Mass Casualty incidents - CaseStudies," Federal Aviation Administration, Washington, D.C., June 1990, p. 25-26.

Ibid, p. 27.

While en route, the crew of Eagle Iwas giver threeseoarate locations for the accident site. However-, theyalso headed for the bridge. By 4:13, airport offic;a;.sinformed Arlington dispatchers the plane was a 3-7 j3et-liner and that at that-tine the number of passengers andcrew on board was unknown.

Eagle I, with pilot Usher and c-ewmnan/paramedic Windsoraboard, was now visible in the irminediare area. Repeatedattempts to reach any of the ground units by radio forinstructions were unsuccessful. They were to learn muchlater that personnel on the around had not switched to thecorrect frequency unt;i 4:22 - two minutes too !ate tohear Eagle -7. Early attempots with ropes and !adaer3 toreach the survivors 50 - 100 feet offshore failed. Boatsand divers were not yet on the scene.

'When you see an airline dis-aster you eyaevt mavhem andslaughter,' said Usher, during a later interv-,wo 'Thebiggest surprise was that there was only broken ice where,apparently, the main fuselage had gone tnrough: the tailsection above the water with six people Ahanging on it, anda lot of debris, insulation, luggage, handbags andclothes.' The helicopter crew didn't: know 4- yet, butthere would only be thos;e siy to rescue. The others weredoomed the moment the water rushed into the- r"oupue(airliner) cabin.

The six had to be rescued quickly, however, before thefrigid water claimed them... One woman, 22-vear oldPriscilla Tirado, lost her criz and was about to drownwhen an onlooker, Lenny Skuzni:k, 28, plunged -,-to therier and brought her close enough to the bank for firemaJohn Leck to swimi out- and re-r--ere her.- Later, doctorswould measure Tirado's body temperature at- 81 Fahrenheit;she was onli several minute;s fro'm death !by cardiac arrest.

The rescue ended on a wrenching note: one of the s~axpeople clinging to the tail, a mziddle-aged mar whno wasstill unidentified at the weekend, had repeatedly passedthe lifeline to fellow passengers rather zhan savehimself. When the heicopter went back for hin at last,he had slipoped beneath the surfatce. 'in a .-_ass casualtyyou'll find people like him~,' said Windsor, 'bu:t I'venever seen one man with so much conzi-ment."'

That even five people survived was due, at leasz i.- oar-, :c tnleCimely arrlival of a U.S. -Dark _=Gailce ne11concer z-.ra-; was ao-e,despite a lack of' prope- on-boardrsueeuipe: to he!-e:-tricate those sur-vivors and get tnern saf-'elyv t-- sinore. Theeffforts of the helicopter's crew, witnessed 'Live on nazionza_television, provided dram~atic proof of its ef~feCtivenezs as adisaster relef tool1. Troni:cally, the Park Po!ice helicomter waenot there as a result of any Coordinated disaster response planr,but rather by a for-tunate combination of circumstan"ces.

~ Iid.pp.28-29.

The Need For Guidelines

Often, it seems as if people think that helicopters justnaturally "appear" at disaster situations. In fact, the publicis generally unaware of the extensive planning that is necessaryfor helicopters to lend their unique form of assistance in themost effective manner. Not surprisingly, many of the publicagencies charged with the specific responsibility of preparingand planning for disaster response share this lack of awareness.As illustrated in the Air Florida accident, and in otherdisasters in the last four decades, helicopters have provenbeyond a doubt their value in disaster relief operations.

The concept of using medevac or emergency medical service (EMS)helicopters to reduce mortality rates has been well establishedsince the Vietnam War. Thousands of traumatic injury victims,both military and civilian, that reached medical treatmentfacilities within the first "golden hour," owe their lives to thehelicopters and crews that delivered them rapidly to specializedfacilities. Many hospitals across the country have establishedEMS helicopter ambulance services and many others have a helipad-conveniently located near their emergency room entrances. TheEMS- helicopLer business has enjoyed spectacular growth over thelast 20 years and continues to be one of the most dynamic areasof the helicopter industry today.

As widespread as EMS helicopters have become, they are stilllimited in their ability to respond to large disasters and masscasualty incident (MCI) situations. EMS helicopters usually arebased at major medical centers in metropolitan areas. There area limited number in each community whereas in some areas of thecountry there are a greater number of private and militaryhelicopters available. Air medical service helicopters areconfigured primarily for flying critically injured patients fromthe scene to a trauma facility. Often in such disastersituations, additional help is needed to perform a variety ofsupport functions that may not necessarily be best performed byan EMS helicopter. Private EMS helicopter operators and pilotsoperate under Federal Aviation Administration (FAA) Part 135rules and regulations when other than the flight crew is on boardand thus are prohibited from performing external hoists, lifts,or loading and unloading passengers without coming to a completelanding. Non-commercial helicopter operators may be able toprovide additional help and they are usually ready, willing, andable to provide that help when needed.

Disaster planning for the community is the responsibility of manypublic and governmental agencies at various levels. The vastmajority of those agencies are very proficient and effective inthat effort, yet many of them are unaware of the helicopterassets that might be available in the local area. In isolatedcases, communities have identified their helicopter resources.

3

For example, the Dallas/Fort Worth Metroplex, has successfullyincorporated locally based helicopters into their disasterpreparedness planning and regularly hold realistic exercises totest their effectiveness and to resolve problems under controlledconditions.

Current disaster planning for the utilization of all generalaviation aircraft and resources, including helicopters is guidedby FAA Advisory Circular (AC) 00-7B, "State and Regional DisasterAirlift (SARDA) Planning," August 1987. This advisory circularhas been issued by the FAA to State and local Governments toencourage the use of general aviation to mitigate disasters.Consult your state aviation or division of aeronautics office forfurther information and for how your local planning would tie inat the State level.

These guidelines are an effort to acquaint disaster planning,civil defense, and emergency preparedness agencies with thehelicopter's capabilities and to help them take advantage of thehelicopter assets that might exist within their local area. Theyare based on generally accepted planning concepts and "lessonslearned" through the study and analysis of many case histories ofdisasters and mass casualty situations where helicopters wereused in various support capacities. Another report "RotorcraftUse in Disaster Relief and Mass Casualty Incidents - CaseHistories," FAA report number DOT/FAA/RD-90/10, details 18 variedincidents where helicopters where involved in disaster relief ormass casualty incidents.

Guideline Gcals

Participants in emergency planning and response must understandthe plan and their role in its implementation. It is onlynatural to be highly motivated to participate in directlifesaving missions, but there are many other vital supportfunctions which may require the use of helicopters in anemergency response. The guideline goals are described below.

To save lives. Specialists in the treatment of trauma victimsare well aware of the significance of the first hour after thetrauma injury, as the "golden hour," in the reduction ofmortality rates. Helicopters provide an unparalleled means totransport severely injured patients over long distances,unaccessible areas, heavy traffic, or disrupted groundtransportation to appropriate treatment facilities. An oftenoverlooked capability is to transport medical personnel directlyto the scene.

In mass casualty situations and natural disasters, the benefitsof helicopter use are multiplied by the greater number of casesrequiring rapid transport and the number of support functionsthat may be required to relieve the emergency. Emergency

4

response to remote sites which include high-rise rooftops in themiddle of major metropolitan areas or through flooding, snowdrifts, or even rush-hour traffic, may prove to be an agonizinglyand dangerously slow process. Maximum accessibility tohelicopter services in disaster situations may expeditelifesaving efforts in many cases.

To acquaint community leaders and planners with the disasterrelief capabilities of helicopters. Most people are geneiallyfamiliar with helicopters, but have very little actual knowledgeabout their operations and capabilities. This also includes theuse of the general aviation r±eet and its fixed-wing aircraftresources. In a professional sense, the same can be said of mostemergency preparedness planners. It is absolutely essential tohave a complete and realistic understanding of helicoptercapabili+-ies in order to effectively incorporate them intoexisting plans. In this way, planners can broaden their range ofoptions for response to emergency situations and provide superiorprofessional services to the community.

To provide planners with guidelines to effectively integrate theuse of helicopters into local disaster preparedness and masscasualty incident planning. Most emergency planners do notpossess a high level of expertise in helicopter operations norcan it be assumed that they have ready access to a separatesource of information on the subject. For this reason, theguidelines have been developed. They are provided here toencourage planners to consider helicopters in their overallplanning efforts in the use of general aviation resources and toensure safe and effective use of helicopter capabilities whenneeded.

To open lines of communication between helicopter operators andthe community. Most non-EMS civil helicopter pilots are willingto help out when needed, but they and their management are oftenfrustrated by a lack of coordination and communication with localdisaster planning agencies. This document is intended tofacilitate such communications. In this manner, it wi21 allowcommunities to benefit from increased cooperation between localcivil helicopter operators and disaster planning agencies.

To encourage the establishment of heliports in the community.Helicopters can go many places where an airplane can no- and theydo not need an airport for a landing site. However, if they areto help in disaster situations they do need landing sites inclose proximity to the disaster site. This is particularly truein urban environments. If such landing facilities are tb beavailable when disasters occur, the community needs to plan anddevelop heliports in advance of the actual event. It is hopedthat a general recognition of the obvious value of helicopters indisaster relief will lead to the realization that there are otherbenefits to having access to helicopter services in an urban

5

environment. This, in turn, will aid in the establishment of

needed heliport facilities in both the urban and rural setting.

Assumptions

Before these guidelines can be applied in a given disasterpreparcdness planning effort, certain assumptions must be maderegarding the nature of the situation in which helicopters can beused. Also, to avoid any confusion or misunderstanding aboutthe true purpose of these guidelines, baseline conditions andground rules are established to provide an appropriatefoundation.

First, there must be a general plan for local disaster and masscasualty incident relief in effect or in development. Referencesto planning documents can be found in both the American Societyfor Testing and Materials, Standard Guide for Plannina andResponse to a Multiple Casualty Incident, and the FederalEmergency Management Agency, Guide for the Develormen r of Stateand Local Emergency Operations Plans. An incident command system(ICS) is probably in place which includes an organizationalposition for air operations. The provisions in these guidelinesare intended to incorporate local helicopter assets into existingplans or concurrently as new plans are being devised, not toserve as a "stand alone" disaster preparedness document.

Obviously, an assumption must be made that there are indeedhelicopters available within the planning jurisdiction fordisaster relief operations. A comprehensive helicopterintegration plan would not be worth much if there were nohelicopters to use in a disaster situation or if the helicoptersin the area were unwilling or unable to participate.Fortunately, this has proven to be a highly unlikely circumstancein most areas. As mentioned earlier, most helicopter pilots arevery willing to get involved and lend assistance, but pre-plannino and endorsement by corporate leadership is a criticalrequirement.

