Disclaimer: Individuals using this document are encouraged to refer to the most recent Aviation Disaster
Family Assistance Act (ADFAA) legislation at https://uscode.house.gov.
Federal Family Assistance
Framework for Aviation Disasters
Prepared by—
The National Transportation Safety Board
Transportation Disaster Assistance Division
Revised 2023
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Table of Contents
Acronyms, Initialisms, and Abbreviations ............................................................................................... 9
Legislative Background and History of the National Transportation Safety Board Family
Assistance Program ................................................................................................................................. 11
Family Members Speak: ...................................................................................................................... 11
Former Chairman of NTSB speaks: .................................................................................................... 11
Aviation Disaster Family Assistance Act ................................................................................................ 13
When does the law apply and who is considered a carrier? ....................................................... 13
Who is Considered a Passenger? ................................................................................................... 14
Who is Considered a Family Member of a Passenger? ............................................................... 14
Legislated Roles and Responsibilities ................................................................................................ 15
The Role of the NTSB ....................................................................................................................... 15
The Role of the NTSB’s Designated Organization (American Red Cross) ................................. 15
The Role of the Air Carrier ............................................................................................................... 16
NTSB Federal Family Assistance Plan for Aviation Disasters .......................................................... 16
Summary of Major Changes ................................................................................................................... 17
From Plan to Framework ..................................................................................................................... 17
Family Support Tasks ....................................................................................................................... 18
The Fundamental Concerns of Families ........................................................................................ 18
Response Partner Matrix...................................................................................................................... 19
Coordination and Integration with Local Response Organizations ............................................... 20
Friends and Relatives Centers ......................................................................................................... 21
Passenger Gathering Area .............................................................................................................. 21
Reunification Centers ....................................................................................................................... 21
Family Assistance Center ................................................................................................................. 22
The Role of the Joint Family Support Operations Center ........................................................... 22
JFSOC Coordination Call ................................................................................................................ 22
Virtual Family Assistance Operations/Remote Information Centers .......................................... 23
Fundamental Concern 1: Notification of Involvement ........................................................................ 25
Overview ............................................................................................................................................... 25
Response Partner Matrix...................................................................................................................... 27
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Family Support Tasks (Concern 1 – Notification of Involvement) ................................................... 27
NTSB FSTs ......................................................................................................................................... 27
Air Carrier FSTs ................................................................................................................................. 28
DOS FSTs ........................................................................................................................................... 31
Fundamental Concern 2: Victim Accounting and Identification ........................................................ 33
Overview ............................................................................................................................................... 33
The Role of the NTSB ....................................................................................................................... 35
The Role of the Air Carrier ............................................................................................................... 35
The Role of the Medicolegal Authority .......................................................................................... 36
Response Partner Matrix...................................................................................................................... 38
Family Support Tasks (Concern 2 – Victim Accounting and Identification) ................................... 38
NTSB FSTs ......................................................................................................................................... 38
Air Carrier FSTs ................................................................................................................................. 39
DOS FSTs ........................................................................................................................................... 40
FBI FSTs.............................................................................................................................................. 41
DHHS FSTs......................................................................................................................................... 41
DOD FSTs .......................................................................................................................................... 42
Fundamental Concern 3: Information and Resources ......................................................................... 43
Overview ............................................................................................................................................... 43
Response Partner Matrix...................................................................................................................... 44
Family Support Tasks (Concern 3 – Information and Resources) ................................................... 44
NTSB FSTs ......................................................................................................................................... 44
Air Carrier FSTs ................................................................................................................................. 46
Red Cross FSTs ................................................................................................................................. 51
DOS FSTs ........................................................................................................................................... 53
FBI FSTs.............................................................................................................................................. 54
FEMA FSTs ......................................................................................................................................... 54
FPS FSTs............................................................................................................................................. 55
Fundamental Concern 4: Personal Effects ............................................................................................ 57
Overview ............................................................................................................................................... 57
Response Partner Matrix...................................................................................................................... 58
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Family Support Tasks (Concern 4 – Personal Effects)....................................................................... 58
NTSB FSTs ......................................................................................................................................... 58
Air Carrier FSTs ................................................................................................................................. 59
DOS FSTs ........................................................................................................................................... 60
FBI FSTs.............................................................................................................................................. 60
DHHS FSTs......................................................................................................................................... 60
Appendix 1 – Federal Family Assistance Legislation ........................................................................... 61
Title 49 U.S.C. §1136 ........................................................................................................................... 61
Title 49 U.S.C. §41113 ......................................................................................................................... 67
Title 49 U.S.C. §41313 ......................................................................................................................... 73
Appendix 2 – Air Carrier Assurance Submission Guidance ................................................................ 79
DOT and NTSB Family Assistance Plan Filings ................................................................................. 79
DOT Submissions ............................................................................................................................. 79
NTSB TDA Submissions ................................................................................................................... 80
Appendix 3 – TDA Air Carrier Contact Listing ...................................................................................... 83
Appendix 4 - Air Carrier Accident Notification Flow ........................................................................... 85
Appendix 5 – TDA Accident Notification Supplemental Information Form ...................................... 89
Appendix 6 - NTSB Guidance for Passenger List/Manifest Distribution & Control.......................... 91
Appendix 7 – Family Assistance Operations......................................................................................... 95
Overview ............................................................................................................................................... 95
Pre-Launch Planning ........................................................................................................................ 95
Call Centers ....................................................................................................................................... 95
Family Assistance Facilities .............................................................................................................. 96
Ongoing Family Assistance and Remote Operations .................................................................. 99
Appendix 8 – Joint Family Support Operations Center .................................................................... 101
Definition, Purpose & Objectives .................................................................................................... 101
JFSOC Objectives: ........................................................................................................................ 101
JFSOC Coordination Call ............................................................................................................. 101
JFSOC Facility Considerations ..................................................................................................... 103
JFSOC Meetings ............................................................................................................................ 103
Family Assistance Response Partner JFSOC Liaisons ................................................................... 104
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JFSOC Roles and Associated Tasks ............................................................................................ 104
NTSB TDA chief ............................................................................................................................. 104
NTSB JFSOC coordinator ............................................................................................................. 104
NTSB case manager ...................................................................................................................... 105
Air carrier senior representative .................................................................................................. 105
Air carrier family assistance coordinator ..................................................................................... 105
Air carrier JFSOC liaison ............................................................................................................... 107
Red Cross NTSB liaison ................................................................................................................. 107
Red Cross JFSOC liaison .............................................................................................................. 107
Presiding medicolegal authority JFSOC liaison (as required) ................................................. 108
Medical treatment facility JFSOC liaison (as required) ............................................................. 109
DOS JFSOC liaison (as required) ................................................................................................. 110
Federal partner JFSOC liaison (as required) .............................................................................. 110
State, local, tribal government JFSOC liaisons (as required) ................................................... 111
Appendix 9 – JFSOC Coordination Call Agenda (Sample)............................................................... 113
Objectives .......................................................................................................................................... 113
Meeting Agenda ............................................................................................................................ 113
Appendix 10 – JFSOC Meeting Checklists ......................................................................................... 115
Appendix 11 – Family Assistance Center ............................................................................................ 121
Definition & Purpose ......................................................................................................................... 121
FAC Functions ................................................................................................................................ 121
Location & Facility .......................................................................................................................... 122
Virtual FAC Operations ................................................................................................................. 123
Demobilization ............................................................................................................................... 124
Appendix 12 – FAC Layout (Sample) ................................................................................................... 127
Appendix 13 – Family Briefings ............................................................................................................ 129
Family Briefing Planning Meeting ................................................................................................... 130
Briefing Agenda (Sample) ............................................................................................................ 130
Family Briefing Room Layout (Sample) ........................................................................................... 133
Appendix 14 – Victim Accounting ........................................................................................................ 135
What is Victim Accounting? ............................................................................................................. 135
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Managing Victim Location Data ................................................................................................... 136
Major Aviation Accident Victim Accounting - Best Practices .................................................... 138
Appendix 15 – Victim Identification ..................................................................................................... 141
Definition and Importance ............................................................................................................... 141
Appendix 16 – Accident Site Visit ........................................................................................................ 147
Condition of Site ............................................................................................................................ 147
Environmental Conditions ............................................................................................................ 147
Victim Populations ......................................................................................................................... 148
Logistics, Resources, and Staffing ............................................................................................... 148
Pre-Site Visit Family Briefing ......................................................................................................... 148
Site Visit Waiver (Sample) ................................................................................................................. 151
Site Visit Sign-up Form (Sample) ..................................................................................................... 153
Appendix 17 – Personal Effects Management .................................................................................... 155
Best Practices ..................................................................................................................................... 155
PE Survey Team ............................................................................................................................. 155
Survey Team Final Inspection ...................................................................................................... 155
Monitor Accident Scene ............................................................................................................... 156
One-Year Anniversary ................................................................................................................... 156
Appendix 18 – Family Support Tasks by Role ..................................................................................... 157
NTSB FSTs .......................................................................................................................................... 157
Air Carrier FSTs .................................................................................................................................. 160
Red Cross FSTs .................................................................................................................................. 168
DOS FSTs ........................................................................................................................................... 170
FBI FSTs .............................................................................................................................................. 171
DHHS FSTs ......................................................................................................................................... 172
DOD FSTs ........................................................................................................................................... 173
FEMA FSTs ......................................................................................................................................... 173
FPS FSTs ............................................................................................................................................. 173
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Federal Family Assistance Framework NTSB/Acronyms, Initialism, and Abbreviations
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Acronyms, Initialisms, and Abbreviations
Acronym, Initialism,
or Abbreviation
Expanded Term
ADA
Americans with Disabilities Act
ADFAA
Aviation Disaster Family Assistance Act (The Act)
AFDIL
Armed Forces DNA Identification Laboratory
AFMES
Armed Forces Medical Examiner System
ARFF
aircraft rescue and fire fighting
ASPR
Administration for Strategic Preparedness and Response
CBP
U.S. Customs and Border Patrol
C.F.R.
Code of Federal Regulations
CGA
crew gathering area
CPCN
certificate of public convenience and necessity
DHHS
Department of Health and Human Services
DHS
Department of Homeland Security
DMORT
Disaster Mortuary Operational Response Team
DOD
Department of Defense
DOJ
Department of Justice
DOS
Department of State
DOT
U.S. Department of Transportation
DPMU
DMORT Portable Morgue Unit
DVI
Disaster Victim Identification
EMA
emergency management agency
EMO
emergency management office
EMS
emergency medical services
EOC
emergency operations center
ESF-8
Emergency Support Function-8
FAA
Federal Aviation Administration
FAC
Family Assistance Center
FBI
Federal Bureau of Investigation
FBI ERT
FBI Emergency Response Team
FBI VSD
FBI Victim Services Division
FEMA
Federal Emergency Management Agency
FPS
Federal Protective Service
FRC
friends and relatives center
FST
family support task
HIPAA
Health Insurance Portability and Accountability Act
IATA
International Air Transport Association
IIC
Investigator in Charge
JFSOC
Joint Family Support Operations Center
MCI
mass casualty incident
Federal Family Assistance Framework NTSB/Acronyms, Initialism, and Abbreviations
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MOA
memorandum of agreement
MOU
memorandum of understanding
MPCC
missing persons call center
NDMS
National Disaster Medical System
NOK
next of kin
NTSB
National Transportation Safety Board
OEM
office of emergency management
PE
personal effects
PGA
passenger gathering area
POC
point of contact
POI
person of interest
RC
reunification center
RIC
remote information center
ROC
NTSB Response Operations Center
SMS
short message system
TDA
NTSB Transportation Disaster Assistance Division
TTY
Teletypewriter
U.S.
United States
U.S.C.
United States Code
VIC
victim information center
VST
victim support task
Federal Family Assistance Framework NTSB/Legislative Background and History
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Legislative Background and History of the National Transportation
Safety Board Family Assistance Program
Family Members Speak:
Family member 1
Immediately after the crash, my family and I were looking for answers to all sorts of
questions. What do we do now? What comes next? What happens down the road? Who
can we turn to for answers? Of course, the first people we wanted answers from was [the
airline]. Why? How? What happened to cause this? They had no answers, and even if they
had, I realized it wasn’t very likely they would tell us.
1
Family member 2
I decided to try to call the 800 number on the screen. I tried for two hours – it was
busy. I called the airport directly, but no one would give me information. Then finally
around 10:30 I got through [to] the number. I was told all information on the flight had
been pulled from the computer—that they would get back to me as soon as the passenger
list was released. They took my name and number and told me they would call me back.
Around 1:00 a.m. I received a call from (the airline) my husband has been confirmed to be
on the flight…and there had been no survivors. No, “I’m sorry,” just a frank answer.
2
Former Chairman of NTSB speaks:
U.S. House Subcommittee on Aviation Testimony
The family members of that accident [ValuJet 592] and almost every tragic
transportation accident I have mentioned are U.S. taxpayers and our fellow human
beings. They pay my salary, and they pay for the investigative work of the NTSB. Within
reason and within the resources available to us, I believe we must be responsive. It is the
right thing to do.
As I attended their memorial services and met with their families, I recommitted
myself to ensuring that all family members of these tragic events are treated with
respect
,
with
compassion
, and with
truth
.
Jim Hall, NTSB Chairman
(June 19, 1996)
1
Final Report from the Task Force on Assistance to Families of Aviation Disasters
2
Final Report from the Task Force on Assistance to Families of Aviation Disasters
Federal Family Assistance Framework NTSB/Legislative Background and History
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Federal Family Assistance Framework NTSB/Aviation Disaster Family Assistance Act
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Aviation Disaster Family Assistance Act
In 1996, the Aviation Disaster Family Assistance Act (ADFAA) was enacted
following several major aviation accidents in which air carriers, local responders, and
federal agencies did not adequately meet the needs of the families of passengers who
died in these accidents. To better address the needs of affected family members through
a coordinated response, the United States (U.S.) Congress passed the ADFAA, codified
in 49 United States Code (U.S.C.) §1136, §41113, and in 1997 the Foreign Air Carrier
Family Support Act U.S.C. § 41313.
3
Since the ADFAA was enacted, it has been amended—in 2000,
4
2003,
5
and 2018
6
—
to enhance the requirements to address the needs of affected family members and to
improve response efforts. The Act requires air carriers to develop and maintain plans
that address the needs of families of passengers involved in aircraft accidents. The law
also requires that at a minimum the air carrier’s plan should include the eighteen
assurances outlined in the legislation. In addition, the act tasks the National
Transportation Safety Board (NTSB) with coordinating the family assistance operation
efforts of the air carrier, local responders, and federal agencies and designating an
independent nonprofit organization. The designated organization is responsible for
coordinating emotional, psychological, and spiritual care and support. See Appendix 1
for the full text of the federal legislation.
When does the law apply and who is considered a carrier?
The Act applies to aircraft accidents involving an air carrier or foreign air carrier,
for which the NTSB is the lead investigative agency, and that results in any loss of life.
7
The federal legislation applies to domestic carriers that hold a Certificate of Public
Convenience and Necessity (CPCN) issued by the U.S. Department of Transportation
(DOT)
8
or to foreign airlines that have obtained both safety authority from the Federal
3
For the purposes of this document “ADFAA” or “The Act” refers to current versions of 49 U.S.C. 1136, 49
U.S.C. §41113 and U.S.C. §41313 as located on https://uscode.house.gov
4
“Wendell H. Ford Aviation Investment and Reform Act for the 21
st
Century.” Date:4/5/2000.
https://www.congress.gov/106/plaws/publ181/PLAW-106publ181.pdf
5
“Vision 100- Century of Aviation Reauthorization Act.” Date: 12/12/2003
https://www.congress.gov/108/plaws/publ176/PLAW-108publ176.pdf
6
FAA Reauthorization Act of 2018” Date 10/5/2018. https://www.congress.gov/115/plaws/publ254/PLAW-
115publ254.pdf.
