Most airport operators and response personnel are familiar with The National Incident Management System (NIMS) and the Incident Command System (ICS), but how do we truly integrate ICS for a more effective response to incidents with respect to the variability of an airport environment? What practices and training should be prioritized for successful integration and practical application?
According to Title 14 of the Code of Federal Regulations, Part 139 regulated Airports are required to integrate NIMS into their airport emergency plans. As a quick refresher, NIMS is a standardized approach to incident management developed by the United States Department of Homeland Security. NIMS utilizes ICS as an incident management tool which provides for a standardized approach to command, control and coordination. Federal Aviation Administration Advisory Circular 150/52-31C provides guidance to Part 139 regulated Airports for the integration of NIMS.
This guidance comes with a variety of complexity for implementation and integration at our nation’s airports that include a wide range of operating environments. As a note, not every airport in the US is regulated under the Code of Federal Regulations-Part 139, including many general aviation airports. Though not all are federally mandated to implement NIMS, it is noted that NIMS and ICS guidelines are applicable and useful to airports of various size and type of operation for a coordinated and integrated approach to incident response and command. As noted in the Airport Cooperative Research Program (ACRP) Report 103, airports may face many challenges in the integration of NIMS including resource availability, budget, willingness of personnel, reliance on community and mutual aid resources, frequency of events and management support.
Major emergencies at an airport, those that have the capability to impact human lives, cause damage to property/environment or have a significant impact to the operational status of the airport might be categorized as low frequency, but high impact. In the event of a major emergency, it might be easier to anticipate the benefits of a pre-planned, standardized approach to management of an incident that includes multi-agency response and recovery. Let us though consider the type of incidents that airports deal with most routinely; incidents that may be short in time duration, those in which an airport operator may have a well-rehearsed, check-list type of response to. These incidents may include those such as aircraft alerts that are not elevated to emergencies, weather events, power disruptions, hazardous material incidents, crowd control incidents, etc.
These “routine” events are often managed by resources within the fence line, handled effectively through routine, often without a major disruption to operations. Integrating ICS in these types of incidents, non-emergency or pre-planned events is an effective way to create muscle memory and confidence in ICS principles. Practices such as activating the emergency operations center, formal documentation, pre-establishment of incident commanders based on the incident type, formal radio communications, coordinated dissemination of public information, utilizing common terminology, conducting debriefs and after-action reporting allow personnel to practice and become proficient with these concepts.
Additional practical ways for integration might include placing a heavy emphasis on ICS principles during emergency exercises. This includes discussion on how command will be established and communications will occur. There are often misunderstandings about the command-and-control component of ICS in an airport environment as agencies who may have specific jurisdiction or command responsibilities outside of the fence line, may operate in a different command structure within the fence line. As many airport operators can attest, this has the potential to result in power struggles and turf wars. Pre-planned discussion through exercise allow for structured integration and relationship building in support of this standardized approach to control and command.
Lastly, and perhaps most important, buy-in and support from airport management and personnel is crucial in effective integration and application of ICS. It may be useful to establish policy that dictates the level of training that those who have roles in an emergency and within the incident command structure must complete prior to taking on this role. This assists in establishing a common platform to support personnel in understanding their role in the command system, and how this role might differ from their everyday role in the organization. For example, members of airport leadership might support an emergency in a policy capacity, versus a command role within ICS. These roles should be understood, communicated and well-practiced in support of an effective response.