Anotner assumption is ground-based ambulances musz be consiaerecthe primary, expected and desired means cf transport in adisaster situation when roads are passable. in many instances,however, helicopters will be indispensable and provide the mostefficient transport service. Helicopters may also support theincident commander with other support missions not capable orprudent to exclusive use of ground units. However, it will neverbe possible to guarantee that helicopters will be available.Quite often, the disaster situation and its attendant casualtiesare a direct or indirect result of extreme environmentalconditions. Those same extreme conditions could preclude orseverely constrain the use of aircraft in the initial phases ofthe response. To be sure, helicopter pilots will make everyeffort, within the limits of safety, to be there when needed, but

6

they should be considered auxiliary only and reliance shouldalways be placed first on ground-based units.

Over 93 percent of the contiguous United States and 46 percent ofAlaska are covered by public Cr private EMS helicopter ambulanceservices, "Air Ambulance Helicopter Operational Analysis,"DOT/FAA/RD-91/7, (see figure 1). Almost all of the aircraft usedby these services are specially configured with advanced lifesupport equipment and have crews who are highly trained in itsuse. These air medical services may already be part of the localarea emergency response system. Therefore, the assumption ismade that the required airlift of trauma victims will first beaccomplished with medically configured helicopters. When thehospital-based EMS resources or city/county/state helicopterresources are overwhelmed either from patient transport or othersupport requirements as the incident commander has determined, itis time to implement the plan for "other" helicopterparticipation.

Finally, it must be assumed that certain planning aspects areoutside the scope of these guidelines. These include charges forpatient and passenger transport, protocols for determining apatient's destination hospital (other than those based onlifesaving reasons), and reimbursement for helicopter operationalcosts. While these are important considerations that need to beaddressed, particularly to assure the economic viability of thehelicopter support system, they are best dealt with as normalbusiness arrangements between the interested parties. Ifsupport is requested by the Federal Government or under a StateSARDA plan, the cost of -he missions is normally reimbursable.

a AE' 61 ."N

g~~ .. ... W In\

FIGURE . 1990 EMS COVERAGE

7

It is also recognized that it is very important to have allpersons who might be involved in emergency relief work beregistered by their local emergency preparedness agencies priorto a disaster. The workers may then be covered under workmen'scompensation laws and be covered under liability coverage aswell. In addition, some sort of badged identification could beprovided to indicate the worker is already registered.

Operational Priorities

Helicopters are extremely versatile aircraft and can be used togreat advantage in many applications. They have so many uses, infact, that priorities must be established as part of anyhelicopter integration plan in order to assure that the mostimportant jobs get done. As helicopter availability increasesin a g'iven situation, they need to be assigned the most criticalmissions first according to the needs of the incident commander.Also, as more aircraft get involved in the relief effort, rights-of-way must be established so the various aircraft do notinterfere with each other in their respective jobs.

It goes without saying that the number one priority in anyaviation activity is safety. An all-encompassing, pervasiveconcern for safety in all helicopter applications will maximizethe benefits derived from their use.

Generally, the highest priority missions are in direct support oflifesaving efforts. Other missions may not be life critical, butthey are important support functions which may be requested bythe incident commander.

Regardless of the mission type, however, it is imperative thatmissions be carried out so as not to impair the efficiency ofworkers on the ground or to further endanger the survivors.

Potential Helicopter Missions in Support of The Disastco/MCIRelief Effort

There are a variety of missions that can be performed byhelicopters. Each community needs to assess the ways helicopterscan be used to support their unique relief requirements. Allhelicopter operators should be familiar with tile FAA Federal AirRegulations (FAR) contained in Title 14 of the Code of FederalRegulations (CFR) that affect their operations under each ofthese potential mission types.

Search and rescue (SAR) missions. Normally, these missions wouldbe handled by Civil Air Patrol(CAP), United States CoastGuard(USCG), or public service (State Police) units thatregularly practice these types of operations with their ownaircraft and crews, and are most likely already integrated intothe existing disaster response plan. Additional helicopters from

8

the local community should only be used for SAR work in cases ofextreme urgency and their efforts coordinated by the responsibleSAR agency. The "National Search and Rescue Manual," Volume I:National Search and Rescue System, AFM64-2, paragraphs 200-227detail the domestic agencies involved in SAR missions.

Transport of medical teams/supplies to the disaster site.Helicopters can perform the transportation of medical teams andsupplies from designated hospitals and/or trauma centers to thedisaster site for triage and initial treatment of trauma victims.

Transport of medical teams/supplies to the affected hospitals.The transportation of medical teams and supplies from pre-designated hospitals, collection points, cr supply centers to theprimary receiving hospital(s) (usually closest to the disastersite or region) that may become overwhelmed with disastervictims. Medical personnel privileges generally do not transferfrom one hospital to another. The emergency services coordinatorin each state should know what the policies are betweenhospitals. This is another area where prearranged permissionsneed to be addressed.

Transport of trauma patients. The primary responsibility of EMShelicopters would be the transport of trauma patients. Manyemergency plans suggest that the nearest hospitals to theincident be leapfrogged when helicopte: s are available. Thisreduces the chance of the closest hospitals becoming overwhelmedwith critical care patients. Helicopters can also performh6spital-to-hospizal transfers to place patients in the mostappropriate specialty treatment center.

Transport of disaster specialists. Helicopters are particularlyuseful in the transportation of disaster specialists to thedisaster site or operations center where they can contribute mosteffectively to the relief effort. They can be transported frompredesignated assembly points for pickup when groundtransportation has failed. These could include public safetyemployees: police, fire, and city emergency workers.

Emergency evacuation. in normal, as 4ell as disaster situations,helicopters are usea as an a±ternative ,,*- !t:ate-based transportmodes. In a high-rise building fire, tile; can be used toretrieve fire victims trapped on the roof or on balconies whenelevators and stairways are rendered u serviceable by fire andsmoke. Similarly, fire fighters denied the same access toelevators and stairways can be lifted to the roof for firefighting and rescue operations. Helicopters are used to pickuppeople stranded on car tops, rooftops, or in trees by swiftlyrushing flood waters that no boat could negotiate. In manycases, the helicopter may be the only means of reaching andtransporting both rescue workers and victims.

9,

Airborne control and assessment. it may be necessary to use ahelicopter as a mobile aerial platform from which a deputyincident commander can observe and report on the disasterresponse efforts.

Airborne air traffic control (AATC). When the number of aircraftinvolved in the disaster relief elf... - exceeds four or five, itmay-be advisable to assign one of ielicopters the mission ofairborne air traffic control2er. -.rvr.ng on the nature of theoperations and the proximity sl >c 'u. to each other, anairborne aerial controller can ,i,.icantly improve sdfety. Inthe Dallas/Ft.Worth area, the Helicopter Emergency Lifesaver Plan(HELP) designates the police helic..ter as their aerialcontroller. Naturally, the landin -ine controller willcommunicate with the aircraft alsc : 3ssist with safe landingand takeoff operations. See addit~oial information in chapter4 - Communications and chapter 5 - Landing Areas.

Electronic hews gathering (ENr;,. At the very least, there aretwo types of information derived from the use of ENG: 1) realtime aerial photographs of the disaster scene that can betransmitted to the ground and 2) dissemination of general publicinformation to maintain a sense of confidence and moraleregarding the relief effort. First, real time footage of thedisaster scene that is transmitted to the ground can be viewed bythe disaster coordinators for assessment of damage and possibledeployment activities. Aerial photos can be "freeze framed" anddistributed with annotations on where the relief activity shouldbe focused and at what levels. Second, "maintenance of morale"is a recognized requirer:nt in coping with disasters. Victimsand survivors need to kn,.w what is being done to effect theirrelief and what is expected of them in order to encouragecooperation and efficient action. Friends and relatives outsidethe affected area need to know what is hAppening to people thatthey care about. This serves to reduce community anxiety andlessen fears. Nevertheless, disaster relief workers tend toregard ENG helicopters on the scene as an annoying nuisance atbest and downright dangerous and detrimental to their efforts atworst. It is -or these reasons that helicopters engaged in ENGshould be given serious consideration and an appropriate priorityin the helicopter integration plan. They need to be assured ofthe opportunity to do their job and they should, in turn, assurecompliance with the conditions and limitations imposed by theplan and by FAR 91.137.

Fire fighting. Helicopters have two primary functions in theirroles as fire fighters. First, they are used to spray or dropfire retardants, chemicals, or water on the fire whether it be ina building or in a forest. This mission usually requiresspecialized training, external lift, and specialized equipment.It is not recommended that unpracticed, unconfigured, volunteerhelicopters be expected to take on this mission. Fire

10

departments, the U.S. Forest Service, and contract operatorshired by the U.S. Forest Service are well trained and equipped tosupport this mission. The second major helicopter role involvestransporting fire fighters to sites from where they can fight thefire with conventional means. By landing on unobstructedhigh-rise rooftops or in clearings in the woods, normallyconfigured helicopters can be very useful as auxi1i:ry transportfor fire departments.

Damage survey. Often, a natural disaster, such as an earthquake,flood, or blizzard, temporarily precludes the use of groundtransportation. Helicopters can be an extremely effective meansto deterr'ne quickly the extent of damage in the affected area sothat the ;uthorities can develop comprehensive plans for thedisaster relief effort. Enformation on the scope .f the disastercan be transmitted to the command post via radio . even videodown-link.

External lift. Just as a helicopter can serve as a substitutefor an elevator, it can also serve as a substitute for a crane.If cargo is too bulky to fit inside a helicopter but its weightis within the helicopter's lifting capability, it can betransported externally slung beneath the machine in a net orother containment device. Many helicopters have a special hookapparatus mounted on their underside specifically for thispurpose. The hook has safety devices that prevent inadvertentrelease of the load, and a special control whereby the pilot canrelease it in an emergency. For helicopters without thisequipment, it is still possible to fabricate an external slingwith rope and hooks, but th s practice is best avoided unlessabsolutely necessary. The .hief advantage of using helicoptersling loads is the speed with which cargo can be picked up anddropped off. The helicopter does not have to actually land inorder to do either, but it is necessary to have a crew on theground at both ends of the trip to assist with cargo handling.

Return f personnel and equipment. Return of personnel andeauipmen; to their respective bases at the conclusion of theaisaste1 situation is considered by many to be a supportfunction These missions may or may not be accorded a highpriority, depending on individual circumstances, agreements, andorders of the incident commander. After a disaster situation itis likely rescue equipment may not be returned immediately to theowning department for several days or even weeks. At this point,the helicopter support missions will have diminished and groundtransportation will most likely be used for return of equipment.