7
49 U.S.C. 1136
8
https://www.transportation.gov/policy/aviation-policy/certificated-air-carriers-list
Federal Family Assistance Framework NTSB/Aviation Disaster Family Assistance Act
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Aviation Administration (FAA) (Part 129 Operations Specifications)
9
and economic
authority from the DOT.
10
Who is Considered a Passenger?
A passenger is defined by The Act as an employee of the carrier or any other
person aboard at the time of the accident, whether they held a reservation, paid for the
flight, or occupied a seat, as well as any other person injured or killed in the accident, as
determined appropriate by the NTSB.
11
These include crewmembers, airline employees,
non-revenue passengers, and any ground fatalities or survivors involved in the accident.
Who is Considered a Family Member of a Passenger?
The NTSB encourages a broad and inclusive definition of the term “family
member” for the purposes of family assistance, acknowledging that many individuals
may be considered family, even if the law does not formally recognize their relationship.
Federal family assistance legislation does not provide a specific definition for the terms
“family” or “family member.” It is important to note, however, that specific legal
definitions may apply and may be highly relevant to other organizations or agencies
involved in the response to an aviation disaster (for example, the presiding medicolegal
jurisdiction may be concerned with identifying the legal next of kin [NOK] of a decedent
to direct their engagement). As such, it may be important to refer to state, federal, or
tribal law to determine appropriate definitions for specific family members and be
cognizant of their relevance.
For the purposes of this framework, the terms “survivor,” “families,” and “family
members” refer to the various individuals or groups of individuals affected by an aviation
accident; this includes passengers who survive the accident, and those whose close
association with a passenger (as defined above) may be considered equivalent to that of
a family relationship, regardless of biological or legal connection. These may include
immediate family, extended relatives, step, and half-siblings, caregivers, those living in
the same residence, spouses, life partners, and friends. Anyone providing family
assistance should be prepared to provide support to, and work with, all such persons,
recognizing and accepting a variety of relational definitions and family dynamics.
9
14 C.F.R. §129
10
https://www.transportation.gov/policy/aviation-policy/licensing/foreign-carriers
11
49 U.S.C. §1136(h)(2)
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Legislated Roles and Responsibilities
The Role of the NTSB
As codified in 49 U.S.C. §1136, the NTSB is
responsible for coordinating federal government
resources to support local, state, and tribal
governments, disaster relief organizations, and the
air carrier to meet the needs of families.
Specifically, the NTSB has primary federal
responsibility for facilitating the recovery and
identification of fatally injured passengers,
designating an independent nonprofit
organization to provide emotional care and
support, and communicating with passengers’
families about the roles of the air carrier,
government agencies, and the independent
nonprofit organization. The NTSB is also
responsible for providing information to families
regarding the investigative process and, to the
maximum extent practicable, ensuring that survivors and family members are briefed on
investigative findings prior to any public release of the information. To meet each of the
requirements specified in the legislation, the NTSB established the Transportation
Disaster Assistance (TDA) Division.
The Role of the NTSB’s Designated Organization (American Red Cross)
To assist the families of passengers, the NTSB is required to “designate an
independent nonprofit organization, with experience in disaster and post-trauma
communication with families” to “have the primary responsibility for coordinating the
emotional care and support of families of passengers involved in the accident.”
13
The
NTSB designates the American Red Cross (Red Cross)
14
to meet the requirements of the
legislation when an accident occurs.
As the designated organization, the Red Cross provides psychological, emotional,
and spiritual care services and staffing. Title 49 U.S.C. §1136 directs the Red Cross to
connect with the families of passengers, coordinate with the disaster response team of
12
49 U.S.C. §1136(j)(1) and §1131(2)(B)
13
49 U.S.C. §1136(a)(2)
14
For the purposes of this document, Red Cross refers to the American Red Cross.
Criminal Acts and the Federal
Bureau of Investigation (FBI)
Title 49 U.S.C. §1136 designates
the NTSB to coordinate federal
assistance in response to aviation
accidents. Family assistance
related responsibilities transfer to
the FBI if circumstances
reasonably indicate that the crash
may have been caused by an
intentional criminal act. However,
the NTSB shall assist the FBI to
the maximum extent possible in
assisting the families of
passengers if the NTSB
relinquishes investigative priority
to the FBI.
12
Federal Family Assistance Framework NTSB/Legislated Roles and Responsibilities
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the air carrier involved, provide an environment in which families or survivors may grieve
in private,
15
maintain contact with them periodically thereafter, and support requests for
suitable memorial services if necessary and in consultation with families.
The Role of the Air Carrier
Title 49 U.S.C. §41113 and §41313 require air carriers to submit a plan to the
NTSB for addressing the needs of families of passengers involved in aviation accidents.
In their plan, an air carrier must address, at a minimum, eighteen assurances focused on
information-sharing, logistical support, and the provision of various services identified in
the applicable legislation. Title 49 U.S.C. §1136, §41113, and §41313 do not require the
NTSB to review or approve submitted plans; however, carriers are expected to meet
their obligations under the legislation and to abide by their submitted plan. It is
important to note that the NTSB is not a regulatory agency and that the DOT is the
enforcement authority over air carriers regarding their provision of family assistance in
response to an aircraft accident involving their company. See Appendix 2 for more
guidance on air carrier plan submission.
NTSB Federal Family Assistance Plan for Aviation Disasters
Shortly after the ADFAA was enacted, a Task Force for assistance to families of
aviation disasters was established to meet the requirements set forth in 49 U.S.C. §1136,
§41113, and §41313. The Task Force consisted of representatives from the DOT, the
NTSB, the U.S. Department of State (DOS), the U.S. Department of Justice (DOJ), the U.S.
Department of Health and Human Services (DHHS), the Federal Emergency
Management Agency (FEMA), the Red Cross, air carrier associations, survivors, and
family members. The group included people with diverse perspectives and experiences
who provided invaluable insights based on their professional and personal experiences
as well as the experiences of countless others who were affected by these tragedies.
Their insights were consolidated into the Final Report from the Task Force on Assistance
to Families of Aviation Disasters,
16
which served as the foundation for the NTSB’s Federal
Family Assistance Plan for Aviation Disasters (the Federal Plan).
The NTSB’s Federal Plan established roles for the organizations and agencies
responding to an aviation accident that meets the requirements established under 49
U.S.C. §1136. Based on the best practices presented in the task force’s final report, the
15
49 U.S.C. §1136(c)(2)
16
https://www.ntsb.gov/tda/TDADocuments/Task-Force-On-Assistance-To-Families-Of-Aviation-
Disasters.pdf
Federal Family Assistance Framework NTSB/Summary of Major Changes
17 | Page
Federal Plan established victim support tasks (VSTs) specifically for the NTSB, the
affected air carrier(s), and the Red Cross to help each entity meet their legislated
requirements. In addition, the Federal Plan outlined VSTs for federal response partners
who, through memorandums of agreement (MOA) or understanding (MOU) with the
NTSB, have offered to provide assets in support of a major aviation accident.
Summary of Major Changes
From Plan to Framework
The Federal Framework has been revised to reflect the NTSB’s pivot to focusing
on the four fundamental concerns of family members and the family support tasks (FSTs)
that support the collaborative interagency response to those concerns. Air carriers and
response organizations are encouraged to utilize this framework to assist in
development of their family assistance plan while keeping in mind that it is not intended
to be a checklist. Each organization or agency responding to an aircraft disaster must be
aware of and understand applicable Federal requirements. In the planning process, each
organization must determine their capabilities and resources and tailor their plan to
meet the needs of survivors and family members while adhering to the requirements of
applicable legislation. This document can assist organizations in identifying areas of
potential collaboration among stakeholders. Each organization can incorporate these
principles into their family assistance operations plan while staying aligned with their
mission and response objectives and remain adaptable to the evolving family assistance
landscape.
The Federal Framework’s focus is on response partners that either have
responsibilities specified under 49 U.S.C. §1136, §41113, §41313 or those federal
agencies with whom the NTSB has established active memoranda of understanding
(MOU) or agreement (MOA). As the central coordinating agency, the NTSB has identified
operating principles, concepts, and structures to help organize and integrate response
efforts across the various mission areas of the NTSB’s response partners.
Federal Family Assistance Framework NTSB/Family Support Tasks
18 | Page
Family Support Tasks
This document replaces the term VSTs with family support tasks (FSTs). This
realignment represents a broadening of the concept of operations to be more inclusive
of those affected by an accident. Although many of the tasks from the Federal Plan
remain unchanged, there are several new FSTs that reflect changes in best practices
since the development of the earlier document.
This revision outlines FSTs to specifically address the roles of the NTSB, the air
carrier, and the Red Cross as presented in the legislation. Also included are FSTs for
organizations and agencies with established partnerships with the NTSB through an
MOA or MOU to provide support to the federal family assistance operation. This revision
outlines these tasks by first categorizing them into four main groups related to the
fundamental concerns of family members, and then sub-categorizing tasks and roles by
the following entities:
• NTSB
• Air carrier
• Red Cross
• Department of State (DOS)
• Federal Bureau of Investigation (FBI)
• Department of Health and Human Services (DHHS)
• Department of Defense (DOD)
• Federal Emergency Management Agency (FEMA)
• Federal Protective Service (FPS)
Incorporating the guidance established by the FSTs assists entities with addressing
the needs of family members.
The Fundamental Concerns of Families
Although each aviation accident differs in size, scope, and complexity, there are
common fundamental concerns among the family members of fatally injured
passengers, survivors, and survivors’ family members. Each concern is broad in scope
and is common to individuals who experience an unexpected loss or injury of a loved
one, whether aviation related or not. Since its inception in 1996, the NTSB TDA Division
has responded to numerous transportation accidents and has developed a clearer
understanding of these fundamental concerns and their importance in a family
assistance operation. Although each accident response presents its own unique
complexities, the four fundamental concerns listed below remain consistent and
Federal Family Assistance Framework NTSB/Fundamental Concerns
19 | Page
transcend cultural and socioeconomic diversity in the immediate aftermath of an
accident.
FIGURE 1. The Four Fundamental Concerns of Families
The Framework is organized around these four fundamental concerns. A section is
dedicated to defining each fundamental concern, specifically addressing it through
relevant FSTs and identifying the responding organization’s role in alignment with the
concern. Additionally, this revision incorporates the four fundamental concerns into the
response partner FST list.
Response Partner Matrix
To assist in avoiding overlap and identifying potential gaps in services provided
by responding agencies, this document introduces a matrix to provide a perspective
regarding primary and supporting organizations that may have related roles. The matrix
underscores the significance of building collaborative partnerships with such entities,
particularly in the planning and preparedness efforts of plan development, to ensure a
coordinated response when plans are executed and to ensure that the needs of family
members are appropriately addressed.
Federal Family Assistance Framework NTSB/Fundamental Concerns
20 | Page
The Response Partner Matrix, below, provides a visual representation of the
intersection of the fundamental concerns of families and the existence of a role in
addressing such by the associated entity listed on the left. An “ ” in an intersecting cell
in the matrix indicates the presence of an FST, related to a fundamental concern, for
which a particular organization has a role. As the matrix illustrates, several organizations
have FSTs and overlapping roles. It is important for these organizations to work together
to avoid a duplication of efforts when addressing each fundamental concern.
FIGURE 2. Response Partner Matrix
Coordination and Integration with Local Response Organizations
Coordination is essential when responding to aviation accidents. Federal family
assistance legislation does not specifically address the roles of local, state, tribal, or
federal responding agencies or entities beyond the NTSB, the air carrier, and the Red
Cross. However, it is important that all responding entities coordinate and integrate
within the existing local, state, tribal, and non-governmental agencies’ emergency
response operations to address the needs of family members. Local response agencies
assume the same roles as they would for any mass casualty incident (MCI) or emergency
event within their jurisdiction utilizing local emergency operations plans, resources, and
mutual aid coordination.
To avoid duplication of efforts and resources, collaboration is imperative during
the planning and response phases for a successful family assistance operation. Local
jurisdiction plans may include the establishment of temporary facilities and the
deployment of resources to accommodate support to survivors and family members
Federal Family Assistance Framework NTSB/Fundamental Concerns
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within their jurisdiction. The affected air carrier may also have plans established for
similar facilities to fulfill their legislated obligations for family assistance The importance
of pre-accident collaboration between local agencies and air carriers during the
planning phase cannot be overstated.
Although not required by legislation, consolidating support services into
designated locations has been proven to be extremely beneficial. These facilities provide
a structure within the response operation, ease the burden of information gathering and
sharing, and provide for safe and secure methods for providing family assistance.
Friends and Relatives Centers
The fundamental concerns of families who believe they have a loved one involved
in an accident begin immediately. Family members will have many questions and will
likely use a variety of methods to obtain support in finding answers. Often, this includes
family members traveling to the location they might expect their loved one(s) to be (for
example, departure and arrival airports, hospitals, or the accident scene, if known).
Friends and Relatives Centers (FRCs) provide a location where family members may
receive immediate assistance in obtaining initial information about the accident and their
loved one’s involvement. Temporary and minimal support services including basic
needs, emotional support, and health services should be provided. See Appendix 7 for
more information related to family assistance operations.
Passenger Gathering Area
Survivors of an accident may require or desire assistance beyond initial life-safety
triage and assessment, including secondary triage, victim accounting, customs and
border processing, emotional support, and information sharing. Gathering passengers
involved in an accident (other than those transported to medical treatment facilities and
those fatally injured) to a secure location where these services and functions can be
accomplished will facilitate the provision of family assistance services to these
individuals. Keeping in mind potential sensitivities between different affected passenger
groups, it may be prudent to establish separate areas based on these sensitivities (for
example, separating passengers and operating crew into a passenger gathering area
[PGA] and a crew gathering area (CGA). See Appendix 7 for more information related to
family assistance operations.
Reunification Centers
As information is obtained and cross-referenced, if family members gathered in an
FRC are seeking to reunite with passengers known to be gathered in a PGA or CGA (and
Federal Family Assistance Framework NTSB/Fundamental Concerns
22 | Page
vice versa), reunification of such individuals/groups should not take place in view of
others gathered in those same areas. A private, separate area (reunification center [RC])
is recommended to bring together those able to be reunited with their loved ones. See
Appendix 7 for more information related to family assistance operations.
Family Assistance Center
When appropriate, temporary support facilities (FRCs, PGAs, and RCs) may
transition to a single family assistance center (FAC) to support ongoing family assistance
operations near the accident location. Ongoing family assistance needs may include the
continued provision of safety, security, physiological needs (food, sleep, clothing),
emotional, psychological, and spiritual care, information about the victim recovery and
identification process and the investigation. See Appendix 11 for more information
related to the FAC.
The Role of the Joint Family Support Operations Center
In the aftermath of an aviation accident that meets the criteria established under
49 U.S.C. §1136, the NTSB will establish a Joint Family Support Operations Center
(JFSOC) to coordinate the family assistance operation. The JFSOC (for example, in
person, virtual, or both) is a collaborative workspace where participating organizations
are brought together to monitor, plan, and execute a family assistance operation,
maximizing all available resources. JFSOCs are designed to address the challenges of
interagency communication and the sharing of information necessary for a successful
family assistance operation. For more information related to JFSOC operations and a
JFSOC’s relationship to the larger family assistance operation, see
Concern 3: Information and Resources, as well as Appendix 8.
JFSOC Coordination Call
Ideally, prior to deploying a response team to an aviation accident that meets the
criteria established under 49 U.S.C. §1136, the NTSB TDA will organize a JFSOC
coordination call with relevant responding organizations. The purpose of this call is to
establish communication as soon as practicable among the NTSB, the air carrier, the Red
Cross, and key family assistance operation stakeholders to gain situational awareness
regarding initial family assistance efforts and the accident response in general. Although
participants on the call may vary based on the nature of the accident, key stakeholders
should include representatives from local, state, tribal or federal responding
organizations supporting the response. Bringing these stakeholders together provides
an opportunity to verify and introduce points of contact, review currently available
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information, confirm applicability of federal family assistance legislation, and review the
operational status for all organizations participating in the call. The call also serves as an
opportunity to deconflict duplicated efforts and commitment of resources, identify
subsequent action items and initiate planning for the initial JFSOC meeting. See
Appendix 8 for more information regarding the JFSOC coordination call.
Virtual Family Assistance Operations/Remote Information Centers
Not all family assistance operations are likely to occur within the local jurisdiction
or within the confines of the physical locations mentioned above. Family members
gathered at hospitals, for example, may wish to participate in informational briefings
provided at an FAC, but may not want to leave the hospital. Family members may be
unable or may not want to travel to the established facilities but may still wish to receive
the services (such as information or emotional, psychological, and spiritual care) offered
there. Remote information centers (RICs), and virtual family assistance operations should
be considered by those with responsibility for the provision of family assistance services.
Response organizations should consider the specific circumstances of an accident when
determining the types of facilities and services that need to be established or made
available, as well as the method(s) for delivery. Consideration should also be given to the
potential for needing to adjust the delivery methods based on the duration of the family
assistance response.
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Federal Family Assistance Framework NTSB/Concern 1 – Notification of Involvement
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Fundamental Concern 1: Notification of Involvement
Overview
Initial notification of involvement is communication made to an individual that
someone close to them has been involved in an accident. The ADFAA requires this
notification to be provided through a plan established by the air carrier; it can be
accomplished proactively by outbound calls, once a person has been confirmed to have
been involved (whether or not all individuals involved have been verified, and whether or
not the person’s status or location is known); it can also be accomplished reactively, by
responding to inquiries from family members when there is reason to believe that their
loved one(s) may have been involved in the accident (for example, their name appears
on a passenger list/manifest, either preliminary or confirmed).
It should be noted that notification of involvement is different from notification of
death. The medicolegal jurisdiction (medical examiner or coroner) or law enforcement
agency is responsible for performing death notifications which typically occur after a
victim’s identification has been confirmed.
The Final Report - Task Force on Assistance to Families of Aviation Disasters
17
emphasized that the moments after an aviation accident occurs are often the most
crucial for family members. The initial interaction with associated response organizations
(including air carriers) directly influences family members’ perception of the entire family
assistance response to the accident.
Acknowledging that the information (for example, emergency contacts) an air
carrier may have readily available about their passengers following an accident may be
minimal and may require the commitment of significant time and resources to
consolidate, this should not delay the activation of a notification process. Family
members will likely attempt to establish contact with the air carrier immediately after
learning of an accident. To facilitate prompt contact, in accordance with the AFDAA, air
carriers are required to both publicize a reliable toll-free telephone number and to
provide suitably trained staff to handle calls received from the families of the
passengers.
18
Air carriers should plan to effectively manage inbound and outbound calls
immediately following an accident, while the passenger list/manifest reconciliation
process is underway and while efforts are being made by the air carrier to gather
17
https://www.ntsb.gov/tda/TDADocuments/Task-Force-On-Assistance-To-Families-Of-Aviation-
Disasters.pdf
18
49 U.S.C. §41113(b)(1) and §41313(c)(1)
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appropriate contact information for the families of their passengers. The affected air
carrier should also consider other communication channels available to both the air
carrier and the families of passengers. Although the toll-free telephone number is a
legislated requirement, family members may attempt to engage with the air carrier
through other means, including in person, email, website, social media, or other public-
facing platforms.
The Act requires air carriers to have an established process in place for providing
timely notification to families of passengers involved in an aircraft accident, as well as any
persons affected on the ground, prior to providing any public notice of the names of
passengers aboard the aircraft.
19
Regardless of the method by which family members are
notified of their loved one’s involvement in an accident, initial notification of involvement
can be extremely difficult for those receiving this news. Individuals delivering these
communications, as well as those receiving inquiries about an accident should,
therefore, be prepared and suitably trained in delivering this type of information. If air
carriers require assistance from the Red Cross or any other suitably trained individuals
when notifying family members, a mutually agreed-upon plan should be established and
exercised in advance of an accident.
In addition to notifying families of passengers involved in an accident, air carriers
must provide written notice to the owner of any structure or other property regarding its
liability for any property damage, along with the means for obtaining compensation.
20
19
49 U.S.C §41113(b)(2), (b)(9) and §41313(c)(2); (c)(9)
20
49 U.S.C. §41113(b)(17) and §41313 (c)(17)
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Response Partner Matrix
The following matrix highlights the roles of response partners associated with the
fundamental concern of families of passengers: notification of involvement. An “ ” in an
intersecting cell in the matrix indicates the presence of related FSTs for each
organization.
FIGURE 3. Response Partner Matrix (Concern 1 - Notification of Involvement)
Family Support Tasks (Concern 1 – Notification of Involvement)
The FSTs associated with initial notification of involvement are listed below,
organized by response partner.
NTSB FSTs
• Inform the air carrier(s) involved in the aircraft accident regarding the applicability
of 49 U.S.C. §41113 or 49 U.S.C. §41313.
• Inform the DOT regarding the applicability of 49 U.S.C. §41113 or 49 U.S.C.
§41313.
• Request from the air carrier a copy of the passenger list/manifest, based on the
best available information at the time of the request, with the names of the
passengers who were aboard the accident aircraft.
• Designate and publicize the name and telephone number of a director of family
support services (NTSB TDA chief or other TDA-appointed representative) to
serve as a federal point of contact (POC) for the families of passengers involved in
the accident and to act as a liaison between the air carrier and the families of
Federal Family Assistance Framework NTSB/Concern 1 – Notification of Involvement
28 | Page
passengers. The NTSB’s TDA division addresses family members’ requests for
information regarding the agency’s investigation, family assistance operations,
and services provided by the air carrier and the Red Cross.
• If requested, provide information on the passenger list/manifest about a specific
passenger to their family, to the extent that the NTSB TDA representative
considers appropriate. Advise family members of air carrier’s toll-free number.
Notify the air carrier POC of family contact information.
• Ensure that family members receive the air carrier’s toll-free number and are made
aware of support services being provided by the air carrier and the Red Cross.
• Monitor open-source media to determine when the air carrier toll-free number
becomes publicly available.
o Publicize the air carrier’s toll-free number through NTSB social media
platforms.
o Call the air carrier’s toll-free number to verify its operational status and to
determine how information is being provided to callers seeking
information.
• Maintain communication with the air carrier to remain current regarding the status
of family notification (for example, number of family groups notified, number for
which notification was attempted, number still pending notification). See
Appendix 10 for additional information.
Air Carrier FSTs
• In addition to the accident notification requirements under 49 C.F.R. §830.5,
21
as
soon as practicable, complete and submit the NTSB TDA Accident Notification
Supplemental Information Worksheet (see Appendix 5) to assistance@ntsb.gov.
• Provide the NTSB and the Red Cross NTSB and/or JFSOC Liaison, immediately
upon request, a copy of the passenger list/manifest, based on the best available
information at the time of the request.
o Provide subsequent versions of the passenger list/manifest to the NTSB
upon request and at regular intervals as agreed upon by the air carrier and
the NTSB, based on the specific circumstances of the accident. The
information contained on the passenger list/manifest should be the best
available information at the time the request is made or at the agreed upon
intervals. See Appendix 6 for additional information. Provide updated
passenger list/manifests to the Red Cross NTSB and/or JFSOC Liaison (if
initially requested) at the same time as those provided to the NTSB.
21
49 C.F.R. §830.5
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• Establish a process for notifying the family members regarding the passengers’
involvement in the accident.
22
• If the air carrier requires the utilization of the Red Cross or any other suitably
trained individuals to initiate notification, a mutually agreed-upon plan should be
established in advance and included in the carrier’s plan filed with the NTSB and
the DOT.
• Notify family members (in person, if practicable)
23
as soon as possible to verify
whether a passenger was aboard the aircraft (even if the names of all passengers
have not yet been verified).
• Establish a toll-free telephone number to allow family members to contact the air
carrier directly for information regarding the carrier’s assistance to family
members. Consider the following:
o Modify the normal “hold” message. Similar considerations should be made
for “on-hold” soundtrack(s) for phone lines that may receive incoming calls
following an accident to eliminate music, sales information, and similar non-
accident-related messages. Similar considerations should be made for all
public interfaces.
o Ensure that sufficient staff are designated to manage an increase in call
volume from family members immediately following an accident.
o Ensure that the toll-free call center staff are adequately trained and
prepared to work with affected family members.
o Establish a process for efficiently gathering critical information from callers
to aid in timely notification and to facilitate subsequent engagement
regarding the family assistance operation and available services.
o Gather and share contact data collected from affected family members
both internally and with federal, state, tribal and local response
organizations (for example, data from multiple call centers, multiple family
members of the same passenger) through the JFSOC.
o Establish a process to follow up with callers who have been identified as
affected family members.
o Determine and share information about services that will be made
immediately available to affected family members in the aftermath of an
accident.
o Ensure the accessibility of information to callers with varying access and
functional needs (for example, speakers of languages other than English,
22
The air carrier is under no obligation to publicly release the names of passengers; however, if the air
carrier elects to do so, the air carrier should provide notification to family members prior to releasing this
information. The air carrier should give family members adequate time to notify other family members
prior to public release.
23
49 U.S.C. §41113(b)(3)
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30 | Page
those who rely on teletypewriter (TTY) technology, and those who may have
difficulty in understanding or processing complex information).
o Establish a plan to decommission the toll-free number as the family
assistance operation transitions from an active response to long-term
assistance.
• Publicize the toll-free number and consider using both traditional and digital
media outlets to emphasize the following information:
o The name and accident flight number of the air carrier(s) involved. Provide
all partner and codeshare flight information.
o The origination, connecting, and destination airports.
o The toll-free number is for family members of passengers believed to be on
the flight.
o The air carrier has activated its family assistance program in response to the
accident and encourage families to contact the air carrier through the toll-
free number to receive additional information and support.
• Inform families of passengers at the time of initial notification (or soon thereafter)
about the involvement of the Red Cross and their available services and provide
reminders throughout the operation about these services to address any needs
for psychological, emotional, and spiritual care.
• Coordinate directly with the Red Cross JFSOC liaison to address support requests
for psychological, emotional, and spiritual care as they are received by the air
carrier’s family assistance teams or other sources and ensure that adequate facility
space is available for providing these services and for accommodating support
services staff.
• Provide the DOS the information outlined in 14 C.F.R. § 243.7
24
if the accident
meets the criteria established under 14 C.F.R. §243.11
25
and provide DOS
representatives information about any foreign passengers to facilitate interaction
with appropriate foreign embassies.
• Establish a plan for providing media updates regarding the air carrier’s family
assistance operation. Consider providing information regarding:
o Availability of the toll-free number.
o Establishment of family assistance facilities.
24
14 C.F.R. §243.7
25
14 C.F.R. §243.11
Federal Family Assistance Framework NTSB/Concern 1 – Notification of Involvement
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o Progress of the family notification process (the number of families notified,
the number of families remaining to be notified, and/or completion of the
process).
o Information regarding resources available to passengers’ families.
DOS FSTs
• Provide official notification to foreign governments of citizens involved in the
accident. Such notifications will take place after obtaining necessary information
on foreign passengers from the air carrier.
• Assist the air carrier in notifying U.S. citizens who may reside in, or who are
traveling, outside the U.S. that a member of their family has been involved in an
aviation accident.
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Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
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Fundamental Concern 2: Victim Accounting and Identification
Overview
Upon learning of their loved one's involvement in an accident, a family member's
primary concern will shift to locating their loved one. The overall process for locating
survivors and identifying fatally injured passengers is known as victim accounting.
Previous NTSB guidance focused largely on all-fatal accidents (those with no surviving
passengers or crew), where the presiding medicolegal jurisdiction is principally
responsible for victim accounting. The NTSB's understanding of family assistance
operations has evolved to reflect the current emergency management approaches for
MCI response. MCIs pose a different set of victim accounting challenges because of the
rapid movement of survivors away from the scene. This framework focuses on MCIs.
The jurisdiction where the accident occurred is ultimately responsible for
accounting for all fatalities and survivors of the MCI; however, the process requires
collaboration between the air carrier and the presiding public safety agencies — office of
emergency management (for purposes of this document, OEM – also refers to
emergency management agency [EMA], emergency management office [EMO], and
airport authority/emergency management), fire department, aircraft rescue and
firefighting (ARFF), emergency medical services (EMS), law enforcement, the
medicolegal authority (medical examiner/coroner), public health authorities and
hospitals that have received patients. Air carriers are essential in this process and hold
critical information—the passenger list/manifest—that serves as the foundation for the
victim accounting process. It is important for air carriers to develop an understanding of
the mass casualty response and identify the agency(ies) that will be coordinating the
victim accounting operation; develop a process to consider requests for the passenger
list/manifest; and provide relevant information (number of persons aboard, names of
passengers and crew, contact information for survivors and family members) to
appropriate agencies.
Depending on the size and scope of the accident, the victim accounting process will
have unique complexities and involve many different organizations.
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
34 | Page
Victim accounting requires the integration of data from multiple sources including, but
not limited to, local law enforcement, OEM, medical examiner/coroner, emergency
support function-8 (ESF-8), PGA and hospitals.
26
The following graphic may be useful in helping response partners to better
understand the interconnectedness between themselves and other agencies in meeting
the needs of survivors and family members. Timely sharing of information allows for the
reunification of family members with survivors and aids in the efficient identification of
the fatalities by the presiding medicolegal jurisdiction.
FIGURE 4. Victim Accounting Process
The primary outcomes of victim accounting are the reunification of survivors with
their families and the recovery, identification, and return of the deceased to their
families. As a result of victim accounting, family assistance response agencies can offer
equal access to information and services to all survivors and family members.
26
Emergency Support Functions (ESFs) group governmental and certain private sector capabilities into an
organizational structure to provide support, resources, program implementation, and services needed to
save lives, protect property and the environment, restore essential services and critical infrastructure,
and help victims and communities return to normal following domestic incidents. ESF-8 is the public
health and medical services position.
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
35 | Page
The Role of the NTSB
The NTSB has the responsibility to coordinate with the air carrier, Red Cross, and
federal agencies to integrate within the broader local family assistance response effort.
To meet this responsibility, the NTSB works with the local jurisdiction to determine the
relevant responding agencies, their specific roles in the response, and if one exists, the
central coordinating agency responsible for the overall victim accounting process.
To help navigate the local jurisdiction’s response to an aircraft accident, the NTSB
will coordinate with the air carrier to gather information as previously described in
Concern 1: Initial Notification of Involvement. The NTSB will contact first response
agencies as soon as practicable following notification of an aircraft accident to gain
situational awareness including determining which agency(ies) are involved in the victim
accounting process and connecting them with the air carrier and the Red Cross, if they
have not previously been in contact. Given the size and scope of a response, the local
jurisdiction may rely on support from the NTSB and other federal agencies, while the air
carrier and the Red Cross rely upon the information gathered through collaboration with
the local response community.
The NTSB has the primary responsibility for facilitating the recovery and
identification of fatally injured passengers involved in an aircraft accident.