Security and crowd control. Police departments have long beenaware of the effectiveness of helicopters in patrolling andsurveillance work. Helicopters are even more effectiveperforming this mission during a disaster situation because mostother modes of transportation may be severely curtailed. From

11

mobile aerial observation platforms, those responsible forsecurity and the maintenance of law and order can watch for thosewho might try to take advantage of the temporary disruption inpolice protection caused by the disaster. Helicopters can spotopen routes to safety and relay the information to trafficcontrollers on the ground.

Also, it is advisable to transport a fireman to the roof of abuilding being evacuated by helicopter in order to maintain orderand prevent panic among the occupants being rescued. This notonly helps assure their safety, but that of the helicopter andcrew as well.

Inspection tours. Government helicopters would be utilized totransport representatives from the government who will need toinspect the disaster area in order to assess the extent of damageand to show their sympathy and concern for the victims andsurvivors. Helicopters offer a convenient means to do so quicklyand comfortably without interfering with the workers on theground.

Hazardous material operatics. The use of helicopters in ahazardous materials situation should be carefully reviewed by theincident commander. Air operations over or near a hazardousmaterial spill can change the wind direction and speed thusaffecting the boundaries of dangerous areas. In addition, it isnot recommended that decontaminated personne2 be removed from thehazardous materials control area. Because oE possible "off-gassing" of the contaminates, transport of these type of peopleshould be avoided. Contaminates can affect theflight crews and rescue personnel ability to function properly.

Livestock support. The benefits of using helicopters in disasterrelief work are not limited to aiding people. Valuablelivestock, stranded by snow drifts or flood waters, have beensustained with food transported by helicopters.

12

CHAPTER 2PLAN PREPARATION

Four planning assumptions were made in formulating theseguidelines.

1. There is always the possibility that situational problemssuch as traffic, debris, floodwater, or location caninterfere with deployment of ground transportation in theaftermath of any catastrophe, disaster, or mass casualtyincident.

2. Helicopters can be made available in a timely manner fromvarious civil, private, and/or military sources.

3. Parzicipating municipalities have pre-existing disasterresponse or emergency planning in place and operate underthe auspices of the incident command system.

4. Helicopters, because of the limits imposed by weather andavailability, should not be considered an essential partof any plan. If the incident commander determines thereis a reouirement for their use and the community hashelicopter assets, then a helicopter response plan can beactivated. Spontaneous response by air resources with asense of "just coming to help out" can not be tolerated.

Basics

The first step for a local emergency management planner in theintegration of local helicopter resources in emergency planningis to have a full understanding of any existing plans,agreements, and regulations. Survey all operational procedures,mutual-aid agreements, service limitations, and regulations inthe area of jurisdiction. The goal is to integrate helicoptersinto existing plans and incident command systems, not to changethe core of emergency planning which already exists. Once afamiliarity of existing plans is acquired, it will be easier toincorporate the elemen-s for halicope iegratio. Search out

the air medical transport services in the region and get themactively participating in the planning process.

Train first responders in all elements of the plan. Those on theground using helicopters need to know how to obtain them, how tocommunicate with them, their landing zone requirements, and theirsafety requirements. The incident commander (IC) be it a firstresponder or in later stages the predetermined IC (fire chief,etc.) should be able to assess the emergency situation anddetermine whether helicopter support is necessary. Depending onthe scope of the incident, the IC may activate the air operationsbranch of the incident command system. it is important to ensurethat requestors and emergency operations personnel have

13

determined there is no ground support means of mitigating orassessing the incident.

Establish a central control point and dispatch center for allhelicopter operations. Air operations could be collocated withthe primary emergency operations center or command post.Alternatively, air operations could be located separately in afacility that can handle all the parameters of flight operations.For example, the National Burn Victim Foundation (NBVF) inOrange, New Jersey has the American Telephone & Telegraph (AT&T)Flight Operations Center serve as its air operations center.The center should be in the communications network, have definedprocedures and protocols, be able to file flight plans, provideweather briefings, and ccnmunicate with in-flight helicoptersregarding mission assignments and estimated times of arrival(ETA). In addition, it should assign appropriate resources basedon the requests of the incident commander.

Alert Levels

It is recommended that three different helicopter alert levels bedefined based on the complexity of the disaster beingexperienced. The alert level will be determined by the incidentcommander. Figure 2 provides a'view of potential resourcesavailable at each alert level. One metnod of defining threedifferent alert levels is based on the number of helicoptersrequired and the what resource ring they are being pulled from.

Level 1 could encompass locally available assets. First tierresponders could include hospital-based EMS helicopters, city,state, and government assets. It could then call upon theprivate and commercial helicopter fleet.

Level 2 could reach to any State or National military resourcesthat may be available. U.S. Army National Guard (ANG)helicopters may be a potential resource. These aircraft could beadded to those responding under alert level 1.

Level 3 nelicopters could be reauested from reserve and activeduty military installations. in mass evacuation situations, themilitary frequently has available the largest helicopters andoften can transport 20 or more people at a time.

When either level 1 or 2 is implemented, participants involved inthe next higher level should be notified and asked to assumestandby status.

It is recognized that many communities already have alert levelsand corresponding checklists. Where such systems exist,helicopter response levels should be integrated in a manner thatis consistent with the planning doctrine.

14

-determined there is no ground support means of mitigating orassessing the incident.

Establish a central control point and dispatch center for allhelicopter operations. Air operations could be collocated withthe primary emergency operations center or command post.Alternatively, air operations could be located separately in afacility that can handle all the parameters of flight operations.For example- the National Burn Victim Foundation (NBVF) inOrange, New Jersey has the American Telephone & Telegraph (AT&T)Flight Operations Center serve as its air operations center.The center should be in the communications network, have definedprocedures and protocols, be able to file flight plans, provideweather briefings, and ccmmunicate with in-flight helicoptersregarding mission assignments and estimated times of arrival(ETA). In addition, it should assign appropriate resources basedon the requests of the incident commander.

Alert Levels

It is recommended that three different helicopter alert levels bedefined based on the complexity of the disaster beingexperienced. The alert level will be determined by the incidentcommander. Figure 2 provides a'view of potential resourcesavailable at each alert level. One metnod of defining threedifferent alert levels is based on the number of helicoptersrequired and the what resource ring they are being pulled from.

Level 1 could encompass locally available assets. First tierresponders could include hospital-based EMS helicopters, city,state, and government assets. It could then call upon theprivate and commercial helicopter fleet.

Level 2 could reach to any State or National military resourcesthat may be available. U.S. Army National Guard (ANG)helicopters may be a potential resource. These aircraft could beadded to those responding under alert level 1.

Level 3 nelicopters could be requested from reserve and activeduty military installations. In mass evacuation situations, themilitary frequently has available the largest helicopters andoften can transport 20 or more people at a time.

When either level 1 or 2 is implemented, participants involved inthe next higher level should be notified and asked to assumestandby status.

It is recognized that many communities already have alert levelsand corresponding checklists. Where such systems exist,helicopter response levels should be integrated in a manner thatis consistent with the planning doctrine.

14

Special Response Procedures

As mentioned earlier, it is appropriate to develop procedures forpotential disaster scenarios in a particular region. Thesedisasters could be among the following, depending on thecommunity profile:

- airplane crash at or near a local airport;- natural disasters such as floods, forest fires, tornados,

earthquakes, blizzards, or hurricanes;- hazardous materials spill; and- high rise building fire.

A procedure outline for a high rise fire is provided in figure 3.

Fire Department (s)-Conduct survey of all local high-rise building rooftops.-Publish and distribute directory with drawings, photos, etc.-Coordinate fire fighting procedures with building management.-Develop and train crews in special helicopter operationsprocedures.

-Maintain ecuiDment (rescue nets, rappelling gear, fans, etc.)-Exercise crowd control on the rooftop during evacuation.

Helicopter Support Units-Coordinate and cooperate with disaster planning agency.-Maintain appropriate aircraft configurations.-Conduct training and particioate in full-scale exercises.-Adopt specified safety and operational standards.

Police Department(s)-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-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 3 HIGH-RISE FIRE RESPONSE PROCEDURE

Gary Morris, Deputy Fire Chief; Phoenix, Arizona: "Planning isnecessary and required, but often is a paper plan on a shelf andunusable during an actual event. Experience has shown that thebest disaster outcome occurred in communities that integratedhelicopter operations into daily 'routine' operations andstandard operating procedures. These procedures providedexpansion capability and became a natural act to expand todisaster level operations - rather than a foreign, unused plan.Integrating these procedures into the incident command systemenhanced this 'routine' expansion capability."

16

CHAPTER 3AIRCRAFT RESOURCE INVENTORY

A key to the rapid and efficient deployment of helicopter supportto a relief or rescue effort is a list of private and commercialhelicopter operators that have agreed to commit aircraft support.The objectives of this chapter are to provide guidelines fordeveloping a list of helicopter resources, and to organize thatlist to facilitate the dispatch of helicopters to the scene of adisaster or mass casualty incident.

Identify and Survey Helicopter Operators

Initially, in obtai.i..g commitments from helicopter operators fordisaster relief and rescue operations support, the planningagency should compile a preliminary list of helicopter operatorsin the area. A survey of each operator should be conducted toobtain commitments and pertinent data regarding key personnel,base of operations, types of helicopters, on-board communicationsand rescue equipment, mission capability, and operationallimilations. This information will be organized into"assistance" categories incorporated into a resource inventoryand request checklist so that transportation and rescuerequirements can be matched with an operator's capabilities,i.e., external load for bringing in supplies or pulling debrisfrom the disaster scene, litter configuration to carry victimsfrom the scene, searchlight for nighttime damage assessment orlocatin~g trapped victims, etc. Knowing whom to call and thetype of task the helicopter will be performing will improve theefficiency of the response/rescue process.

Creatinq a Resource Inventory

The names of helicopter operators are available from severalsources locally, regionally, and nationally. An agency mightstart with the organizations in table 1 in order to reduce thetime involved in seeking information.

1he agency can order the lists from onz ui a combiratLoi, uf tl=organizations and use the information to develop mailing andresource lists. In many cases, computer runs or memoershiprosters may be obtained free of charge. However, the requestorshould be prepared to pay a small fee for computer time togen rate a list tailored for his/her region.

In addition, contact the air medical services organization inyour area. These services are staffed by persons with up-to-datemedical knowledge and scene management knowledge. They tend toknow the other existing helicopter resources in the region andthe benefits of each. This resource should actively participatein your planning process.

17

TABLE 1 RESOURCE INVENTORY SOURCES

Source of Information Tvoe of Information Available

Federal Aviation Administration Aircraft owners by state,Mike Moroney Aeronautical Center county, helicopter make andAircraft Registration Branch model. Helicopters may or mayP.O. Box 25082 not be based in the same areaOklahoma City, OK 73125 as local owner/operator.405-749-3131

Helicopter Association International (HAI) Member operators, helicopter1619 Duke Street types, missions by state. ListAlexandria, Virginia 22314 of regional helicopter703-683-4646 associations to contact for-more

detailed information.