27
To fulfill this
obligation, the NTSB establishes contact with the presiding medicolegal authority after
notification of an aviation accident to discuss the size, scope, and characteristics of the
accident, the capabilities and resources of the local jurisdiction, and the availability of
federal support. To ensure adequate resources for the presiding medicolegal authority
to fulfill their responsibilities, the NTSB maintains agreements with the FBI, the DHHS,
and the DOD to support the identification operation. As part of a collaborative effort,
when assistance is needed, the NTSB also helps integrate federal resources into existing
state and local mass fatality response teams. Additionally, the NTSB may serve in an
advisory role to the presiding medicolegal authority, sharing practical experiences
gained by responding to numerous mass casualty and mass fatality accidents.
The Role of the Air Carrier
The air carrier has a key role in the victim accounting effort: reconciling and
disseminating the passenger list/manifest. As described above, the passenger
list/manifest is integral both in determining the identities of passengers aboard and in
providing information for family members seeking to confirm their loved one was
27
49 U.S.C. §1136
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
36 | Page
involved in the accident. Upon request, the air carrier must provide a copy of the
passenger list/manifest to the NTSB, whether or not the names have been verified.
28
The
air carrier should develop procedures for addressing requests from the local response
community for the passenger list/manifest in support of victim accounting efforts. The air
carrier may contact the NTSB TDA during the response phase to discuss requests they
receive for the passenger list/manifest. For additional guidance, please review NTSB’s
Guidance for Passenger List/Manifest Distribution & Control (Appendix 6).
Additionally, the air carrier can assist the local response community with
reunifying family members with passengers once the victim accounting process has
determined the location and status of each surviving passenger involved. The
information compiled by the air carrier through various public interfaces, including the
required toll-free telephone number, will help connect the responsible local, state, tribal,
and federal agencies with the families of passengers seeking information regarding the
location of, and reunification with, survivors.
The Role of the Medicolegal Authority
The term medicolegal authority used in this document includes any medical
examiner, coroner, justice of the peace, or other official who oversees the death
investigation following an accident. The presiding medicolegal authority is responsible
for the recovery, identification, death notification, and disposition of fatalities. The
recovery process typically includes the search, detection, documentation, collection,
transportation, and storage of human remains. While recovery operations are ongoing,
the medicolegal authority will begin interviewing family members to gather antemortem
data including the collection of DNA reference samples from biological family members.
Additionally, the medicolegal authority will collect postmortem data from the remains.
Positive identification requires comparison of antemortem records and samples
with similar information collected from the remains. Following positive identification, the
medicolegal authority will perform official death notifications to the legal NOK or utilize
law enforcement. The NOK will decide on burial or disposition arrangements requiring
further coordination among the medicolegal authority, the air carrier’s service provider
for transportation of human remains, and the families’ designated funeral homes.
Aviation accidents resulting in fragmentation of human remains adds additional
operational complexity. The medicolegal authority will determine the need for
reassociation of human remains – bringing together the disassociated remains of
28
49 U.S.C. §1136, §41113(b)(4), and §41313(c)(4)
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
37 | Page
fatalities. When reassociation is necessary, the medicolegal authority may need to make
additional notifications to the NOK, depending on their notification preferences. Human
remains that are unidentified at the conclusion of the identification process, known as
group remains, also require disposition. Prior to disposition of any group remains, the
medicolegal authority should consult with the families.
Medicolegal authorities throughout the U.S. vary greatly in available resources
(such as staff and facility size) and capabilities. Some may be able to manage the
response to an aviation accident with existing staff and facilities while others, may require
assistance. To ensure adequate resources for the presiding medicolegal authority to
accomplish their responsibilities, the NTSB will work with the medicolegal authority to
determine the need for additional federal resources to support identification of the
fatalities and to integrate the federal resources into existing local and state mass fatality
response operations.
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
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Response Partner Matrix
The following matrix highlights the roles of response partners associated with the
fundamental concern of families of passengers: victim accounting. An “ ” in an
intersecting cell in the matrix indicates the presence of related FSTs for each
organization.
FIGURE 5. Response Partner Matrix (Concern 2 – Victim Accounting)
Family Support Tasks (Concern 2 – Victim Accounting and Identification)
The FSTs associated with victim accounting are listed below, organized by
response partner.
NTSB FSTs
• Encourage response organizations to share information about the whereabouts of
fatalities and the whereabouts and welfare of survivors with the air carrier, the Red
Cross, and the NTSB as part of the victim accounting process.
• Request from the air carrier a copy of the passenger list/manifest, based on the
best available information at the time of the request, with the names of the
passengers aboard the aircraft involved in the accident.
• Provide family members with contact information for local law enforcement and/or
the presiding medicolegal authority to answer questions and concerns regarding
victim accounting, identification processes and reunification efforts.
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
39 | Page
• Coordinate with the air carrier and local jurisdiction to help determine the
appropriate agency(ies) to receive passenger list/manifest data when multiple
requests are made to the air carrier.
• Facilitate the federal response in the recovery and identification of fatally injured
passengers involved in the aircraft accident.
• Provide an NTSB toll-free number and email address to families of passengers for
them to obtain information on the accident investigation and the victim
identification and recovery process.
• Discuss with the presiding medicolegal authority the capabilities and resources of
their office staff for conducting fatality identification based on the size and scale of
the accident, including possible coordination with the Armed Forces DNA
Identification Laboratory (AFDIL) for DNA identification.
• Notify the DHHS to initiate the National Disaster Medical System (NDMS) and the
appropriate DMORT personnel, supplies, and equipment to assist in the
management of fatality identification, as needed.
• Facilitate coordination between DOS and the presiding medicolegal authority to
support fatality recovery and identification efforts for foreign passengers, as
applicable.
• Inform the presiding medicolegal authority about the role of the Red Cross and
the support services available to families, to include coordinating efforts for
memorial services associated with individuals or group remains interment and
psychological, emotional, and spiritual care.
Air Carrier FSTs
• Ensure the provision of an adequate number of private rooms or space in the FAC
for families of passengers to meet with the presiding medicolegal authority or
designee, for the authority to obtain antemortem information and/or the
collection of DNA reference samples. These rooms can also be used for other
family assistance support services when the medicolegal authority has completed
their process.
• Inform the presiding medicolegal authority about the air carrier’s assistance that is
available to families of passengers related to the disposition of human remains. If
assistance is being provided via a service provider, ensure that connections are
made between the between the family and the service provider.
• Provide the NTSB, and the Red Cross NTSB and/or JFSOC Liaison upon request, a
copy of the passenger list/manifest, based on the best available information at the
time of the request.
o Provide subsequent versions of the passenger list/manifest to the NTSB
upon request and at regular intervals as agreed upon by the air carrier and
the NTSB, based on the specific circumstances of the accident. The
information contained on the passenger list/manifest should be the best
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
40 | Page
available information at the time the request is made or at the agreed upon
intervals. See Appendix 6 for additional information. Provide updated
passenger list/manifests to the Red Cross NTSB and/or JFSOC Liaison (if
initially requested) at the same time as those provided to the NTSB.
• Develop procedures to consider and respond to additional requests for the
passenger list/manifest from the local response community. See Appendix 6 for
distribution guidance.
• Ensure the publicized toll-free telephone number remains operable with sufficient
capacity to handle the anticipated call volume to collect contact information of
family members of passengers.
• Coordinate adequate private spaces or rooms within the FAC, or other suitable
location, for the presiding medicolegal authority, the Red Cross, and other family
assistance operation organizations to communicate privately with families of
passengers. These spaces should be equipped with sufficient technology to allow
for virtual meetings (for example, conference calls and web-based video
conferences).
• Consult with the family of each fatally injured passenger in coordination with the
medicolegal authority about available resources related to the disposition of
human remains.
• Inform families of passengers at the time of initial notification (or soon thereafter)
about the involvement of the Red Cross and their available services and provide
reminders throughout the operation about these services to address any needs
for psychological, emotional, and spiritual care.
• Coordinate directly with the Red Cross JFSOC liaison to address support requests
for psychological, emotional, and spiritual care as they are received by the air
carrier family assistance teams or other sources and ensure that adequate facility
space is available to provide these services and to accommodate support services
staff.
• Coordinate with the Red Cross spiritual care staff to address family member
requests for memorial services.
DOS FSTs
• Assist the presiding medicolegal authority in acquiring the necessary information
to facilitate the identification of foreign national fatalities and to complete death
certificates.
• Assist in obtaining dental and medical records and DNA reference samples from
families of fatalities of foreign nationals.
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
41 | Page
FBI FSTs
• Provide the NTSB, upon request, an FBI Evidence Response Team (ERT), and
other FBI Laboratory assets to assist with fatality documentation and identification
as directed by the presiding medicolegal authority.
DHHS FSTs
• Provide the resources of the NDMS, DMORT, the Victim Information Center (VIC)
team
, and other fatality management personnel, supplies, and equipment to assist
the presiding medicolegal authority and the NTSB with the examination and
identification of fatalities.
• Provide, if necessary, a Disaster Portable Morgue Unit (DPMU) and the necessary
personnel, equipment, and supplies to augment the capabilities of the presiding
medicolegal authority.
• Follow the DMORT Standard Operating Procedures for National Transportation
Safety Board Activations.
• Assign the necessary DMORT personnel, based on necessary skills and existing
capabilities, to assist the presiding medicolegal authority with fatality identification
and mortuary services.
• Monitor the status of all incoming antemortem records, including dental, medical,
and DNA data, to ensure that all records have been received. Take steps to obtain
the missing records and radiographs.
• Use a specially trained VIC team to interview families of passengers, both on- and
off-site, regarding antemortem identification and disposition of human remains.
• Coordinate with the presiding medicolegal authority to integrate qualified
personnel into the morgue operation.
• Assist the presiding medicolegal authority in notifying families of passengers of
positive identification, including an explanation of how identification was
determined, if necessary.
• Ensure the accuracy of the chain of custody by reviewing documentation and
human remains prior to their release to the designated funeral director.
• Assist the presiding medicolegal authority with the reassociation of human
remains following the identification process.
• Provide the NTSB with contact information for the NOK, gathered from the
antemortem interview.
• Employ a standard antemortem questionnaire and disposition-of-remains form
that can be adapted to meet local medical examiner and state requirements. The
form will be used to obtain directions from the lawfully authorized NOK regarding
their wishes for human remains that may later be identified as those of their family
member. Note: Information collected from families of passengers is strictly
Federal Family Assistance Framework NTSB/Concern 2 – Victim Accounting and Identification
42 | Page
confidential and is ultimately under the control of the presiding medicolegal
authority.
DOD FSTs
• Provide the use of a military installation, such as the Charles C. Carson Center for
Mortuary Affairs located at Dover Air Force Base, in support of mortuary
operations, if requested.
• Provide resources from AFMES and AFDIL to assist in the identification effort and
to conduct appropriate DNA comparison testing on specimens submitted by the
presiding medicolegal authority. Note: AFMES and AFDIL personnel may travel to
the accident location to assist with victim identification.
• Provide available medical and dental records and DNA reference samples of
fatalities who may have antemortem records from prior or current military service.
Federal Family Assistance Framework NTSB/Concern 3 – Information and Resources
43 | Page
Fundamental Concern 3: Information and Resources
Overview
Immediately following an aircraft accident, families of passengers may seek
answers to many questions. The Final Report from the Task Force on Assistance to
Families of Aviation Disasters
29
describes the confusion that followed for many family
members upon learning of an accident and their need to know the next steps in the
process. Questions like, “What do we do now? What comes next? What happens long-
term? To whom can we turn for answers?” were common among the survivors and the
families of passengers involved.
In the immediate aftermath of an aircraft accident, it is challenging both to
determine what resources are available and ensure that the families of passengers are
aware of these resources and how to access them. A major function of the JFSOC is to
bring together the responding organizations to discuss roles, capabilities, and available
resources to address the evolving needs of the families in a coordinated manner. See
Appendix 8 for additional information about the functions of the JFSOC and these roles,
capabilities, and resources.
Depending on the circumstances of the accident, the associated response, and
the resources available, various means of delivery may be used to provide services to
family members. As a part of the local jurisdiction’s response plan, an FRC, PGA, or RC
may be established in the immediate aftermath along with activation of local disaster
relief organizations (like their local Red Cross chapter) to provide immediate support
until another facility can be established to address needs in the longer term. If possible,
the air carrier should engage with local jurisdictions in the planning phase to develop
awareness of their response plans. This may not always be possible, but at the very least,
the air carrier should be aware that the jurisdiction may have a family assistance plan in
place and may be activating a response. The air carrier should attempt to establish
contact with the jurisdiction to coordinate efforts, which can be facilitated during the
JFSOC coordination call and subsequent meetings. Additionally, the Red Cross should
inform the NTSB and air carrier during these coordination efforts of any local response
activation or involvement on behalf of the local jurisdiction. See Appendix 8 for more
information.
29
https://www.ntsb.gov/tda/TDADocuments/Task-Force-On-Assistance-To-Families-Of-Aviation-
Disasters.pdf
Federal Family Assistance Framework NTSB/Concern 3 – Information and Resources
44 | Page
The air carrier should coordinate with the Red Cross to ensure that adequate
space is available to provide necessary services and staff and to ensure that families have
privacy. In some situations, services may be delivered virtually if a physical center is not
necessary or possible. Virtual delivery may also be used to aid family members traveling
to the accident location and those who may be unable or who may decide not to travel
to the accident location or visit the physical FAC (for example, families who wish to
remain at a hospital with their injured loved one[s]).
Response Partner Matrix
The following matrix highlights the roles of response partners associated with the
fundamental concern of families of passengers: information and resources. An “ ” in an
intersecting cell in the matrix indicates the presence of related FSTs for each
organization.
FIGURE 5. Response Partner Matrix (Concern 3 - Information and Resources)
Family Support Tasks (Concern 3 – Information and Resources)
The FSTs associated with the provision of information and resources are listed
below, organized by response partner.
NTSB FSTs
• Designate the Red Cross as the organization with the primary responsibility for
coordinating emotional care and support for the families of passengers involved
Federal Family Assistance Framework NTSB/Concern 3 – Information and Resources
45 | Page
in an accident. Notify the Red Cross National Headquarters of the aircraft accident
and their designation in accordance with 49 U.S.C. §1136.
• Organize and facilitate a JFSOC coordination call with the air carrier, the Red
Cross, and other supporting federal, state, tribal, and local agencies as needed to
become aware of the family assistance operation and response status.
• Coordinate and initiate requests for federal family assistance assets using
MOAs/MOUs as determined necessary.
• Coordinate family assistance efforts with local response organizations and
individuals, including the medical examiner, law enforcement, OEM, hospitals,
and other responding organizations.
• Coordinate with DHS and FPS to provide law enforcement and security services at
any federally leased, owned, or occupied facility, property, investigation site,
operational area, asset, or other location owned, occupied, or secured by the
federal government during the course of an NTSB investigation, hearing, meeting,
or study, including facilities used for FACs, FRCs, and JFSOC operations and for
press briefings, telecasts, and other functions.
• Coordinate through the NTSB Media Relations Division regarding family
assistance efforts.
• Designate and publicize the name and telephone number of a director of family
support services (NTSB TDA chief or other TDA-appointed representative) to
serve as a federal POC for the families of passengers involved in the accident and
to act as a liaison between the air carrier and the families of passengers. The
NTSB’s TDA Division addresses family members’ requests for information
regarding the agency’s investigation, family assistance operations, and services
provided by the air carrier and the Red Cross.
• Establish and maintain contact with families of passengers to keep them informed
about support services, the accident investigation, and other accident
investigation related concerns including relevant NTSB public hearings and
meetings.
• Establish a JFSOC based upon available space in or near the FAC. Invite
representatives of the air carrier’s family assistance response team, the Red Cross
liaisons and other response organizations (for example, medicolegal authority,
hospital association, ESF-8 representative, etc.).
• Integrate the NTSB, the air carrier, the Red Cross, and other relevant stakeholders
to ensure that the travel and logistical support needs of the families of passengers
are being addressed, giving special consideration to security, the quality of hotel
rooms and facilities, privacy, and access and functional needs.
• Organize and facilitate family briefings to ensure that the families of passengers
are provided information to the maximum extent practicable prior to any NTSB
Federal Family Assistance Framework NTSB/Concern 3 – Information and Resources
46 | Page
public briefing, about the accident, its causes, and any other findings from the
NTSB’s investigation.
• If the accident location remains under the control of the NTSB, assess the potential
of a site visit for families of passengers. Accident scenes under the control of law
enforcement officers require collaboration among the responsible agency, NTSB,
air carrier, the Red Cross, and other support agencies. Management of the site
visit should be coordinated through the JFSOC. See Appendix 16 for site visit
considerations.
• Determine whether a 30-day extension is required for the Red Cross as the
designated organization to ensure access to services by families of passengers
beyond 30 days after the accident has occurred.
30
• Within 45 days of the accident, monitors for and responds accordingly to any
unsolicited communications from attorneys received by families of passengers.
31
• Coordinate with the FBI Victim Services Division (VSD) on the provision of federal
family assistance activities if the investigation determines that the accident is the
result of an intentional criminal act.
• Inform families of passengers of NTSB public hearings and meetings pertaining to
the investigation and provide information about attendance at the event.
• Ensure that briefings are made available simultaneously by electronic means for
survivors/family members that are not able to attend briefings in person.
• Upon request, facilitate the sharing of contact information among survivors and/or
family members.
• Coordinate an on-scene and post-response family assistance assurance review
with the air carrier and the Red Cross to review the family assistance operation and
legislative requirements and to identify challenges and lessons learned, with the
goal of enhancing operating plans and procedures in the future.
Air Carrier FSTs
• Provide the DOS the information outlined in 14 C.F.R. § 243.7
32
if the accident
meets the criteria established under 14 C.F.R. §243.11
33
and provide the DOS
representatives information about any foreign passengers to facilitate interaction
with appropriate foreign embassies.
30
49 U.S.C. §1136(g)(3)
31
49 U.S.C. §1136(g)(2)
32
https://www.ecfr.gov/current/title-14/chapter-II/subchapter-A/part-243/section-243.7
33
https://www.ecfr.gov/current/title-14/chapter-II/subchapter-A/part-243?toc=1
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• Submit a plan to the NTSB and the DOT for addressing the needs of the families of
passengers involved in an aircraft accident resulting in any loss of life.
34
See
Appendix 2 for submission guidance.
• Commit sufficient resources to carry out the filed plan to address the needs of
passengers’ families.
35
• Designate a representative of the security division to collaborate with the DHS FPS
(with whom the NTSB has an MOU) and other law enforcement agencies (for
example, local and state) to conduct a threat assessment to determine the
necessary level of security.
• Provide adequate training to employees and agents (for example, gate, customer
support, and reservations) to meet the needs of survivors and family members
following an accident. Training topics should include, but are not limited to:
o Federal transportation accident family assistance legislation.
o The air carrier’s roles and available resources.
o The role of response partners, including the Red Cross.
o The employee’s and agent’s specific role.
o Psychological first aid, crisis response, and interpersonal communication
and stress management.
• Secure private facilities at departure, arrival, connecting airports, and hubs, as
needed, in coordination with the airport authority(ies) for use as family assistance
facilities. Families of passengers may elect to gather at these locations while in
transit to the accident location. Facilities established to support family assistance
operations should be compliant with the ADA.
36
• Work with the local jurisdiction to secure a facility to serve as the FAC, considering
size, services available, security, privacy, and proximity to the key elements of the
family assistance operation. Make alternate accommodations to provide
information and offer resources to families of passengers when a physical FAC is
not established, or individuals elect not to travel to the primary FAC. Facilities
established to support alternate accommodations should be ADA compliant.
• Ensure the accessibility of information to callers with varying access and functional
needs (for example, speakers of languages other than English, those who rely on
TTY technology, and those who may have difficulty in understanding or
processing complex information).
• Establish a plan to decommission the toll-free number as the family assistance
operation transitions from an active response to long-term assistance.
34
49 U.S.C. §41113(a) and §41313(b)
35
49 U.S.C. §41113(b)(14) and §41313(c)(13)
36
42 U.S.C. §12102
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48 | Page
• Make provisions for a JFSOC to include meeting space, separate workspace,
communication technologies, and logistical support for local, state, tribal, and
federal response partners. If available, separate workspace may be made
available for the NTSB and the Red Cross on a full- or part-time basis as needed.
• Designate an air carrier senior representative (see Appendix 8) who will serve as
the representative to the NTSB’s designated director of family support services.
This person will oversee the air carrier’s family assistance operation and may need
to:
o Travel to various locations, such as the accident location, healthcare
facilities, medicolegal facilities, JFSOC, and FAC.
o Address questions regarding the air carrier’s Emergency Response Plan (for
example, service providers, available resources, and limits to family
assistance support).
o Participate in, or coordinate the participation of, an alternative
spokesperson for family briefings.
• Designate an air carrier family assistance coordinator who will serve as the primary
POC regarding the air carrier’s day-to-day family assistance operations.
Depending upon the unique nature of the accident and the resources available
from the family assistance operation partner, it may be necessary for one
individual to take on multiple roles or to delegate specific tasks to other
individuals within their organization. See Appendix 8 for additional duties.
• Designate an air carrier JFSOC liaison, who will remain present in the JFSOC to
coordinate the air carrier’s ongoing family assistance operations. This person
should have the authority to make decisions and commit resources
37
on behalf of
the air carrier. See Appendix 8 for additional duties.
• Assign a primary POC to the Red Cross JFSOC liaison to ensure that requests
from families of passengers or survivors received by the air carrier for emotional,
spiritual, and psychological care services or referrals are addressed, regardless of
where the families or survivors are located. See Appendix 8 for additional duties.
• Coordinate directly with the Red Cross JFSOC liaison to address support requests
for psychological, emotional, and spiritual care as they are received by the air
carrier’s family assistance teams or other sources and ensure that adequate facility
space is available for providing these services and for accommodating support
services staff.
• Inform families of passengers at the time of initial notification (or soon thereafter)
about the involvement of the Red Cross and their available services and provide
reminders throughout the operation about these services to address any needs
for psychological, emotional, and spiritual care.
37
49 U.S.C. §41113(b)(14) and §41313 (c)(13)
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49 | Page
• Review with the NTSB, the Red Cross, and other relevant stakeholders the travel
and logistical support needs (for example, video, software, or other technological
needs) of the families of passengers, giving special consideration to security, the
quality of hotel rooms and facilities, privacy, equitable access, and functional
needs.
• As part of broader FAC security, establish a badging system that uniquely
identifies families of passengers for access within family assistance facilities.
Considerations should be made regarding badging requirements for individuals
who have a need to access family assistance facilities.
• Coordinate through the JFSOC badging requirements for support personnel; if
necessary, consider development of a unique badging system to ensure proper
identification and to allow access for other supporting agencies. In unique cases,
the NTSB, in coordination with the air carrier, will decide on the layout and design
of the badge(s).
• Coordinate adequate private spaces or rooms within the FAC, or other suitable
location, for the presiding medicolegal authority, the Red Cross, and other family
assistance operation organizations to communicate privately with families of
passengers. These spaces should be equipped with sufficient technology to allow
for virtual meetings (for example, conference calls and web-based video
conferences).
• Provide a dedicated area in the FAC, or other suitable location, for the Red Cross
to establish as an area for families and survivors to grieve privately.
38
• Provide a dedicated area in the FAC, or other suitable location, for the Red Cross
to establish on-site temporary respite care for families who arrive with minors.
• Provide physical care and logistical support including, but not limited to,
transportation, lodging, meals, security, communications, and incidental
expenditures, to families of passengers who desire to travel to the accident
location.
39
This may include the following:
o Informing and making available air carrier personnel at departure,
connecting, and arrival airports to offer assistance.
o Informing gate agents and flight crews that families of passengers are
aboard.
o Seeking assistance from other carriers with a larger presence at airports or
transportation hubs where family members will be transiting.
o When possible, tell family members about other available services (for
example, the Red Cross) at first contact with the family.
38
49 U.S.C. §1136(c)(2)
39
49 U.S.C. §41113(b)(11) and §41313(c)(11)
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• Advise the NTSB and the Red Cross if family members have expressed that they
would prefer not to engage directly with air carrier representatives so that
alternative means of offering information and services are made available.
• Designate a contact person(s) to support families of passengers while they remain
in the accident location. If possible, this person(s) should continue to be the air
carrier interface with the family until the family returns to their residence, or until
the conclusion of the on-site family assistance operation.
o If the family has not previously received official notification, notify them of
their loved one’s involvement in the accident at an appropriate time as
soon as possible after the family arrives in the accident location.
o For family members not present in the accident location, establish a contact
for remote support to ensure the delivery of daily updates during the
on-site family assistance operation. Communicate any changes to the
support structure between on-site/immediate support and long-term
support to the TDA JFSOC liaison as soon as possible.
• Monitor the needs of injured passengers and their family members at each
medical treatment facility through ongoing coordination with the Red Cross
JFSOC liaison and other agency JFSOC liaisons to ensure access to information
and resources.
• Ensure equal treatment of the families of revenue passengers, non-revenue
passengers, and any other victim of the accident (including ground victims).
40
• Participate in the preparation and logistical coordination of an accident site visit
for families of passengers if an accident site visit is determined appropriate by the
NTSB.
• If appropriate and requested by the families of passengers, support the Red Cross
in facilitating a memorial service for any future burial of unidentified human
remains through coordination with the families, the local medicolegal authority,
and other relevant local organizations.
• Consult with families of passengers about any air carrier–sponsored monument,
including any inscriptions.
• Ensure that the transmission of any NTSB-conducted public hearing, or
comparable proceeding, occurring at a location more than 80 miles from the
accident location, is available to families of passengers at a location open to the
public at both the origin city and destination city of the accident flight.
• Consult with the NTSB and the DOS on the provision of assistance to U.S. citizens
within the United States in the event of an accident occurring outside of the United
States that involves any loss of life.
40
49 U.S.C. §41113(b)(9) and §41313(c)(9)
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• Coordinate directly with the FBI VSD regarding the provision of family assistance if
the event is determined to be an intentional criminal act and the NTSB
relinquishes investigative priority to the FBI.
• Provide reasonable compensation to the Red Cross for services they have
provided if requested by the Red Cross National Headquarters.
41
• Participate in the NTSB-coordinated family assistance assurances reviews, both
on-scene and post-response, to review the family assistance operation and
legislative requirements, resolve problems, and update operating plans and
procedures.
• Provide physical care and logistical support including, but not limited to,
transportation, lodging, meals, security, communications and incidental
expenditures to families of passengers who desire to travel to the accident
location.
42
This may include the following:
o Informing and making available air carrier personnel at departure,
connecting, and arrival airports to offer assistance.
o Informing gate agents and flight crews that families of passengers are
aboard.
o Seeking assistance from other carriers with a larger presence at airports or
transportation hubs where family members will be transiting.
o When possible, tell family members about other available services (for
example, the Red Cross) at first contact with the family.
• Commit sufficient resources to carry out the filed plan to address the needs of the
passengers’ families.
43
Red Cross FSTs
• Designate an NTSB liaison familiar with federal family assistance legislation, the
NTSB-Red Cross MOU, and the roles and responsibilities of the Red Cross, the
NTSB, and the air carrier to support the regional or local Red Cross leadership
team assigned to serve as the functional lead for emotional, spiritual, and
psychological care services in accordance with the legislation.
• Assign a JFSOC liaison who will remain present in the JFSOC to coordinate
ongoing family assistance operations on behalf of the Red Cross with the authority
to make decisions on behalf of the organization. The liaison is responsible for
participating in daily JFSOC status meetings, providing operational updates and
the status of daily activities and services, disseminating information within their
organization as appropriate, and maintaining up-to-date information regarding
available Red Cross or other disaster relief organization staffing and services
41
49 U.S.C §41113(b)(11) and §41313(c)(11)
42
49 U.S.C §41113(b)(12) and §41313(c)(12)
43
49 U.S.C §41113(b)(13) and §41313(c)(13)
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within the FAC and any alternate locations (for example, hospitals).
See Appendix 10 for the JFSOC status report form.
• Ensure that Red Cross staff and volunteers, and any other personnel approved by
the Red Cross to provide support services, are familiar with the roles and
responsibilities of the NTSB, the air carrier, the Red Cross, and other federal
partners during a federal family assistance operation.
• Review with the air carrier, the NTSB, and other stakeholders the travel and
logistical support being provided to the families of passengers by the air carrier,
to provide subject matter expertise related to the access and functional needs of
family members and survivors, to ensure needs are being adequately addressed.
• Coordinate with the air carrier liaison assigned to the Red Cross to address any
requests from families of passengers or survivors for emotional, spiritual and/or
psychological care services or referrals, regardless of their locations (for example,
an FAC, hotel, hospitals, other medical treatment facilities, home).
• Assign Red Cross disaster mental health staff or volunteers to coordinate with
local disaster relief organizations or agencies to address on-site emotional and
psychological care requests during the JFSOC coordination phase.
• Assign Red Cross spiritual care staff or volunteers or coordinate with local disaster
relief organizations or agencies to provide on-site spiritual care at the FAC, or
other suitable location.
• Coordinate staffing activities with the air carrier to ensure the badging of support
personnel providing emotional, spiritual, and psychological care services at the
FAC, or other suitable location is adequate. If necessary, consider developing a
unique badging system to ensure proper identification and allow access for other
disaster relief organizations approved by the Red Cross.
• Coordinate with the air carrier to establish a dedicated area in the FAC, or other
suitable location, for families and survivors to grieve privately
44
and provide
appropriate staff, as necessary.
• Coordinate with the air carrier to establish a secure location within the FAC, or
other suitable location, for on-site temporary respite care for survivors or families
of passengers who arrive with minors, if determined necessary by the air carrier,
the Red Cross, and the NTSB, and provide appropriate staff.
• Coordinate with the air carrier to identify adequate private spaces or rooms with
technology and telephonic capabilities within the FAC, or other suitable location,
necessary for providing on-scene, remote or virtual psychological, emotional, and
spiritual care support to survivors and/or families of passengers.
• Manage spontaneous unaffiliated volunteers, as necessary.
44
49 U.S.C. §1136(c)(2)
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• Manage unsolicited donations through partnerships with local community entities
experienced in donation management, as necessary.
• For resources other than psychological, emotional, and spiritual care support,
coordinate with the air carrier to identify the availability for additional resources
needed.
• Employ an accounting system to accurately record cost data in specific cost
categories in case the Red Cross National Headquarters later requests
reimbursement for their response from the air carrier.
• Facilitate a memorial service for any future burial of unidentified human remains
through consultation with the families, the local medicolegal authority, the air
carrier, and other relevant local organizations, when appropriate. Should these
services occur outside of the JFSOC operational period, coordinate directly with
the air carrier’s identified individual(s) for ongoing support. Notify the NTSB TDA
Red Cross coordinator of event date and time. See Appendix 8 for more
information.
• Participate in the preparation and logistical coordination of an accident site visit
for survivors or families of passengers if an accident site visit is determined
appropriate by the NTSB. Coordinate with the NTSB and the air carrier to ensure
that staffing for psychological, emotional, and spiritual support is sufficient for the
event.
• Participate in the NTSB-coordinated assurances reviews, both on-scene and post-
response, to review the family assistance operation and legislative requirements,
resolve problem areas, and update operating plans and procedures.
• Upon request, provide psychological, emotional, and spiritual care staff to public
locations where any NTSB-conducted public hearing and meetings, or
comparable proceeding, are being held or transmitted.