National Business Aircraft Association Member operators by state,1200 18th Street, N.W. helicopter types and mission.Washington, D.C. 20036202-783-9000

State Aeronautics Divisions Aircraft owners by county. TypeSee individual state listings under 'of helicopter available in stateAeronautics Commissions or Authorities where there are aircraftor Divisions under state Departments of registration requirements. ListTransportation in the telephone directory, of helicopter operatororganizations.

Yellow Pages under Aircraft Charter, Helicopter operators.Lease or Rental

Airborne Law Enforcement Association Public service helicopter601 East Fayette Street operator members.Baltimore, MD 21202301-396-2431

Association of Air Medical Services Hospital and EMS helicopter35 S. Raymond Avenue, Ste 205 operators.Pasadena, CA 91105818-793-1232

National Broadcast Pilots Association Helicopter operators in thec/o Biscayne Helicopters broadcast media.

Miami, FL 33186305-252-3883

Emergency Volunteer Air Corps Organization of general aviation2617 Prosser Avenue and personnel to be of serviceRancho Park, CA 90064-3327 during disasters and other public213-837-0762 emergencies.

National Burn Victim Foundation Unique medical disaster response3234 Scotland Road system designed to coordinateOrange, N.J. 07050 and facilitate the rapid201-676-7700 transportation of skilled medical

personnel, supplies, andequipment to thermal disastersites.

18

Resource Survey

It cannot be assumed that'every operator within a region iswilling to devote helicopter support to a relief operation ondemand. Developing a reliable resource list that can be used atthe time of an emergency will, therefore, be dependent onsurveying each operator in advance to determine the level ofcommitment and detailed information regarding helicopterresources.

The emergency planner should understand that helicopters shouldonly be assigned to tasks which they are capable of providing.Operators may not be willing or able to provide helicoptersupport to perform all of the missions required for the reliefeffort due to limitations by schedule (e.g., the helicopter isout on a current mission); by operational constraint (e.g., thepilot cannot perform the flight or the aircraft is down formaintenance); federal regulation or insurance limitations (e.g.,the helicopter: 1) cannot perform sling loading, 2) cannottransport patients by external loads, or 3) is not equipped totransport litters). When requesting helicopter support, specialattention should be given to the types of services the operatoris willing to provide and a procedure should be established forbackup resources when or if a helicopter is unavailable.

One of the objectives of using a survey technique to obtain anoperator "profile" is "task matching," where the air operationscenter requests helicopter support in consideration of itsequipment and capabilities. Figure 4 is a sample helicopterresource survey data form which could help in the data gatheringeffort. The types of data and a description of their purpose areprovided in the following text.

1. Name, address, and telephone number of the operator's baseof operations. This information should also include: faxnumbers for immediate distribution of flight operations,ingress into and out of landing zones, locations of stagingareas or emergency landing zones, and cellular telephonenumbers in the event land line transmission becomesimpossible.

2. Point of contact (should be on a 24 hour basis) and afterhours telephone number. This person should be a key personthat has the authority to dispatch helicopter and staffsupport to the disaster scene. This may or may not be thechief pilot.

3. Additional points of contact (in the event the first lineof authority is unavailable). In some cases the firstpoint of contact may be unavailable and a second in commandwill need to be identified. Think of a worst case

19

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situation' i.e., a holiday weekend and list as manycontacts as you have available.

4. Name and telephone number of flight operations manager orchief pilot. information regarding helicopter mission, airtraffic control, radio frequencies, flight hazards, landingzones, and traffic patterns should be transmitted to thisindividual in advance of disl£tch if possible.

5. Number, make, and model of helicopters and their missioncapability. Each helicopter, along with the registrationor "N" number, should be listed. Additionally, the numberof passengers that can be carried or special equipment thatis available should be identified so that the helicoptercan be matched with the relief/rescue task.

6. Base of operations and response time per 50 nautical miles.A critical factor in the dispatching of helicopters will betheir location in relationship to the scene. Thehelicopter's base must be identified to facilitate theresponse. The agency will also need to know how long itwill take the helicopter to arrive at the scene based onblock speed (lift-off to touchdown) of that particularhelicopter. Helicopter speeds vary depending on make andmodel. Helicopter support should be requested consideringthe mission requirement or task the helicopter will beperforming and the amount of time it will take to arrive atthe scene.

7. Duration of flight. Mission assignments will have toconsider when refueling and change of aircrew are required.Knowing the duration of flight will assist the airoperations director in programming resources over a givenperiod of time.

8. Additional operational requirements.

a. Load capacitv.

1. Passengers. Number of ambulatory (able to walk)passengers the helicopter can carry.

2. Litter Patients. Number of litters the helicoptercan accommodate.

3. Payload. Amount of weight, including both suppliesand passengers, the helicopter can safely carryunder standard conditions.

b. Fuel reauirements. it may be possible to have astaging area close to the scene where helicopters canbe refueled. A tanker truck carrying the required fuelsuch as Jet A or 100 Octane can be positioned at thestaging area to eliminate time-consuming ferry flights

21

back to an airport or base. Helicopter operators maywant to bring their own consumables if extendedoperations are planned. Consumables would include oil,hydraulic fluid, transmission fluid, etc.

c. Size of landing area reauired. Helicopter operatorsmay require larger minimum landing zone sizes than thewidth of two rotor diameters (see chapter 5). Specialrequirements should be noted by the helicopteroperator.

d. Operational limitations. There are several limitationsto operating helicopters.

1. Geographical locations of the scene. A particularhelicopter operator may not wish to operate outsideof a specified radius.

2. Political. Jurisdictions or command hierarchiesmay require certain helicopter resources be calledout in a particular order such as police, first;hospital helicopters, second; private resources,third; Army National Guard, Army, or Coast Guard,fourth, etc.

3. Environmental. This field denotes whether thehelicopter is certified for flight in inclementweather (reduced visibility, winds) or whether theoperator has a corporate/company policy of noinstrument flight rules (IFR) or nighttime flight.In addition, altitude restrictions are veryimportant in some parts of the country.

4. Personnel. Personnel qualified to conductoperations under the environmental conditions mustbe taken into consideration.

e. Specialized equipment. Each operator may have theability to perform a variety of tasks beyond carryingpassengers. Generally, this is related to specialequipment or a helicopter configuration which isbeneficial for a 'speciai jon.

1. Searchlight. Use in night operations to locatevictims, assess damage, spotlight potential landingareas or hazards which should be removed.

2. Rescue net. Rescue net'carried from tetherunderneath helicopter or hoist (either externallyor internally mounted).

3. Forward Looking InfraRed (FLIR). Sensor used forlocating victims, potential landing areaevaluation.

4. Cargo hook. Supplies or litters can be carriedinside or outside of the helicopter, using a tethersuspended from the helicopter. Useful in areas

22

where conditions prevent the helicopter fromlanding. Consult FAA FAR for applicability to eachtype of operator.

5. Aerial photographic pod. Useful for filmingdisaster scene for developing disaster reliefcontrol maps, pinpointing landing zones,identifying pockets which need first priority forcleanup or rescue.

There may be other types of special equipment such asfloats or rappelling devices. Each survey form shouldleave space for an operator to advise the agency of anyof these other specialized capabilities that wouldenhance a rescue or relief mission.

f. Communications. There are four elements ofcommunications requirements.

1. On-board communications equipment. This wouldinclude UHF, VHF, cellular phones, and video cameraequipment.

2. Ground communications equipment. Includes cellularphones, shortwave radio, and facsimile machines.

3. Communications frequencies. Established emergencyfrequencies are needed for air operations, groundoperations, and medical/rescue informationexchange.

4. Call sign assignment. The air operations centerwill designate special call signs if other thanhelicopter registration number (N-number).

On-Board equipment. Civil and public servicehelicopters may have different types of equipmentsupporting either VHF (civil aviation) or UHF (militaryaviation), or both. The airborne command/controlhelicopter or aircraft should have the capability totransmit and receive both bands.

Grouna equipment. In the event phone service isdisrupted due to equipment problems, microwave cellularphones may bridge the disruption by maintaining phonecommunication to the helicopter base. Shortwave radiomay also augment the communications network. Facsimilemachines will be essential if control maps, specialprocedures, and frequencies can be transmitted beforedeployment of the aircraft.

Emergency communications frequencies. The use ofseparate channels facilitates a more efficientmanagement of aircraft operations and the medical/rescue network. Segregating the communications net

23

helps prevent potential conflic-s forced by sharingradio frequencies.

Predetermined call signs. A procedure for determininghelicopter call signs that ideniify the helicopter as aparticipating aircraft during a disaster activityshould be established and documsnted in the plan. Thisaids the agency performing air traffic control, eitherthe FAA Air Traffic Control facility closest to thescene or an airborne "air control" helicopter, inseparating the rescue helicopters from the general flowof traffic.

One method of designating call signs could use the lastthree digits of the helicopter's registration number,(e.g., N9462S), preceded by the identifier "Lifesaver"or "Rescue," resulting in the call sign, "Rescue62-Sierra." (Sierra is the phonetic code for the letterS. The Phonetic alphabet is used in all aviation callsigns.) Another means of assigning special aircraftcall signs is that of combining the role of thehelicopter with part of the aircraft registrationnumber and the number of persons the helicopter canrescue or transport, i.e., "04" or "09." For example,4f the aircraft registration number is N9462S and itcan carry no litters and two passengers the call signwould be "Lifesaver 2-Sierra-0-2."

Whenever possible, the helicopter will be preassigned acall sign for use during relief/rescue operations. Theplanning coordinator responsible for managing thehelicopter inventory should advise the helicopteroperators of the call signs when they are assigned andreconfirm them upon dispatch.

A sample survey form is illustrated in figure 4. This has beencreated as a guide for the planning agency in developing a formwhich is easily tailored to its emergency plan. it isrecommenced that the completed" ata be automatec (computerizet)so that the information can be sorted using a variety of"fields," such as region (NE, NW...), mission (supplies, medical,passenger...), special equipment (helicopters with "floats" forwater rescue, FLIR for locating victims), or disaster type (high-rise fire, earthquake). The ability to focus on relevant data atthe time of emergency can improve the efficiency of the responseoperation.

Conducting The Survey

Conducting a survey can be easily accomplished using the initialhelicopter inventory list developed from information receivedfrom one or more of the listed organizations. This activity will

24

involve at least six steps in order to get a final list ofparticipants.

1. Develop initial list of helicopter operators.2. Create survey form.3. Mail survey form to operators with the following

information:

a. cover letter describing the nature of the project,b. advise and highlight deadline for responding, andc. contact person for answering questions or further

describing the program.

4. Receive survey forms and, if necessary, retype informationonto final form.

5. Send the operator a copy of the final helicopter inventorydata form to verify the information.

6. Place forms in binder for air operations center. Formsshould be organized to match task with capability.

7. Estanlish a periodic ieport cycle for currency ofinformation.

8. Make determination for registration of emergency workersand whether reimbursement is reauired.

Verification and UpdatinQ

The resource inventory will be a compilation of those data formsrrom operators willing to participate in disaster relief andrescue programs. Therefore, only forms from committed operatorsshould be maintained in the disaster relief plan file.

Final data forms should be verified by the operator so that thereare no transpositions, errors, or misunderstandings as to theoperator's commitment and use cf helicopters. The data forms canalso be used for updating by merely copying them and sending themto the individual operators for revision or continued commitmentto the program.

25

CHAPTER 4COMMUNICATIONS

Essential to all disaster relicf efforts is an effectivecomip-anications capability to deploy helicopters in support ofemergency operations. The nature of the communications systemwill be directly relatea to the magnitude of the particularemergency situation. This chapter will focus on the need andmethodology for establishing an organized network ofcommunications to facilitate the implementation cf a helicoptersupport plan for disaster relief.

Definitions of Terminoloqy, PhraseoloQy, and Acronyms

The various participants in the disaster relief effort employ aset of terms and phrases unique to their operation andinformation processing. Additionally, the use of acronyms(abbreviations) do not always hold the same meaning for allresponders. Medical personnel use an entirely different"vocabulary" to describe physical conditions and treatment. And.terms like "departing the fix" are meaningful only to the pilotand the controller. Because of these distinctions, individualsoperating the communications equipment should strive to eliminatethe use of jargon and acronyms and thus the potential formisinterpretation. Communicate concisely, clearly, andeffectively to your fellow emergency workers.

Establish an Emergency Communications Net

The flow of information from initial request for helicopterservices to the scene must be .tlined sc that the appcopriateorganizations and resources _"n be notified and dispatched.Figure 5 illustrates a hypohetical communications Inetwork forrequesting and managing helicopter support.

Figure 5 highlights the :~:t that one entity should beresponsible for dispatching helicopter support and managing thenelicopter resources as .e relief effort responds to theCisaster. Information is _eyc z.. -n. cocmandos t as thedemand changes. Advisories which alter the level cf support arenoted sequentially through the net on a continuing basis. Thefollowing is a brief explanaticn of the roles of each entity inthe network.

Command Post. The command post (CP) is the initial contact pointthat receives notification of the disaster and requestsactivation of the disaster plan. Generally, this represents thecommunity's communications clearing house or an emergency numberwhere alerts can be issued to authorities. Additionally, as theplan is implemented and needs are identified, requests foradditional services are made through the command post as thecentral contact point.

26

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Incident Commander. The incident commander is the individual incharge of implementing the emergency operations plan. Thisauthority notifies appropriate city/county staff members anddepartment heads of the action and tequests their assistance in"turning on" various emergency operations. The incidentcommander or the delegated representative determines the need foraircraft support and provides information regarding thedisaster or emergency to the air operations center. Thisinformation 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 support needed,6. location of staging areas and/or landing zones,7. weather at landing zone including wind speed and direction

if possible, and8. possible landing hazards.

Air Operations Center. The air operations center will receive,then verify the request from the incident commander. Depending onthe requirements, the air operations center may then communicatewith the command post for further operational and supportrequirements. The air operations center director should befamiliar with helicopters and their capabilities, be able toweigh operational risks, and be experienced in making decisionsunder pressure. The air operations director is responsible forimplementing the helicopter communications plan. The airoperations center will advise, designate, or request air trarriccontrol assistance from the FAA or in some cases the airborne airtraffic controller. In addition, the air operations center willrequest helicopter support; determine the types and numbers ofhelicopters needed; determine the anticipated duration orassignment; establish mission priorities; assess flight crewrelief; organize ground support and security for helicopterlanding zones and staginq areas; arranae for fuel trucks forsusrnined operations at szac.na areas; oo.rdi.-aze a"rr on =-e

ground, in the air, at hospitals, and at staging areas; anddisseminate information such as control maps, frequencies,geographical coordinates of landing zones and staging areas,hazards, call numbers and personnel in charge. In the event aheliport directory does not exist, the latitude and longitudeand/or notable landmarks w.ill be given to the helicopter pilot.

The air operations center not only provides a bounty ofinformation but also continuously monitors activities andinformation from helicopter crews, medical crews, hospitals, airtraffic control, and command and control operations. All thisinformation will be used for assessing further operationalrequirements as details of the disaster are known and the

28

relief/rescue effort progresses. Air operations may also shiftstaging areas, casualty collection points, hospitals, andemergency landing zones as required.

Federal Aviation Administration/Air Traffic Control (FAA/ATC).Although airspace restrictions relate to air traffic control, itis one of the first actions to take place when aircraft are usedin the relief effort. The ability to set aside airspace over thescene so that the normal flow of traffic is routed away from thearea is authorized by Federal Aviation Regulation 14 CFR Part91.137. This regulation provides for the immediate establishmenzof temporary restricted airspace, so that air operations can beconducted safely during a relief and rescue effort. It will beimportant for air operations to determine the need for and theextent of restricted airspace through discussions withappropriate personnel. Air operations will request that thenearest FAA/ATC authority restrict the airspace involved. inmaking the request, air operations will be required to providethe following information:

1. identify the location and reason for declaring FAR 14 CFR91.137,

2. duration of expected restriction - a time frame can beestimated or the restriction can be active "until furthernotice,"

3. altitudes affected - these may be dictated by the nature ofthe disaster, winds, spatial arrangement and heights ofbuildings, number of aircraft needed for rescue operations,etc., and

4. who will be directing relief activities.

Further information on the types of restrictions and relatedprocedures is available in FAA Handbook 7930.2C "Notices toAirmen," chapter 8, Flight Data Center NOTAM Procedures, section88-1,b and 8-3. The regulation authorizing the establishment ofrestricted airspace may be reviewed in 14 CFR Part 91.13",Temporary Flight Restrictions.

Communications Plan. Smooth interaction among the medical andrescue units with helicopter support activities and theprioritization of multiple relief requests comprise the mostcomplicated and dynamic tasks of the communications plan.ideally, the communications plan will help evaluate the initialestimation of damage and assignment of resources and performcontinuous reassessment of these factors and their impact on thelevel of support. The accuracy of the information exchanged isthe basis for making weighted control decisions regarding theresources required for mitigating the disaster. Thecommunications plan is comprised of at least three informationcomponents.

29

1. Medical information. Medical information and trackingconsists of patient information including name, means oftransport, medical status, and destination. The airoperations center assesses the requirements to transportmedical personnel and special medical supplies orequipment. it also determines bed availability andassignment of receiving facilities.

2. Mission assianments. Mission assignments includeoperations, landing zone designation, assessment or rescueefforts, and specification of disaster relief requirements.

3. Air traffic control. Air traffic control consists ofinformation from the FAA and potentially an airorne -irtraric controller (i.e., police helicopter). The airborneair traffic controller will advise and sequence heliccotertraffic in and out of the landing zone and staging areas.The airborne air traffic controller wil also receiverequests from air operations regarding the distribution cfoutgoing helicopter zraffic to hospitals, staging areas,and landing zones. In addition, the airborne air trafficcontroller will coordinate with FAAL air traffic contrlc. asnecessary. FAA ATC will control the restricted airspace,issue NOTAI4's, and support the operations on a more generallevel.

A key to the exchange of information in t:e communications chainis the establishment of separate, autonomous frecuencies fcrmedical, air, and ground operations. Frequency congestion duringthe time of a disaster could pose conflicts in the transmissionof vital information or imoede traffic control to areas whereneeded. It is important that among the various operazionalcomponents there be discrete emergency frequencies dedicated teach function. The command post and te air operations centershould have the ability to monitor these frecuenciessimultaneously for reporting or requesting changes tc t-levels. As hospital facilities reach saturation cr :anainc zonerequirements are relayed to th command pcst, shifts Cr neW

,xrssat levels -*i resources canr oe maae. -l_-ur .,of the participants, the type of information being relayed, andthe frequencies which are comonly used.

Establish Procedures and Protocols

Avoiding chaos and unnecessary radio traffic in the re zl =

is a primary objective of writing and adopting a disaster reliefplan. Determining who is in charge and what logical set cfprocedures should be carried out will help eliminate tNeconfusion that can often accompany the sudden occurrence c' adisaster. Every jurisdiction and mission shculd have written,established procedures in Place for the smooth cocrdination,

30

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control, and performance of rescue operations. Protocols shouldbe specific to avoid misinterpretation of authority forrequesting resources and controlling various a%.tivities relatingto the disaster scene. Because different types of disastersoften dictate different requirements, the procedures should alsobe flexible to be responsive to the specific disaster at hand.

It is advisable that protocols be organized by disaster type,controlling agency, and support mission capabilities of thehelicopter operators. Protocols and procedures should focus onthe areas of information inherent in the communications net. Inaddition, regular exercise of the plan is just as important asthe development of the plan.

Medical Information

There are many types of medical information which are critical tothe relief and rescue effort including evaluation of injuries andspecial equipment needs. There could be the requirement forcommunication of the following medical information components:

1. the command post or emergency operations center foralerting the medical community, i.e. hospitals, flighthelicopter operators, physicians, Red Cross, and volunteeragencies;

2. the disaster scene, regarding location of victims;3. the medical control unit to request special equipment,

specify patient care, transport requirements, and changesin bed availability;

4. the triage area for treatment, stabilization, and priorityfor transport;

5. the landing zone for special transport instructionsdepending on the severity of injury;

6. the air operations center to the receiving facility forpatient condition updates, helicopter ETA, bedavailability, and enroute care requirements; and

7. the log for problems or deviations from establishedprocedures including causes or rationale behind deviationsand results. Pictures and video may enhance the recallprocess during a post incident analysis.

Air Traffic Control

Air traffic control will likely be conducted using either a localATC facility or aerial based controllers. A combination ofFAA/ATC and an airborne controller may be necessary. Procedureswill include:

1. determining the agency who will control air operations atthe disaster scenes;

2. coordinating with the FAA/ATC on when and where to "handoff" aircraft;

32

3. providing "fixes" for landing zones or staging areas oradvising air operations of landmarks for ground referencein locating the site(s);

4. determining traffic flow and advising command post and airoperations of patterns in advance of dispatch, if possible;

5. sequencing aircraft for landing at landing zones or stagingareas;

6. controlling departing aircraft to a disaster support area,a receiving facility, or a hand-off point to FAA/ATC forfurther guidance to intended destination;

7. controlling the flow of observation/surveillancehelicopters or approved broadcast media aircraft within oraround the disaster scene if allowed under 14 CFR 91.91;

8. providing simultaneous damage assessment to command postfor further allocation or management of relief resources;and

9. maintaining log on problems or deviations from establishedprocedures including causes or rationale behind deviationsand results - pictures and video may enhance the recallprocess during debriefing.