• Coordinate directly with the FBI VSD if an event is determined to be an intentional
criminal act and the NTSB relinquishes investigative priority to the FBI. Coordinate
directly with the FBI VSD to determine their ongoing involvement in the response
under agreements the Red Cross has or makes with the FBI VSD.
DOS FSTs
• Assign a representative to the JFSOC to coordinate DOS-related issues, including
obtaining records (dental and medical) and DNA reference samples from the
families of foreign nationals, upon request. See Appendix 8 for JFSOC
information.
• Provide logistical and communications support in establishing contact with
foreign authorities and individuals abroad to aid the air carrier, the Red Cross, and
the NTSB in fulfilling their legislated duties, if possible.
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• Provide adequate personnel to assist the federal family assistance operation for
accidents involving significant numbers of foreign nationals, particularly for those
accidents involving international flights.
• Provide interpretation and/or translation services (via DOS staff or a contracted
provider) as needed to facilitate communications with the families of passengers
and all interested parties, during family briefings.
• Assist foreign air carrier employees and families of foreign nationals (both
fatalities and survivors) with entry into the U.S., extending or granting of visas to
eligible applicants, as determined necessary.
• Respond to requests of the families of passengers for information and assistance,
as appropriate.
FBI FSTs
• If the FBI is asked to support the local response community with family assistance
services, assign a JFSOC liaison to coordinate with the NTSB, the air carrier, and
the Red Cross to ensure integration into the federal family assistance operation.
• If the aviation accident is determined to be an intentional criminal act, assume
responsibility for the investigation from the NTSB; the FBI VSD will assume federal
family assistance activities, including the following:
o Coordinate with the NTSB TDA to ensure an effective transfer of the federal
family assistance operation to reduce any additional distress to families of
passengers during the transition.
o Coordinate with the air carrier and the Red Cross regarding any ongoing
responsibilities or roles they have for a federal criminal investigation.
FEMA FSTs
• Assign a JFSOC liaison to coordinate with federal, state, and local officials
concerning emergency management–related issues, if requested by the NTSB.
See Appendix 8 for more JFSOC information.
• Provide personnel and communication assets to facilitate communication from the
accident location to the NTSB Response Operations Center (ROC), if requested by
the NTSB.
• Provide personnel to assist in public information dissemination, including
assistance in establishing and staffing external media support centers at the
accident location, wreckage hangar, locations associated with the family
assistance operation, airport(s) and other areas that may attract media interest, if
requested by the NTSB.
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55 | Page
FPS FSTs
• Coordinate with the NTSB to determine security vulnerabilities and
countermeasure requirements for location(s) associated with the NTSB
investigation (for example, the accident location, those associated with the family
assistance operation, and those for media briefings).
• Conduct building and facility security risk assessments, upon request from the
NTSB; provide a threat assessment and recommendations for ensuring the
security of designated locations.
• Ensure that sufficient certified, trained, and equipped uniformed personnel are
provided as deemed appropriate by the threat assessment, for each designated
location.
• Provide protection for designated NTSB Board Members and NTSB staff during
the response.
• Provide an FPS-operated mobile command vehicle to afford interoperable
communications and a secure environment for use by NTSB staff.
• Assume responsibility for investigations associated with FPS activities at NTSB-
designated locations as required, and share current intelligence with the NTSB, as
permitted by law, regulation, or order, at the affected location.
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Fundamental Concern 4: Personal Effects
Overview
The disposition of personal effects (PE) is a fundamental concern of the families of
passengers involved in an aircraft accident. For this framework, PE are defined as items
worn or carried with a person at the time of travel, including carry-on luggage or
checked baggage (including pets) but not items shipped as cargo. PE often hold
sentimental or financial value and may be of particular interest to the families of
passengers involved in an accident.
Based upon the experiences shared by the families of passengers from previous
accidents, the Final Report from the Task Force on Assistance to Families of Aviation
Disasters
45
acknowledged the need for sensitivity and transparency in the recovery and
management of PE immediately following an accident. In some cases, PE had been
deemed irrelevant by the response community because they were badly damaged or
were not easy to identify. In other cases, many similar or non-descript items that would
have been difficult to trace back to a specific passenger were discarded or destroyed.
Despite these difficulties, family members expressed a strong desire to have items
returned to them because of their potential sentimental value, regardless of their
condition.
45
https://www.ntsb.gov/tda/TDADocuments/Task-Force-On-Assistance-To-Families-Of-Aviation-
Disasters.pdf
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Response Partner Matrix
The following matrix highlights the roles of response partners associated with the
fundamental concern of families of passengers: personal effects (PE). An “ ” in an
intersecting cell in the matrix indicates the presence of related FSTs for each
organization.
FIGURE 6. Response Partner Matrix (Concern 4 – Personal Effects)
Family Support Tasks (Concern 4 – Personal Effects)
The FSTs associated with PE are listed below, organized by response partner.
NTSB FSTs
• Ensure that the affected air carrier is aware of its role and responsibilities
regarding the PE management obligations outlined in federal legislation.
• Via JFSOC meetings, support the coordination of PE management by response
partners. See Appendix 8 for JFSOC information.
• Ensure that families of passengers are informed about PE recovery, processing,
claim, and disposition. Note: For PE retained for an accident investigation or a
criminal investigation, securing and returning these items is typically the
responsibility of the investigative agency. The NTSB will coordinate the return of
PE it has retained for an accident investigation.
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• Determine the evidentiary value of PE, retain relevant items, and release non-
evidentiary PE to the appropriate organization, communicating with the families of
passengers regarding the investigative process and the return of PE taken into
NTSB custody.
• Coordinate the transition of PE management to the FBI if the event has been
determined to be a criminal act.
Air Carrier FSTs
• Ensure that a plan is in place to address the management of PE within the control
of the air carrier. See Appendix 17 for more information. The air carrier may
consider using a third party that has experience in managing PE associated with
MCIs.
• Ensure that families of passengers are informed about the PE management
process, the condition in which items may be returned (cleaned, repaired, as-is
with the caveat that items be safe to handle), including any future disposal process
for unclaimed items.
46
o Return any possession, if requested by the family of a passenger, within the
control of the air carrier (regardless of its condition), unless the possession
is needed for the accident investigation or a criminal investigation.
47
o Retain any unclaimed possession of a passenger within the control of the air
carrier for at least 18 months.
48
• Consult with survivors and family members regarding the disposition of remains of
fatally injured carry-on or checked pets.
• Consult with the NTSB regarding the air carrier’s role in the return process of any
PE in the custody of the NTSB.
• Consult with other entities that may have a role in the management of PE (for
example, medicolegal authority, local, state, tribal, or federal law enforcement,
insurance companies, hospitals) to determine the air carrier’s role in the return
process of any PE in the custody of those entities.
• Provide updates regarding the PE management process during daily JFSOC
meetings and post-accident response discussions. Specific information to share
includes the role of a third-party, progress and complications with the returns
process, and the status of unclaimed or unwanted items 18 months following the
accident. See Appendix 8 and Appendix 10 for additional information.
46
49 U.S.C. §41113(b)(5) and §41313(c)(5)
47
49 U.S.C. §41113(b)(6) and §41313(c)(6)
48
49 U.S.C. §41113(b)(7) and §41313(c)(7)
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• Notify family members both before and after any planned disposal of unclaimed
PE within the control of the air carrier that will occur after the required 18-month
retention period lapses.
DOS FSTs
• Coordinate with the necessary foreign mission(s) to facilitate consulate and
customs services for the return of PE to the country of destination, as applicable.
FBI FSTs
• Coordinate with the NTSB regarding the transition of PE management if the event
is determined to be a criminal event.
• Coordinate with the air carrier regarding their role in the return of PE if the event is
determined to be a criminal event.
DHHS FSTs
• Coordinate with the presiding medicolegal authority regarding the management
of PE physically associated with human remains.
Federal Family Assistance Framework NTSB/Appendix 1
Appendix 1 – Federal Family Assistance Legislation
Title 49 U.S.C. §1136
Assistance to families of passengers involved in aircraft accidents
(a) IN GENERAL. - As soon as practicable after being notified of an aircraft accident
involving an air carrier or foreign air carrier, resulting in any loss of life, and for which
the National Transportation Safety Board will serve as the lead investigative agency,
the Chairman of the National Transportation Safety Board shall—
(1) designate and publicize the name and phone number of a director of family
support services who shall be an employee of the Board and shall be responsible
for acting as a point of contact within the Federal Government for the families of
passengers involved in the accident and a liaison between the air carrier or
foreign air carrier and the families; and
(2) designate an independent nonprofit organization, with experience in disasters
and post trauma communication with families, which shall have primary
responsibility for coordinating the emotional care and support of the families of
passengers involved in the accident.
(b) RESPONSIBILITIES OF THE BOARD. - The Board shall have primary Federal responsibility for
facilitating the recovery and identification of fatally injured passengers involved in an
accident described in subsection (a).
(c) RESPONSIBILITIES OF DESIGNATED ORGANIZATION. - The organization designated for an
accident under subsection (a)(2) shall have the following responsibilities with respect
to the families of passengers involved in the accident:
(1) To provide mental health and counseling services, in coordination with the
disaster response team of the air carrier or foreign air carrier involved.
(2) To take such actions as may be necessary to provide an environment in which the
families may grieve in private.
(3) To meet with the families who have traveled to the location of the accident, to
contact the families unable to travel to such location, and to contact all affected
families periodically thereafter until such time as the organization, in consultation
with the director of family support services designated for the accident under
subsection (a)(1), determines that further assistance is no longer needed.
(4) To communicate with the families as to the roles of the organization, government
agencies, and the air carrier or foreign air carrier involved with respect to the
accident and the post-accident activities.
(5) To arrange a suitable memorial service, in consultation with the families.
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(d) PASSENGER LISTS. -
(1) REQUESTS FOR PASSENGER LISTS. -
(A) REQUESTS BY DIRECTOR OF FAMILY SUPPORT SERVICES.-It shall be the responsibility of
the director of family support services designated for an accident under
subsection (a)(1) to request, as soon as practicable, from the air carrier or
foreign air carrier involved in the accident a list, which is based on the best
available information at the time of the request, of the names of the
passengers that were aboard the aircraft involved in the accident.
(B) REQUESTS BY DESIGNATED ORGANIZATION. - The organization designated for an
accident under subsection (a)(2) may request from the air carrier or foreign air
carrier involved in the accident a list described in subparagraph (A).
(2) USE OF INFORMATION. - The director of family support services and the organization
may not release to any person information on a list obtained under paragraph (1)
but may provide information on the list about a passenger to the family of the
passenger to the extent that the director of family support services or the
organization considers appropriate.
(e) CONTINUING RESPONSIBILITIES OF THE BOARD. - In the course of its investigation of an
accident described in subsection (a), the Board shall, to the maximum extent
practicable, ensure that the families of passengers involved in the accident-
(1) are briefed, prior to any public briefing, about the accident, its causes, and any
other findings from the investigation; and
(2) are individually informed of and allowed to attend any public hearings and
meetings of the Board about the accident.
(f) USE OF AIR CARRIER RESOURCES. - To the extent practicable, the organization designated
for an accident under subsection (a)(2) shall coordinate its activities with the air carrier
or foreign air carrier involved in the accident so that the resources of the carrier can
be used to the greatest extent possible to carry out the organization's responsibilities
under this section.
(g) PROHIBITED ACTIONS. -
(1) ACTIONS TO IMPEDE THE BOARD. - No person (including a State or political
subdivision) may impede the ability of the Board (including the director of family
support services designated for an accident under subsection (a)(1)), or an
organization designated for an accident under subsection (a)(2), to carry out its
responsibilities under this section or the ability of the families of passengers
involved in the accident to have contact with one another.
(2) UNSOLICITED COMMUNICATIONS. - In the event of an accident involving an air carrier
providing interstate or foreign air transportation and in the event of an accident
involving a foreign air carrier that occurs within the United States, no unsolicited
communication concerning a potential action for personal injury or wrongful
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death may be made by an attorney (including any associate, agent, employee, or
other representative of an attorney) or any potential party to the litigation to an
individual injured in the accident, or to a relative of an individual involved in the
accident, before the 45th day following the date of the accident.
(3) PROHIBITION ON ACTIONS TO PREVENT MENTAL HEALTH AND COUNSELING SERVICES. - No
State or political subdivision thereof may prevent the employees, agents, or
volunteers of an organization designated for an accident under subsection (a)(2)
from providing mental health and counseling services under subsection (c)(1) in
the 30-day period beginning on the date of the accident. The director of family
support services designated for the accident under subsection (a)(1) may extend
such period for not to exceed an additional 30 days if the director determines
that the extension is necessary to meet the needs of the families and if State and
local authorities are notified of the determination.
(h) DEFINITIONS. - In this section, the following definitions apply:
(1) AIRCRAFT ACCIDENT. - The term "aircraft accident" means any aviation disaster,
regardless of its cause or suspected cause, for which the National Transportation
Safety Board is the lead investigative agency.
(2) PASSENGER. - The term "passenger" includes-
(A) an employee of an air carrier or foreign air carrier aboard an aircraft;
(B) any other person aboard the aircraft without regard to whether the person
paid for the transportation, occupied a seat, or held a reservation for the
flight; and
(C) any other person injured or killed in the aircraft accident, as determined
appropriate by the Board.
(i) STATUTORY CONSTRUCTION. - Nothing in this section may be construed as limiting the
actions that an air carrier may take, or the obligations that an air carrier may have, in
providing assistance to the families of passengers involved in an aircraft accident.
(j) RELINQUISHMENT OF INVESTIGATIVE PRIORITY. -
(1) GENERAL RULE. - This section (other than subsection (g)) shall not apply to an
aircraft accident if the Board has relinquished investigative priority under section
1131(a)(2)(B) and the Federal agency to which the Board relinquished
investigative priority is willing and able to provide assistance to the victims and
families of the passengers involved in the accident.
(2) BOARD ASSISTANCE. - If this section does not apply to an aircraft accident because
the Board has relinquished investigative priority with respect to the accident, the
Board shall assist, to the maximum extent possible, the agency to which the
Board has relinquished investigative priority in assisting families with respect to
the accident.
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(Added Pub. L. 104–264, title VII, §702(a)(1), Oct. 9, 1996, 110 Stat. 3265 ; amended Pub.
L. 106–181, title IV, §401(a)(1), (b)–(d), Apr. 5, 2000, 114 Stat. 129 ; Pub. L. 108–168, §3(a),
Dec. 6, 2003, 117 Stat. 2033 ; Pub. L. 115–254, div. C, §1109(c), Oct. 5, 2018, 132 Stat.
3434 .)
Editorial Notes
Amendments
2018-Subsec. (a). Pub. L. 115–254, §1109(c)(1), in introductory provisions, substituted
"aircraft accident involving an air carrier or foreign air carrier, resulting in any loss of life,
and for which the National Transportation Safety Board will serve as the lead
investigative agency" for "aircraft accident within the United States involving an air carrier
or foreign air carrier and resulting in a major loss of life".
Subsec. (h)(1). Pub. L. 115–254, §1109(c)(2)(A), amended par. (1) generally. Prior to
amendment, text read as follows: "The term 'aircraft accident' means any aviation
disaster regardless of its cause or suspected cause."
Subsec. (h)(2)(C). Pub. L. 115–254, §1109(c)(2)(B), added subpar. (C).
2003-Subsec. (j). Pub. L. 108–168 added subsec. (j).
2000-Subsec. (g)(2). Pub. L. 106–181, §401(a)(1), substituted "transportation and in the
event of an accident involving a foreign air carrier that occurs within the United States,"
for "transportation,", inserted "(including any associate, agent, employee, or other
representative of an attorney)" after "attorney", and substituted "45th day" for "30th day".
Subsec. (g)(3). Pub. L. 106–181, §401(b), added par. (3).