Mission Assignment

Mission assignment functions from air operations may beground-side or airborne depending on the resources available atthe time of the disaster. The duties of mission assignment canbe more easily described as a command and control function whichmay encompass damage assessment, resource requirements andrequests, air traffic control, and resource management. Thefunctions include the areas below. The director will:

1. manage emergency operations and aircraft missionassignments;

2. determine the agency that will provide aircraft for use inairborne air traffic control;

3. prioritize activities based on alert levels, i.e. determineairspace requirements, advise authorizing agency or natureand extent of damage, and call for ground and airbornesupport, etc.;

4. provide damage assessment and iiotify command post ofresource requirements and available staging areas close toscene;

5. advise command post and manage resources as reliefrequirements shift from one area to another or as the needfor support diminishes to adjust the response levels; and

6. maintain a log on problems or deviations from establishedprocedures including causes or rationale. Pictures andvideo may enhance the recall process during the post-incident analysis.

33

Documentation

Organization and education are the keys to efficient responserequirements at the time of the disaster. The plan will serve asa guide during times of emergency and will also be valuable as atraining tool for new personnel assigned to disaster relief andfor exercises. The communications plan should be located in theoverall disaster relief plan as a separate tabbed section.Sections of the communications plan should generally follow theoutline below and will enhance both the training, exercises,review, and real-time disaster relief process. The followinglist details the communication plan elements:

1. definitions and acronyms for understanding disaster,aircraft, medical, and radio terminology and phraseology;

2. organizational flow chart, general description ofresponsibilities for each component of the communicationsnetwork;

3. step-by-step process in requesting resources based on alertlevels;

4. telephone and radio frequency lists of communicationsauthorities by network component, participating helicopteroperators (including government flight operations),facsimile numbers, frequencies for UHF/VHF, FM, AM,shortwave, citizen's band, cellular telephone numbers,etc.;

5. communications equipment requirements for emergency usebased on relief/rescue role;

6. instructions on assigning call signs for new volunteerhelicopter operators;

7. sample briefing documents or forms that can be easilycompleted and hand delivered or faxed to authorities,dispatch centers and/or helicopter operators;

8. responsibilities and procedures for each participant in thedisaster relief effort;

9. responsibilities and procedures for each mission type fornew participants; and

10. control maos that can bR markei ino for iden.2vina srpainaareas, landing zones, o- relilf areas participants.

34

CHAPTER 5

LANDING AREAS

Selection Criteria

-Helicopter operations within the context of a disaster or MCIrelief effort will require the strategic use of landing areas inproximity to the scene. Depending on the mission these can beone of three sites: existing heliports (public or private),predesignated emergency landing areas, or an on-demand temporaryfacility to be used specifically for relief activities. Thischapter discusses the general criteria for establishing landingareas. It should be understood that the criteria in this chapterrefer to temporary facility establishment.

Before heliports and emergency landing sites can be establishedin support of the helicopter integration plan, it is firstnecessary to determine specific site selection and/or approvalcriteria for such landing zones. This makes it possible torecognize candidate sites for designation as emergency landingzones and to standardize, to the extent possible, helicopteremergency facilities for maximum safety and utility.

The FAA has published recommendations for heliport design andconstruction in an advisory circular (AC) entitled "HeliportDesign," AC 150/5390-2C. The criteria contained in this AC areadvisory in nature and not binding on the public, unless it isincorporated in ordinances or regulations. It does, however,represent the best government and industry consensus of theminimum requirements for a safe and functional heliport. It iswithin the prerogative of any jurisdiction to impose additionalor more stringent criteria on heliport establishment, over andabove those contained in the AC, but it is generally notnecessary nor recommended. Further information on heliports maybe obtained from the resources listed in Table 2.

Heliport site selection and design criteria are basically mattersof common sense. The three fundamental'requirements for anyne±icopter lanalng faayi r ,c whichn te

aircraft can land and occupy prior to takeoff; at least one clearapproach and departure path, free of obstructions and obstacles;and an indicator to show the pilot wind direction and velocity.All heliports have these three characteristics as a minimum.Embellishments on these basic requirements are usually a functionof the purpose of the facility, how much money is available todevelop it, and how much it will be used. In a disastersituation with multiple helicopters participating, it isdesirable to have established multiple approach and departurepaths into the landing zone. This allows delays to be kept at aminimum and safety at a maximum.

35

TABLE 2 HELIPORT INFORMATION SOURCES

Professional-and/or industry associations

Airborne Law Enforcement Association (ALEA)8060 Balboa BoulevardVan Nuys, CA 91406818-781-5087

Aircraft Owners and Pilots Association (AOPA)421 Aviation WayFrederick, MD 21701301-695-2000

American Helicopter Society (AHS)217 N. Washington StreetAlexandria, VA 22314703-684-6777

Appalachian Helicopter Pilots Association-c/o6 Pitt'ston Coal CompanyP.O. Box 4000Lebanon, VA 24266703-889-4000

Ass6ciation of Air Medical Services (AAMS)35 S. Raymond AvenueSuite 205Pasadena, CA 9110581'8-793-1232

Bay Area Heliport Councilc/o Aris Helicopters1138 Coleman AvenueSan Jose, CA 95110408-998-3266

Eastern Region Helicopter Council (ERHC)c/o acnering-Piougn CorporationLinpro Jet CentreMorristown Municipal AirportMorristown, NJ 07960-4648201-539-1840

Emergency Response Institute, Inc;4537 Foxhall Drive, N.E.Olympia, WA 98506206-491-7785, 509-782-4832

36

TABLE 2 HELIPORT INFORMATION SOURCES(CONTINUED)

Hawaii Helicopter Operators AssociationL77-8 Ala Moana BoulevardHonolulu, HI 968-15-1605808-836-1566

Helicopter Association Northwestc/o Elliott Bay Aviation, Inc.8535 Perimeter Road SouthSeattle, WA 9810820 6 767-3290

Helicopter Association International (HAT)161-9 Duke StreetAlexandria, VA 22314-3439703-683-4646

1. The Helicopter Annual: A comprehensive guide to thehelicopter industry including helicopter specifications,industry statistics, operator and manufacturer listings, andkey government and industry contacts worldwide.2. Directory of HeliDorts and Helistops: A complete listingof public/ private use heliports and hospital heliports in theUnited States.

Helicopter Association of Floridac/o Crescent Airways, Inc.7501 Pembroke RoadHollywood, FL 33023305-987-1900

Helicopter Operators of Texasc/o Houston PoliceHelicopter Patrol8402 Larson-Hobby AirportHouston, TX 77061713-641-0281

Metroplex Helicopter Associationc/o Aerospatiale Helicopter2701 Forum DriveGrand Priarie, TX 75053-4005214-641-0000

Michigan Helicopter AssociationP.O. Box 2613Southfield, MI 48037313-669-3080

37

TABLE 2 HELIPORT INFORMATION SOURCES(CONTINUED)

Mid-Atlantic Helicopter Association (MAHA)1282'6 Dover RoadReistertown, MD 211363-01-682-5400

National Association of State Aviation Officials (NASAO)Metro Plaza One8401 Colesville Road, Suite 505Silver Spring, MD 20910301-588-0587

National EMS Pilots Association (NEMSPA)P.O. Box 8272Rapid City, S.D. 57709605-341-0273

New England Helicopter Pilots AssociationP.O. Box 88Bedford, MA 01730617-973-7181

Northwest Rotorcraft Association111 S.W. Fifth Avenue, Suite 3500Portland, OR 97204

Ohio Helicooter Pilots Associationc/o WBNS-TV770 Twin Rivers DriveColumbus, OH 43216614-460-3769

Professional Helicopter Pilots Association of California (PHPA)P.O. Box 9558Glendale, CA 91206805-496-0986

Western Helicopter Safety Advisory CouncilP.O. Box 1337Provo, UT 84603801-375-1124

38

TABLE 2 HELIPORT INFORMATION SOURCES(CONTINUED)

Regional Heliport Development Coordinators

The FAA has designated Regional Heliport Development Coordinators

to assist in carrying out mission responsibilities in the area of

heliport development. Cocrdinators are listed below.

FAA New England RegionWeedon Parris (ANE-6101)12 New England Executive ParkBurlington, MA 01803617-273-7053

FAA Eastern RegionAl McDonough (AEA-630)Fitzgerald Federal BuildingJohn F. Kennedy international AirportJamaica, NY 11430718-917-1966

-FAA Southern RegionCharles V. Prouty (ASO-620D)3400 Norman Barry DriveEast Point, GA 30344404-763-7756

FAA Great Lakes RegionBenito DeLeon (AGL-611.2)2300 East Devon AvenueDes Plaines, IL 60088312-694-7531

FAA Southwest RegionDepartment of Transportation/ Federal Aviation AdminisrationATTN: Hugh Lyon (ASW-611C)Fort Worth, TX 76193-061181-624-5600

FAA Northwest Mountain RegionCecil Wagner (ANM-610)1601 Lynd Avenue, S.W.Renton, WA 98055-4052206-227-2610

FAA Central RegionRoland Elder (ACE-611)601 East 12th Street, Federal BuildingKansas City, MO 64106816-426-6921

39

TABLE 2 HELIPORT INFORMATION SOURCES(CONTINUED)

FAA Western Pacific RegionHaime Duran (AWP-61.4)15000 Aviation BoulevardLawndale, CA 90261213-297-1538

FAA Alaskan RegionFloyd Pattison (AAL-610)701-C Street, Box 14Anchorage, AL 99513907-271-544C

Additional Sources of Information

Federal Aviation Administration - Vertical Flight Special Program800 Independence Ave., S.W. Office (ARD-30)Washington, D.C. 20591 202-267-8759

- Office of Airport Planning andProgramming, National PlanningDivision (APP-400)202-267-3451

- National Flight DataCenter (ATM-610)202-267-9277

The heliport design advisory circular contains more specific anddetailed criteria for these specific aspects of heliport design.

What follows is a general discussion of the points that should betaken into consideration when designing Cr designating helicopterlanding sites, regardless of whether the faci2.iyv is permanent ortemporary, extensive or simple.

Logistical Support. Long term operations require support in theareas of fuel, maintenance, flight crew food, fluids, rest, etc.Planning must reflect these needs and provide a means ofobtaining the necessary resources. The incident command systemhas these logistical support reauirements built into it.