Subsec. (h)(2). Pub. L. 106–181, §401(c), amended heading and text generally. Prior to
amendment, text read as follows: "The term 'passenger' includes an employee of an air
carrier aboard an aircraft."
Subsec. (i). Pub. L. 106–181, §401(d), added subsec. (i).
Statutory Notes and Related Subsidiaries
Effective Date of 2000 Amendment
Amendment by Pub. L. 106–181 applicable only to fiscal years beginning after Sept. 30,
1999, see section 3 of Pub. L. 106–181, set out as a note under section 106 of this title.
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Effective Date
Except as otherwise specifically provided, section applicable only to fiscal years
beginning after Sept. 30, 1996, and not to be construed as affecting funds made
available for a fiscal year ending before Oct. 1, 1996, see section 3 of Pub. L. 104–264,
set out as an Effective Date of 1996 Amendment note under section 106 of this title.
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Title 49 U.S.C. §41113
Plans to address needs of families of passengers involved in aircraft accidents
(a) SUBMISSION OF PLAN.- Each air carrier holding a certificate of public convenience and
necessity under section 41102 of this title shall submit to the Secretary and the
Chairman of the National Transportation Safety Board a plan for addressing the
needs of the families of passengers involved in any aircraft accident involving an
aircraft of the air carrier and resulting in any loss of life.
(b) CONTENTS OF PLAN.- A plan to be submitted by an air carrier under subsection (a) shall
include, at a minimum, the following:
(1) A plan for publicizing a reliable, toll-free telephone number, and for providing
staff, to handle calls from the families of the passengers.
(2) A process for notifying the families of the passengers, before providing any
public notice of the names of the passengers, either by utilizing the services of
the organization designated for the accident under section 1136(a)(2) of this title
or the services of other suitably trained individuals.
(3) An assurance that the notice described in paragraph (2) will be provided to the
family of a passenger as soon as the air carrier has verified that the passenger was
aboard the aircraft (whether or not the names of all of the passengers have been
verified) and, to the extent practicable, in person.
(4) An assurance that the air carrier will provide to the director of family support
services designated for the accident under section 1136(a)(1) of this title, and to
the organization designated for the accident under section 1136(a)(2) of this title,
immediately upon request, a list (which is based on the best available information
at the time of the request) of the names of the passengers aboard the aircraft
(whether or not such names have been verified), and will periodically update the
list.
(5) An assurance that the family of each passenger will be consulted about the
disposition of all remains and personal effects of the passenger within the control
of the air carrier.
(6) An assurance that if requested by the family of a passenger, any possession of the
passenger within the control of the air carrier (regardless of its condition) will be
returned to the family unless the possession is needed for the accident
investigation or any criminal investigation.
(7) An assurance that any unclaimed possession of a passenger within the control of
the air carrier will be retained by the air carrier for at least 18 months.
(8) An assurance that the family of each passenger will be consulted about
construction by the air carrier of any monument to the passengers, including any
inscription on the monument.
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(9) An assurance that the treatment of the families of nonrevenue passengers (and
any other victim of the accident, including any victim on the ground) will be the
same as the treatment of the families of revenue passengers.
(10) An assurance that the air carrier will work with any organization designated under
section 1136(a)(2) of this title on an ongoing basis to ensure that families of
passengers receive an appropriate level of services and assistance following each
accident.
(11) An assurance that the air carrier will provide reasonable compensation to any
organization designated under section 1136(a)(2) of this title for services
provided by the organization.
(12) An assurance that the air carrier will assist the family of a passenger in traveling to
the location of the accident and provide for the physical care of the family while
the family is staying at such location.
(13) An assurance that the air carrier will commit sufficient resources to carry out the
plan.
(14) An assurance that, upon request of the family of a passenger, the air carrier will
inform the family of whether the passenger’s name appeared on a preliminary
passenger manifest for the flight involved in the accident.
(15) An assurance that the air carrier will provide adequate training to the employees
and agents of the carrier to meet the needs of survivors and family members
following an accident.
(16) An assurance that the air carrier, in the event that the air carrier volunteers
assistance to United States citizens within the United States with respect to an
aircraft accident outside the United States involving any loss of life, will consult
with the Board and the Department of State on the provision of the assistance.
(17) (A) An assurance that, in the case of an accident that results in any damage to a
manmade structure or other property on the ground that is not government-
owned, the air carrier will promptly provide notice, in writing, to the extent
practicable, directly to the owner of the structure or other property about liability
for any property damage and means for obtaining compensation.
(B) At a minimum, the written notice shall advise an owner (i) to contact the
insurer of the property as the authoritative source for information about
coverage and compensation; (ii) to not rely on unofficial information offered
by air carrier representatives about compensation by the air carrier for
accident-site property damage; and (iii) to obtain photographic or other
detailed evidence of property damage as soon as possible after the accident,
consistent with restrictions on access to the accident site.
(18) An assurance that, in the case of an accident in which the National Transportation
Safety Board conducts a public hearing or comparable proceeding at a location
greater than 80 miles from the accident site, the air carrier will ensure that the
proceeding is made available simultaneously by electronic means at a location
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open to the public at both the origin city and destination city of the air carrier’s
flight if that city is located in the United States.
(c)
CERTIFICATE REQUIREMENT.-The Secretary may not approve an application for a
certificate of public convenience and necessity under section 41102 of this title unless
the applicant has included as part of such application a plan that meets the
requirements of subsection (b).
(d) LIMITATION ON LIABILITY.-An air carrier shall not be liable for damages in any action
brought in a Federal or State court arising out of the performance of the air carrier in
preparing or providing a passenger list, or in providing information concerning a
preliminary passenger manifest, pursuant to a plan submitted by the air carrier under
subsection (b), unless such liability was caused by conduct of the air carrier which was
grossly negligent or which constituted intentional misconduct.
(e) AIRCRAFT ACCIDENT AND PASSENGER DEFINED.-In this section, the terms "aircraft accident"
and "passenger" have the meanings such terms have in section 1136 of this title.
(f) STATUTORY CONSTRUCTION–. - Nothing in this section may be construed as limiting the
actions that an air carrier may take, or the obligations that an air carrier may have, in
providing assistance to the families of passengers involved in an aircraft accident.
(Added Pub. L. 104–264, title VII, §703(a), Oct. 9, 1996, 110 Stat. 3267 ; amended Pub. L.
106–181, title IV, §402(a)(1)–(3), (5)–(c), Apr. 5, 2000, 114 Stat. 129 , 130; Pub. L. 108–176,
title VIII, §809(a), Dec. 12, 2003, 117 Stat. 2588 ; Pub. L. 115–254, div. C, §1109(a), Oct. 5,
2018, 132 Stat. 3434 .)
Editorial Notes
Amendments
2018-Subsec. (a). Pub. L. 115–254, §1109(a)(1), substituted "any loss of life" for "a major
loss of life."
Subsec. (b)(9). Pub. L. 115–254, §1109(a)(2)(A), substituted "(and any other victim of the
accident, including any victim on the ground)" for "(and any other victim of the
accident”)."
Subsec. (b)(16). Pub. L. 115–254, §1109(a)(2)(B), substituted "any loss of life" for "major
loss of life."
Subsec. (b)(17)(A). Pub. L. 115–254, §1109(a)(2)(C), substituted "any damage" for
"significant damage."
2003-Subsec. (b)(16). Pub. L. 108–176, §809(a)(1), struck out "the air carrier" after "major
loss of life."
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Subsec. (b)(17), (18). Pub. L. 108–176, §809(a)(2), added pars. (17) and (18).
2000-Subsec. (a). Pub. L. 106–181, §402(a)(5)(A), substituted "Each air carrier" for "Not
later than 6 months after the date of the enactment of this section, each air carrier."
Subsec. (b)(14) to (16). Pub. L. 106–181, §402(a)(1)–(3), added pars. (14) to (16).
SubseI(c). Pub. L. 106–181, §402(a)(5)(B), substituted "The Secretary“ for "After the date
that is 6 months after the date of the enactment of this section, the Secretary."
Subsec. (d). Pub. L. 106–181, §402(b), inserted ", or in providing information concerning
a preliminary passenger man “fest," before "pursuant to a plan."
Subsec. (f). Pub. L. 106–181, §402(c), added subsec. (f).
Statutory Notes and Related Subsidiaries
Effective Date of 2003 Amendment
Amendment by Pub. L. 108–176 applicable only to fiscal years beginning after Sept. 30,
2003, except as otherwise specifically provided, see section 3 of Pub. L. 108–176, set out
as a note under section 106 of this title.
Effective Date of 2000 Amendment
Amendment by section 402(a)(5)(B) to (c) of Pub. L. 106–181 applicable only to fiscal
years beginning after Sept. 30, 1999, see section 3 of Pub. L. 106–181, set out as a note
under section 106 of this title.
Pub. L. 106–181, title IV, §402(a)(4), Apr. 5, 2000, 114 Stat. 130 , provided “hat: "The
amendments made by paragraphs (1), (2), and (3) [amending this section] shall take
effect on t
he
180th day following the date of the enactment of this Act [Apr. 5, 2000]. On
or before such 180
th
day, each air carrier holding a certificate of public convenience and
necessity under section 41102 of title 49, United States Code, shall submit to the
Secretary [of Transportation] and the Chairman of the National Transportation Safety
Board an updated plan under section 41113 of such title that meets the requirements of
the amendments made by paragraphs (1), (2), an” (3)."
Effective Date
Except as otherwise specifically provided, section applicable only to fiscal years
beginning after Sept. 30, 1996, and not to be construed as affecting funds made
available for a fiscal year ending before Oct. 1, 1996, see section 3 of Pub. L. 104–264,
set out as an Effective Date of 1996 Amendment note under section 106 of this title.
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Update Plans
Pub. L. 108–176, title VIII, §809(c), Dec. 12, 2003, 117 Stat. 2589 , provided that: "Air
carriers and foreign air carriers shall update their plans under sections 41113 and 41313
of title 49, United States Code, respectively, to reflect the amendments made by
subsections (a) and (b) of this section [amending this section and section 41313 of this
title] not later than 90 days after the date of enactment of this Act [Dec. 12, 2003]."
Establishment of Task Force
Pub. L. 104–264, title VII, §704, Oct. 9, 1996, 110 Stat. 3268 , provided that:
"(a) Establishment.-The Secretary of Transportation, in cooperation with the National
Transportation Safety Board, the Federal Emergency Management Agency, the
American Red Cross, air carriers, and families which have been involved in aircraft
accidents shall establish a task force consisting of representatives of such entities
and families, representatives of air carrier employees, and representatives of such
other entities as the Secretary considers appropriate.
"(b) Guidelines and Recommendations.-The task force established pursuant to
subsection (a) shall develop-
"(1) guidelines to assist air carriers in responding to aircraft accidents;
"(2) recommendations on methods to ensure that attorneys and representatives of
media organizations do not intrude on the privacy of families of passengers
involved in an aircraft accident;
"(3) recommendations on methods to ensure that the families of passengers
involved in an aircraft accident who are not citizens of the United States receive
appropriate assistance;
"(4) recommendations on methods to ensure that State mental health licensing laws
do not act to prevent out-of-state mental health workers from working at the site
of an aircraft accident or other related sites;
"(5) recommendations on the extent to which military experts and facilities can be
used to aid in the identification of the remains of passengers involved in an
aircraft accident; and
"(6) recommendations on methods to improve the timeliness of the notification
provided by air carriers to the families of passengers involved in an aircraft
accident, including-
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"(A) an analysis of the steps that air carriers would have to take to ensure that an
accurate list of passengers on board the aircraft would be available within 1
hour of the accident and an analysis of such steps to ensure that such list
would be available within 3 hours of the accident;
"(B) an analysis of the added costs to air carriers and travel agents that would
result if air carriers were required to take the steps described in
subparagraph (A);
"(C) an analysis of any inconvenience to passengers, including flight delays, that
would result if air carriers were required to take the steps described in
subparagraph (A); and
"(D) an analysis of the implications for personal privacy that would result if air
carriers were required to take the steps described in subparagraph (A).
"(c) Report.-Not later than 1 year after the date of the enactment of this Act [Oct. 9,
1996], the Secretary shall transmit to Congress a report containing the model plan
and recommendations developed by the task force under subsection (b)."
Limitation on Statutory Construction
Pub. L. 104–264, title VII, §705, Oct. 9, 1996, 110 Stat. 3269 , provided that: "Nothing in
this title [enacting this section and section 1136 of this title, amending section 1155 of
this title, and enacting provisions set out as notes under this section and section 40101 of
this title] or any amendment made by this title may be construed as limiting the actions
that an air carrier may take, or the obligations that an air carrier may have, in providing
assistance to the families of passengers involved in an aircraft accident."
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Title 49 U.S.C. §41313
Plans to address needs of families of passengers involved in foreign air carrier accidents
(a) DEFINITIONS.-In this section, the following definitions apply:
(1) AIRCRAFT ACCIDENT.-The term "aircraft accident" means any aviation disaster,
regardless of its cause or suspected cause, that occurs within the United States;
and
(2) PASSENGER.-The term "passenger" has the meaning given such term by section
1136.
(b) SUBMISSION OF PLANS.-A foreign air carrier providing foreign air transportation under
this chapter shall transmit to the Secretary of Transportation and the Chairman of the
National Transportation Safety Board a plan for addressing the needs of the families
of passengers involved in an aircraft accident that involves an aircraft under the
control of the foreign air carrier and results in any loss of life.
(c) CONTENTS OF PLANS.-To the extent permitted by foreign law which was in effect on the
date of the enactment of this section, a plan submitted by a foreign air carrier under
subsection (b) shall include the following:
(1) TELEPHONE NUMBER.-A plan for publicizing a reliable, toll-free telephone number
and staff to take calls to such number from families of passengers involved in an
aircraft accident that involves an aircraft under the control of the foreign air carrier
and results in any loss of life.
(2) NOTIFICATION OF FAMILIES.-A process for notifying, in person to the extent
practicable, the families of passengers involved in an aircraft accident that
involves an aircraft under the control of the foreign air carrier and results in any
loss of life before providing any public notice of the names of such passengers.
Such notice shall be provided by using the services of-
(A) the organization designated for the accident under section 1136(a)(2); or
(B) other suitably trained individuals.
(3) NOTICE PROVIDED AS SOON AS POSSIBLE.-An assurance that the notice required by
paragraph (2) shall be provided as soon as practicable after the foreign air carrier
has verified the identity of a passenger on the foreign aircraft, whether or not the
names of all of the passengers have been verified.
(4) LIST OF PASSENGERS.-An assurance that the foreign air carrier shall provide,
immediately upon request, and update a list (based on the best available
information at the time of the request) of the names of the passengers aboard the
aircraft (whether or not such names have been verified), to-
(A) the director of family support services designated for the accident under
section 1136(a)(1); and
(B) the organization designated for the accident under section 1136(a)(2).
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(5) CONSULTATION REGARDING DISPOSITION OF REMAINS AND EFFECTS.-An assurance that the
family of each passenger will be consulted about the disposition of any remains
and personal effects of the passenger that are within the control of the foreign air
carrier.
(6) RETURN OF POSSESSIONS.-An assurance that, if requested by the family of a
passenger, any possession (regardless of its condition) of that passenger that is
within the control of the foreign air carrier will be returned to the family unless the
possession is needed for the accident investigation or a criminal investigation.
(7) UNCLAIMED POSSESSIONS RETAINED.-An assurance that any unclaimed possession of a
passenger within the control of the foreign air carrier will be retained by the
foreign air carrier for not less than 18 months after the date of the accident.
(8) MONUMENTS.-An assurance that the family of each passenger will be consulted
about construction by the foreign air carrier of any monument to the passengers
built in the United States, including any inscription on the monument.