Location. When selecting the location of an emergency usehelicopter landing zone, whether temporary or permanent, bear inmind the ultimate purpose of the facility. Landing zones nearthe disaster site and the emergency room entrance at thereceiving hospital are most desirable, but not at the expense ofsafety, communications, and operations. The location shouldprovide at least one-half rotor diameter (consider the largest

40

helicopter expected to use the facility), but not less than 20feet horizontal clearance between the takeoff and landing areaand buildings, trees, fences, telephone poles, hillsides, oranything else that could be struck by main or tail rotors.

The landing area at the scene should be placed far enough awayfrom activity centers where rotor downwash will not blow dust orsupplies around and noise will not interfere with communications.

Minimum Size (Dimensions). As a general rule, takeoff andlanding areas should be no smaller than twice the rotor diameterof the largest helicopter expected to use the facility. Seefigure 7.

2 RD (Min.)

LandingZone

S(RD - Rotor Diameter)

Wind Indicator

FIGURE T MINIMUM LANDING ZONE REQUIREMENTS

Surface Slope (in degaees). The landina surface should be flat

but in no case should the slope exceed 10 degrees from thehorizontal.

Surface Composition. Load bearing surfaces should be capable ofsupporting one and one-half times the largest helicopter'smaximum takeoff weight. Heliport surfaces should beskid-resistant. To minimize the effects of rotor downwash allhelicopter landing areas should be free of dust, loose dirt,pea-sized or smaller gravel, and other forms of loose debris andobjects. Turf landing zones are quite suitable, but vegetationshould be generally no higher than 12 to 18 inches in height.Wheeled helicopters are especially sensitive to soft landing

41

surfaces. A helpful practice in dirt areas is to wet down thelanding area with a hose before landing operations begin.

Obstructions and Obstacles. Lights, tie-downs, signs, fireextinguishers, etc. within the takeoff and landing area, shouldbe flush with the surface or mounted on frangible supports.Obstacles adjacent to permanent facilities should be marked andlighted and temporary landing zones should be situated as faraway as possible from dangerous obstructions, particularly thosethat are difficult to see from the air, such as power lines,telephone lines, guy wires, and poles that blend into thebackground. Obstructions should be noted to pilots and lightedat night without interfering with the air crews night vision.

Approach and Departure Paths. Helicopters operate best when theyare taking off or landing into the wind. Thus access and egressroutes should point into the wind and provide an'obstruction-freeaerial pathway from the landing zone to an altitude of 500 feetabove the. surface at a hcrizontal-to-vertical ratio of 8: (irnaccordance with 14 CFR Parz 77). See figure 8.

Takeoff &Landing Approach

280 ft

Surfacee

,,roacn ea.~i " " 35 ft (10.5 m) Clearance

FIGURE 8 VISUAL APPROACH AND DEPARTURE PROTECTION AREA

42

In addition, approach and departure paths should not pass overcommand posts, treatment areas, or operationally congested areason the ground where rotorwash and/or noise may interfere withcommunications and operations.

Wind Indicator. A means of indicating to the pilot the velocityand direction of the wind at the landing zone is essential. Thepreferred means is a wind sock or cone, but it can be as simpleas a flag mounted on a pole. it should be located so as not tointerfere with flight operations but still give a true indicationof wind speed and direction. in areas with swirling or varyingwinds, such as near buildings or in mountainous areas, two ormore wind indicators may be desirable.

Lighting. Lighting systems are necessary to support night opera-tions, but they are usually only practical to install atpermanent heliports. Portable lighting systems are commerciallyavailable and can be used at temporary facilities. Flares,vehicle lights, and other light sources are acceptable fieldexpedients as long as they are deployed by trained oersonne l.

Security. For permanent sites, fences and hedges can effectivelyrestrict inadvertent or unauthorized access to heliports andhelipads, but they must not present a hazard to flightoperations. it is absolutely essential to have specially trainedand equipped personnel responsible for security at temporarylanding zones, since confusion and excitement can createextremely dangerous situations for persons on the ground as wellas for helicopters using the facility. For on-the-scene landingareas, an effective barrier of vehicles or very secure rope canaide in keeping the flow of relief activity away from theoperational area.

Triage Areas (if appropriate). The primary concern inestablishing a temporary landing zone to support disaster reliefefforts should be aeronautical safety and efficiency cfoperations. On the other hand, in disaster situations, thehiahes" oriorities are alwavs placed on savinc lives andreleving sufern of th -aul s Thrfr.-mreclanding zones should be siruoas. a sr o as possible t= triageareas in order to facilitate and expedite patient transport.However, their location should not allow helicopter operations tointerfere with the efforts of triage and medical teams or furtherendanger the victims and add to their discomfort with noise,rotor downwash, and flying debris.

Surveys and Inventory

Once site selection criteria are established, it then becomespossible to survey, inventory, and catalog all of the existingand potential landing sites. The first step is to locate andidentify all existing local aviation facilities that are capable

43

of supporting helicopter operations. Specific attention shouldbe paid to:

o public-use heliports and airports;o private-use heliports and airports; ando hospital heliports.

With regard to these existing facilities, it is important to notenot only their location, but the services, supplies, and otheramenities they may have to offer. Of particular interest is theavailability of fuel for helicopters. Another area of interestmay be the medical or first-aid facilities located nearby and thedirection distance, and recommended routes to and from thenearest hospitals and trauma centers. Many air medical transportservices .have already surveyed their regions and develooed"predesignated landing zones." Such listings, where available,may be very helpful. This last information should be provided toall police and fire units, as well as all ambulance services inthe area.

it may be necessary to make special arrangements with the ownersor operators of private-use heliports in the area to incorporatethese facilities into the disaster response plan in order to havethem available for use when needed. Since there are orten manvmore private-use heliports than public-use heliports in any aivenlocality, such Preparation may yield a broader-based heliportsystem that may better meet the needs of the community in theevent of a disaster and should prove quite useful during lesseremergencies.

Unfortunately, in many parts of the country, the number ordistribution of helicopter landing facilities in the area mav beinadequate to meet the requirements of the plan for helicopterresponse to disasters. if that is the case, a concerted effortto encourage and plan the development o, public-use heliports maybe called for to assure that they are established where they areneeded. Not only would such a program enhance the community'sability to respond tb disasters, but it would also providenus.iness and -- se~aon fi to the "'l uncer ncrmal,-everyday conditions. in fact, under the ausoices of the FA-A'sNational Plan of integrated Airport Systems (NPIAS), the FAA'sAirport Imorovement Program (AIP) can provide grants of up to 90percent for planning and construction of public-use heliports andairoorts.

To augment the network of established helicopter facilities andto expand the coverage of potential helicopter response, it isadvisable to pre-designate as many temporary landing zones aspossible in parks, ball fields, school yards, vacant lots, etc.The same set of site selection criteria should be applied to thedesignation of these unimproved sites as suitable emergencylanding fields and helicopter staging areas. For area hospitals

44

with small (or no) helipads on the premises, sites to handleoverflow helicopter operations should also be identified anddesignated as auxiliary landing zones in nearby fields, parkinglots, and roads that can be temporarily blocked off.

As the existing and potential landing zones in the j.".'sdictionare being identified, it is then necessary to collect and recordthe pertinent data and consolidate it in a directory or catalogthat can be used by helicopter pilots. Photographs and/ordrawings of the rooftops of all high-rise buildings in the areathat are beyond the reach of ground-based fire fighting andrescue apparatus should be included. Local helicopter-pilotorganizations or operators will usually be happy to assist inputting this information into a standardized form that would berecognizable and most useful to themselves and others. With thisstep complete, a directory of maps and charts, drawings and/oraerial photos of landing zone locations and layouts should beprepared and disseminated to all concerned. This document shouldbe updated and disseminated as often as necessary to keep pacewith new construction and other geographical changes.

Further collapse of buildings weakened by an earthquake or winddamaging storm could occur from helicopter or other aerialactivities. Planners and helicopter operators should be aware ofpossibly causing further damage from helicopter noise vibrationand rotor downwash. Airspace restrictions should not be soextensive as to interfere with valid and safe air operations, butneed to limit operations that could cause further damage.

45

CHAPTER 6

PLAN ACTIVATION, EXERCISES, AND POST-INCIDENT ANALYSIS

Plan Activation

Once the plan has been developed, it is critical that it betested several times before being implemented. Problems need tobe identified and corrected with each exercise or actual event.All disaster response plans should be tested on a regular basis.

An activation checklist should be followed for either an exerciseor the actual event. As shown in figure 9, the common elementsto plan activation, are the following:

1. notification of requirement for helicopter support by a

designated activation authority,

2. activation of the air operations branch,

3. activation of the log or record book,

4. determination of alert level by type of response required,

5. inclusion into the emergency operations network, and

6. notification of alert level to responders.

Incident Veiicto Air Operations

Commnde ReqireentActivation Checklist

Exercise TheRealThn

Full Modified TableThn

Scale Full Scale TOp

FIGURE 9 PLAN ACTIVATION

46

Exercises

Disaster preparedness officials have long known the value ofconducting exercises. When a sophisticated piece of equipmentsuch as a helicopter is involved, it needs to be included in thetesting of the emergancy response system. It has been said thatexperience is the best teacher and there is really no disputingthat contention. Most of the principles of disaster planning arebased on the sometimes painful lessons learned under actualcatastrophic conditions. Like combat for soldiers, disastersituations test not only courage, stamina, and resourcefulness,but also the applied knowledge and acquired skills of the trainedpeople who are responsible for disaster response. Obviously,waiting for disasters to happen in order to test their responseeffectiveness is just as unacceptable as waiting until wartime toevaluate military capability.

The military has long since recognized the value of exercises fortraining troops and determining the level of their effectivenessand readiness. Exercises provide the opportunity to learn how tobest employ local helicopter assets in realistic and controlledsettings that are relatively free of risk. Repetitive exercisesfirst teach and then ingrain specific responses to specificsituations by non-aviation people when working with helicopters.As a result, they become confident of their own skills andabilities, as well as those of the helicopter pilots andoperators. The responders are therefore better able to perceiveand effectively react to unforeseen complications. Theobservation and analysis of their response to simulatedsituations indicates what need there is for corrective actions to"shore up" weak areas. At the same time, these exercises instillcon'fidende on the part of others in the community who learn thatthey can rely on helicopters for support in their time of need.

The first step in setting up a good training exercise is todevelop a plausible and useful disaster scenario that tests theeffectiveness of the local plan or a specific portion of it. Thedisaster situation should simulate realistic disaster occurrencessuch as hurricanes in South Florida or blizzards in DNorth akota.Helicopter-based exercises, along with reaction exercises todisasters and mass casualty incidents, are invaluable in theexperience they lend to the disaster workers. For example, whenyou practice for a blizzard, conduct your exercise during thewinter after there is snow on the ground. Practicing forblizzards in July doesn't contribute to learning about winteroperations and their unique characteristics.

Regardless of the scenario, it is important to publicize theschedule and objectives of the exercise well in advance so thathelicopter operators can be prepared to accurately evaluate theirperfoimance. Unexpected or surprise exercises may have somevalue in testing response times, but generally they are to be

47

avoided if the overall objective is training or determiningreadiness. National Fire Protection Association (NFPA) Standard424, FAR 14 CFR Part 139, and FAA AC 00-7B can serve as a guidefor incorporating helicopter operations into airport and-community disaster exercises. It is essential to continually-maintain logs of all exercise events in order to fully documentthe strengths and weaknesses experienced. Once operational-proficiency is demonstrated then the participants can be includedin the plan.

Exercises involving the use of helicopters should be conducted asoften as possible at one of three levels. There are advantagesand disadvantages to each type of exercise and the final decisionregarding which type to hold and how often to hold them should beleft to the community planners.

Full-scale Exercises. Realism is the key to success in this typeof exercise, but providing it can be expensive and timeconsuming. While there is always a certain amount of real riskassociated with a full-scale response to a simulated situation,these exercises have the potential to provide the best possibletraining. This type of exercise is also an excellent way toexpose weaknesses and deficiencies that cannot be anticipated inany other format.

Modified-Full-Scale Exercises. Very realistic exercises, whichare nevertheless modified in order to save money and reduce riskto the participants, can effectively test the readiness andefficiency level of specific phases of the local disasterresponse. One variation of this type of exercise alerts allhelicopter operators (according to the alert level of thescenario) and brings them to full readiness but does not actuallyexecute the full response capability of :he plan, or only does sopartially. Once realistic response times are known, othermodified exercises can be held to test the other parts of a givendisaster scenario.

Table-Top Exercises. This type of exercise tests thecommunications network tha is necessary -e -t-c use ofhelicopters in disaster response. They are useful in theidentification of deficiencies in response capabilities, but theyonly test the effectiveness of the model, not the "real thing."Table-top exercises have the distinct advantage, however, ofbeing the least expensive and least time-consuming of all theexercise formats. They have a very high value when conductedcorrectly.

Post-Incident Analysis

One of the most important functions dealing with emergencypreparedness is the post incident analysis. The ability toidentify, analyze, and correct any problems or deficiencies is

48

critical to the successful integration of helicopters into theplanning process.

It is recommended that debriefings of disaster workers occur asthey come off shift or at the conclusion of the relief effort.The agencies that participated in the plan should be required tofill out an evaluation form or, at the very least, speak to adebriefer. Perhaps as a precursor to any stress debriefingswhich may occur, the disaster workers could be debriefed on theirparticipation in the plan. The participants should be able tocontribute to what happened during the incident and supplementthe record and log book information. Briefly, planners should:

1. review documentation,

2. identify deficiencies, and

3. implement corrective action.

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LIST OF ACRONYMS

AATC Airborne Air Traffic ControlAC Advisory CircularAIP Airport Improvement ProgramAM Amplitude ModulationANG Army National GuardATC Air Traffic ControlAT&T American Telephone & TelegraphCAP Civil Air PatrolCB Citizens BandCFR Code of Federal RegulationsCP Command PostCPG Civil Preparedness GuideEMS Emergency Medical ServiceENG Electronic News GatheringEOC Emergency Operations CenterETA Estimated Time of ArrivalFAA Federal Aviation AdministrationFAR Federal Aviation RegulationFDC Flight Data CenterFLIR Forward Looking InfraredFM Frequency ModulationHAZMAT Hazardous MaterialHELP Helicopter Emergency Lifesaver PlanIC Incident CommanderICS Incident Command SystemIFR instrument Flight RuleLZ Landing ZoneMCI Mass Casualty IncidentNBVF National Burn Victim FoundationoNFPA National Fire Protection AssociationNOTAM Notice to AirmenNPIAS National Plan of Integrated Airport SystemsRD Rotor DiameterSAR Search and RescueSARDA State and Regional Disaster AirliftUHF Ultra High FrequencyuSCG; United States Coast GuardVHF Very High FrequencyXpond Transponder

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APPENDIX AOUTLINE OF ELEMENTS FOR TYPICAL HELICOPTER INTEGRATION PLAN

The following is a title list for the major sections of a typicalplan for integrating helicopters into emergency planning.Detailed elements of each section are then further delineated:

I. Establish GoalsII. Plan PreparationIII. Aircraft Resource InventoryIV. CommunicationsV. Landing AreasVI. Plan Activation, Exercises, and Post-Incident

Analysis

Detailed section elements:

I. Establish Goals

A. Guideline Goals

1. Save lives2. Effective orientation with helicopter capabilities3. Effective integration of helicopters into local disaster

preparedness4. Open lines of communication between helicopter operators

and the community5. Encourage the establishment of heliports

B. Assumptions

1. General plan for emergency preparedness in effect ordevelopment

2. Incident command system usage3. Helicopter assets available4. Ground-based ambulances primary, expected means of

transport.C. Potent"al He'icopter i o

1. Search and rescue2. Transport of medical teams/supplies.3. Transport of disaster specialists4. Transport of trauma patients5. Emergency evacuation6. Airborne control and assessment7. Airborne air traffic control8. Electronic news gathering9. Fire fighting10. Damage survey11. External lift12. Return of personnel and equipment13. Security and crowd control14. Inspection tours

15. Hazardous material operations

16. Inspection tours

II. Plan Preparation

1. Fully understand existing plans, agreements,regulations, and juristicional issues.

2. Train first responders in all elements of the plan.3. Activate air operations branch of the incident command

system.4. Define alert levels5. Identify manmade and natural hazards which could lead

to a disaster6. Develop special response procedures

III. Aircraft Resource Inventory

1. Identify and-survey helicopter operators2. Define operational requirements3. Define capabilities of each participant4. Verify and update survey information

IV. Communications

1. Establish an emergency communican:ions networka. Command postb. incident commanderc. Air operations centerd. Federal Aviation Administration air traffic controle. Mission assignment and briefingf. Medical information (patient status)g. Local airborne air traffic control

2. Establish procedures and protocolsa. Federal airspace restrictionsb. Medical informationc. Air traffic controld. Mission assignmente. Documentation

V. Landing Areas

1. Selection criteriaa. Logistical supportb. Locationc. Size and sloped. Surface compositione. Obstructions and obstacle identificationf. Approach and departure pathsg. Wind indicatorh. Lightingi. Security

A-2

j. Proximity to treatment areas2. Site survey and inventory

a. Existing facilitiesb. Potential temporary sitesc. Publish directory

V-I. Plan Activation, Exercises, and Post-Incident Analysis

1. Activation checklist2. Exercises

a. Plausible scenariob. Full-scale exercisesc. Modified-full-scale exercisesd. Table-top exercises

3. Post-incident analysisa. Review logsb. Debrief personnelc. Identify deficienciesd. Implement corrective action

A-3

APPENDIX B

BIBLIOGRAPHY

:FEDERAL GUIDELINES/REGULATIONS

1. National Plan of Integrated Airport Systems (NPIAS) (latestedition), Report of the Secretary of Transportation to CongressPursuant to P.L. 97-248, U.S. Department of Transportation,Federal Aviation Administration.

2. FAA, Rotorcraft Master Plan, FAA-P-8100.1, AWS-l 0989,(latest edition).

3. Rotorcraft Use in Disaster Relief and Mass Casualty Incidents-.Case Studies, DOT/FAA/RD-90/10 NTIS # ADA229401, June 1990.

4. FAA, General Operatina and Fliaht Rules, Federal AviationRegulation 14 CFR Part 91.

5. FAA, Rotorcraft External-Load Operations, Federal AviationRegulation 14 CFR Part 133.

6. -FAA, Air Taxi Operators and Commercial Operators, Federal

Aviation Regulation 14 CFR Part 135.

7. FAA, Helioort Design, AC 150/5390-2, 1988.

8. FAA, Noise Assessment Guidelines for New Helioorts, AdvisoryCircular 150/5020-2. (latest edition).

9. National Fire Protection Association 403; Aircraft Rescue andFire Fighting Services at Airports, (latest edition).

10. National Fire Protection Association 418; Roof Top HelioortConstruction and Protection, (latest edition).

11. Heliport System Plannina Guidelines, DOT/FAA/PP-88/3, April1 9P

12. Notices to Airmen (NOTANS), FAA Handbcok 7930.2C.

13. FAA, State and Reaional Disaster Airlift (SARDA) Plannina,Advisory Circular 00-7B. August 31, 1987.

14. FAA, Decision Making for Helicopter Pilots, DOT/FAA/PM-86/45,1987

15. National Fire Protection Association 296, Guide for AirOperations for Forest, Brush, and Grass Fires, 1986.

16. Aeronautical Decision Makina for Natural Resource Pilots,8957-1201, United States Department of Agriculture, ForestService, 1989.

17. FAA Rotorcraft Research, Enaineerina, and DevelopmentBibliography, 1962- 1989, DOT/FA-A/RD-90/1, 1990.

18. Guide for the Development of State and Local EmergencyOperations Plans, Federal Emergency Management Agency, CPGI-8,September 1990.

HELICOPTER OPERATIONAL CHARACTERISTICS DATA

1. FAA, Basic Helicopter Handbook, 1978, AC61-13B.

2. Fly Neighborlv Guide, Helicopter Association International,Heliports and Airways Committee, ISSN 0739-8581, (latestedition).

OTHER DOCUMENTS

1. FAA, Air Ambulance Helicooter Ooerational Analysis,DOTiFAA/RD-91/7.

2. Dallas/Fort Worth Metroolex Helicooter Emeraency LifesaverPlan (HELP), Bell Helicopter Textron, Inc., (latest edition).3. National Burn Victim Foundation Medical Disaster Resoonse

System Ooerations Manual, National Burn Victim Foundation, 1988.

4. -American Society for Testing and Materials, Standard Guide forPlannina for and Response to a Multiole Casualtv incident, ASTMF1288-90, August 1990.

5. incident Command System, Field Operations Guide, ICS 420-1.

6. Uodate Assessment of the Use of Helicoorers for EmeraencvMedical Transoort in the Metrooolitan Washinaton Area, TheMetropolitan Washington Council of Governments, 1985.

7. Aircraft Assistance in Disaster (AAID) Plan, City of Houston,Texas, April 1983.

8. Aviation Manaaement Procedures Handbook, California Departmentof Forestry and Fire Protection, 1988.

9. Los Anaeles City Fire Deoartment Air Ooerations Procedures andPost Fire Critiques, Los Angeles City Fire Department, 1985 -

1989.

B-2

10. Stoffel, R., Lavalla, P., Personnel Safety in HelicopterOperations, Helirescue Manual, Emergency Response Institute,1988.

B- 3

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