(9) EQUAL TREATMENT OF PASSENGERS.-An assurance that the treatment of the families of
nonrevenue passengers (and any other victim of the accident, including any
victim on the ground) will be the same as the treatment of the families of revenue
passengers.
(10) SERVICE AND ASSISTANCE TO FAMILIES OF PASSENGERS.-An assurance that the foreign air
carrier will work with any organization designated under section 1136(a)(2) on an
ongoing basis to ensure that families of passengers receive an appropriate level
of services and assistance following an accident.
(11) COMPENSATION TO SERVICE ORGANIZATIONS.-An assurance that the foreign air carrier
will provide reasonable compensation to any organization designated under
section 1136(a)(2) for services and assistance provided by the organization.
(12) TRAVEL AND CARE EXPENSES.-An assurance that the foreign air carrier will assist the
family of any passenger in traveling to the location of the accident and provide for
the physical care of the family while the family is staying at such location.
(13) RESOURCES FOR PLAN.-An assurance that the foreign air carrier will commit sufficient
resources to carry out the plan.
(14) SUBSTITUTE MEASURES.-If a foreign air carrier does not wish to comply with
paragraph (10), (11), or (12), a description of proposed adequate substitute
measures for the requirements of each paragraph with which the foreign air
carrier does not wish to comply.
(15) TRAINING OF EMPLOYEES AND AGENTS.-An assurance that the foreign air carrier will
provide adequate training to the employees and agents of the carrier to meet the
needs of survivors and family members following an accident.
(16) CONSULTATION ON CARRIER RESPONSE NOT COVERED BY PLAN.-An assurance that, in the
event that the foreign air carrier volunteers assistance to United States citizens
within the United States with respect to an aircraft accident outside the United
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States involving any loss of life, will consult 1 with the Board and the Department
of State on the provision of the assistance.
(17) NOTICE CONCERNING LIABILITY FOR MANMADE STRUCTURES.-
(A) IN GENERAL.-An assurance that, in the case of an accident that results in any
damage to a manmade structure or other property on the ground that is not
government-owned, the foreign air carrier will promptly provide notice, in
writing, to the extent practicable, directly to the owner of the structure or
other property about liability for any property damage and means for
obtaining compensation.
(B) MINIMUM CONTENTS.-At a minimum, the written notice shall advise an owner (i)
to contact the insurer of the property as the authoritative source for
information about coverage and compensation; (ii) to not rely on unofficial
information offered by foreign air carrier representatives about compensation
by the foreign air carrier for accident-site property damage; and (iii) to obtain
photographic or other detailed evidence of property damage as soon as
possible after the accident, consistent with restrictions on access to the
accident site.
(18) SIMULTANEOUS ELECTRONIC TRANSMISSION OF NTSB HEARING.-An assurance that, in the
case of an accident in which the National Transportation Safety Board conducts a
public hearing or comparable proceeding at a location greater than 80 miles
from the accident site, the foreign air carrier will ensure that the proceeding is
made available simultaneously by electronic means at a location open to the
public at both the origin city and destination city of the foreign air carrier's flight if
that city is located in the United States.
(d) PERMIT AND EXEMPTION REQUIREMENT.-The Secretary shall not approve an application for
a permit under section 41302 unless the applicant has included as part of the
application or request for exemption a plan that meets the requirements of
subsection (c).
(e) LIMITATION ON LIABILITY.-A foreign air carrier shall not be liable for damages in any
action brought in a Federal or State court arising out of the performance of the
foreign air carrier in preparing or providing a passenger list pursuant to a plan
submitted by the foreign air carrier under subsection (c), unless the liability was
caused by conduct of the foreign air carrier which was grossly negligent or which
constituted intentional misconduct.
(Added Pub. L. 105–148, §1(a), Dec. 16, 1997, 111 Stat. 2681 ; amended Pub. L. 106–
181, title IV, §403(a)–(c)(1), Apr. 5, 2000, 114 Stat. 130 ; Pub. L. 108–176, title VIII,
§809(b), Dec. 12, 2003, 117 Stat. 2589 ; Pub. L. 115–254, div. B, title V, §539(d), div. C,
§1109(b), Oct. 5, 2018, 132 Stat. 3370 , 3434.)
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Editorial Notes
References in Text
The date of the enactment of this section, referred to in subsec. (c), is the date of
enactment of Pub. L. 105–148, which was approved Dec. 16, 1997.
Amendments
2018-Subsec. (b). Pub. L. 115–254, §1109(b)(1), substituted "any loss of life" for "a major
loss of life."
Subsec. (c)(1). Pub. L. 115–254, §1109(b)(2)(A), substituted "any loss of life" for "a
significant loss of life."
Subsec. (c)(2). Pub. L. 115–254, §1109(b)(2)(B), substituted "any loss of life" for "a
significant loss of life" in introductory provisions.
Subsec. (c)(9). Pub. L. 115–254, §1109(b)(2)(C), amended par. (9) generally. Prior to
amendment, text read as follows: "An assurance that the treatment of the families of
nonrevenue passengers will be the same as the treatment of the families of revenue
passengers."
Subsec. (c)(16). Pub. L. 115–254, §1109(b)(2)(D), substituted "any loss of life" for "major
loss of life" and "will consult" for "the foreign air carrier will consult."
Pub. L. 115–254, §539(d), substituted "An assurance that" for "An assurance that the
foreign air carrier."
Subsec. (c)(17)(A). Pub. L. 115–254, §1109(b)(2)(E), substituted "any damage" for
"significant damage."
2003-Subsec. (c)(17), (18). Pub. L. 108–176 added pars. (17) and (18).
2000-Subsec. (a)(2). Pub. L. 106–181, §403(a), amended heading and text of par. (2)
generally. Prior to amendment, text read as follows: "The term 'passenger' includes an
employee of a foreign air carrier or air carrier aboard an aircraft."
Subsec. (b). Pub. L. 106–181, §403(b), substituted "major" for "significant".
Subsec. (c)(15), (16). Pub. L. 106–181, §403(c)(1), added pars. (15) and (16).
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Statutory Notes and Related Subsidiaries
Effective Date of 2003 Amendment
Amendment by Pub. L. 108–176 applicable only to fiscal years beginning after Sept. 30,
2003, except as otherwise specifically provided, see section 3 of Pub. L. 108–176, set out
as a note under section 106 of this title.
Effective Date of 2000 Amendment
Amendment by section 403(a) and (b) of Pub. L. 106–181 applicable only to fiscal years
beginning after Sept. 30, 1999, see section 3 of Pub. L. 106–181, set out as a note under
section 106 of this title.
Pub. L. 106–181, title IV, §403(c)(2), Apr. 5, 2000, 114 Stat. 131 , provided that: "The
amendment made by paragraph (1) [amending this section] shall take effect on the
180th day following the date of the enactment of this Act [Apr. 5, 2000]. On or before
such 180th day, each foreign air carrier providing foreign air transportation under
chapter 413 of title 49, United States Code, shall submit to the Secretary [of
Transportation] and the Chairman of the National Transportation Safety Board an
updated plan under section 41313 of such title that meets the requirements of the
amendment made by paragraph (1)."
Effective Date
Pub. L. 105–148, §1(c), Dec. 16, 1997, 111 Stat. 2683 , provided that: "The amendments
made by this section [enacting this section] shall take effect on the 180th day following
the date of the enactment of this Act [Dec. 16, 1997]."
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Federal Family Assistance Framework NTSB/Appendix 2
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Appendix 2 – Air Carrier Assurance Submission Guidance
DOT and NTSB Family Assistance Plan Filings
49
The ADFAA and the Foreign Air Carrier Family Support Act of 1997 require that
air carriers with a DOT Certificate of Public Convenience and Necessity (CPCN) and
foreign air carriers with a foreign air carrier permit submit to the Secretary of the DOT
and the chair of the NTSB through the TDA Division a plan for addressing the needs of
the families of passengers involved in and any other victims affected by an aircraft
accident involving an aircraft of the air carrier and resulting in any loss of life. The
contents of the plan should address, at a minimum, how the air carrier will comply with
the 18 assurances identified in the above-mentioned family assistance acts.
The guide below was developed to assist air carriers in reviewing their plans on
file with the DOT, in submitting a new plan, and in updating existing plans. Also attached
is guidance for submitting a copy of the family assistance plan to the NTSB TDA and
providing additional information for emergency contact information.
DOT Submissions
I. DOT Air Carrier Assurances can be found online at—
a. http://www.regulations.gov
i. For Foreign Air Carrier Plans, enter in the search box:
DOT-OST-1998-3304
ii. For U.S. Domestic Air Carrier Plans, enter in the search box:
DOT-OST-1996-1960
II. To file a new air carrier assurance plan or update an existing plan with the DOT,
select only one of the following methods:
a. Submit On-line:
i. Foreign Air Carrier: https://www.regulations.gov/document/DOT-
OST-1998-3304-0300
ii. Domestic Air Carrier: https://www.regulations.gov/document/DOT-
OST-1996-1960-0001
iii. Click on the blue “Comment” button under the U.S. DOT/OST – Title
area.
iv. In the comment box, enter the name of the air carrier.
49
This document is also available at https://www.ntsb.gov/tda/TDADocuments/TDA_Airline-Submission-
Guidance_8.23.pdf
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v. In the “What is your comment about?” area, select
“Supporting/Supplemental Materials” from the dropdown.
vi. Under “Attach Files,” you may “drag and drop files or select “Browse”
to attach assurance plan.
vii. Email Address
1. Input your email address.
2. Select check box if you would like to receive email
confirmation of submission.
viii. reCAPTCHA
1. Select checkbox “I’m not a robot.”
ix. Click “Submit Comment” button.
b. Submit by Mail:
i. Provide a cover letter with the correct docket number reference (see
sample cover letter).
1. Include the name of the air carrier.
2. State whether the filing is the first for the air carrier or is an
update to an existing plan already on file.
Mailing Address:
3. Docket Operations Facility
Air Carrier Docket Number Reference:________________
U.S. Department of Transportation
West Building Ground Floor, Rm. W12-140
1200 New Jersey Avenue SE
Washington, DC 20590
NTSB TDA Submissions
I. NTSB TDA maintains copies of air carrier family assistance plans for the NTSB.
II. Air carriers should include a 24-hour emergency response contact number with
plans submitted to the NTSB TDA.
a. This is a telephone number the NTSB can use to communicate with an air
carrier for confirmation or notification of an aviation disaster at any time of
the day.
III. For Foreign Air Carrier plans submitted to NTSB TDA, foreign air carriers should
include a cover letter indicating the use of substitute measures and a description
of these measures in accordance with the Foreign Air Carrier Family Support Act
of 1997.
IV. To file a new air carrier assurance plan or update an existing plan on file with the
NTSB, select one of the following methods:
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a. Submit by Email
i. assistance@ntsb.gov
b. Submit by Fax
i. (202) 459-9402
c. Submit by Mail
i. National Transportation Safety Board
Attn: Air Carrier Liaison
Transportation Disaster Assistance Division
Air Carrier Docket Number Reference:________________
490 L’Enfant Plaza East, S.W.
Washington, DC 20594
V. Air carriers should update existing plans and/or cover letters on file with the NTSB
when any of the following occur:
a. A change in the air carrier’s 24-Hour Emergency Contact Number or
dispatch/operations center number.
b. A change in the air carrier’s name on the FAA operating certificate or a
change in the business name of the air carrier.
c. A change in the air carrier’s operator or business partner agreement (doing
business as).
d. A change or update in family assistance services provided under an
agreement associated with the operator’s codeshare alliance/partnership
or when making a change to a new or different service provider.
e. A change in substitute measures by foreign carriers.
f. Revision of the ADFAA or the Foreign Air Carrier Family Support Act of
1997 by the DOT.
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Federal Family Assistance Framework NTSB/Appendix 3
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Appendix 3 – TDA Air Carrier Contact Listing
50
Air Carrier:
IATA Code:
Air Carrier Primary Mailing Address:
Air Carrier Operations Center (24/7 Dispatch) Phone:
Air Carrier ICAO Callsign:
Operations Type (for example, 121):
Air Carrier’s FAA Certificate Management Office (POI’s city, state):
Air Carrier Main Website:
Air Carrier Senior Executive Name (for example, chief executive officer, president):
Air
Carrier Director of Safety Name (
14
C.F.R. 119 position):
Code Share Partners:
Name of Family Assistance Program (such as CARE, SAT):
Air Carrier Primary TDA POC:
Air Carrier Primary TDA POC Title:
Air Carrier Primary Cell Phone:
Air Carrier Primary Desk Phone:
Air Carrier Primary Email:
50
Fillable form available at https://www.ntsb.gov/tda/TDADocuments/TDA_Airline-Contact-Listing-
Form_8.23.pdf
Federal Family Assistance Framework NTSB/Appendix 3
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Alternate Emergency Response/ Family Assistance
POCs
List any individuals who will act on behalf of the primary
POC in their absence or who will be coordinating air
carrier emergency response.
Up to 5 alternate POCs may be entered.
Alternate 1
Air Carrier Alternate POC:
Air Carrier Alternate Title:
Air Carrier Alternate Phone:
Air Carrier Alternate Email:
Alternate 2
Air Carrier Alternate POC:
Air Carrier Alternate Title:
Air Carrier Alternate Phone:
Air Carrier Alternate Email:
Alternate 3
Air Carrier Alternate POC:
Air Carrier Alternate Title:
Air Carrier Alternate Phone:
Air Carrier Alternate Email:
Alternate 4
Air Carrier Alternate POC:
Air Carrier Alternate Title:
Air Carrier Alternate Phone:
Air Carrier Alternate Email:
Alternate 5
Air Carrier Alternate POC:
Air Carrier Alternate Title:
Air Carrier Alternate Phone:
Air Carrier Alternate Email:
Submit form to NTSB TDA at assistance@ntsb.gov
Federal Family Assistance Framework NTSB/Appendix 4
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Appendix 4 - Air Carrier Accident Notification Flow
The following steps provide air carriers guidance for reporting aviation accidents
resulting in fatalities that occur within the United States, its territories, or its possessions.
The process describes the recommended steps to follow when the air carrier will be
activating their family assistance program.
STEP 1: Notify the NTSB immediately of a fatal aviation accident in accordance with
49 C.F.R. 830.5. (Executed by air carrier operations center or safety
department.)
1. CALL NTSB RESPONSE OPERATIONS CENTER (ROC): 202-314-6290
2. Provide the following information (49 C.F.R. 830.6) to the ROC watch
officer:
a. Type, nationality, and registration marks of the aircraft.
b. Names of owner and operator (air carrier name) of the aircraft.
c. Name of pilot in command (number of crew).
d. Date and time of the accident.
e. Last point of departure and point of intended landing of the aircraft.
f. Accident location (Position of the aircraft with reference to some
easily defined geographical point).
g. Number of persons aboard, number of fatalities, and number
seriously injured.
h. Nature of the accident, weather conditions, and the extent of
damage to the aircraft, as known.
i. A description of any hazardous material aboard (including
explosives, radioactive materials, or other dangerous articles
carried).
3. Provide an air carrier primary point of contact and phone number for
follow-up.
STEP 2: Notify NTSB TDA of the air carrier’s activation of their family assistance plan:
1. Call NTSB Response Operations Center (ROC): 202-314-6290.
2. Ask for the TDA duty officer.
3. Provide the following information:
a. Place (or general vicinity) of accident, number of passengers and
crew (based on preliminary departure information), and number of
injuries and fatalities (if known).
b. Flight number, origination, connection points, destination,
passenger demographics (nationalities, large groups, etc. [ if
known]), whether the flight was domestic or international, and
Federal Family Assistance Framework NTSB/Appendix 4
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whether the flight was a codeshare.
c. Name and telephone number of the person/persons in charge of the
air carrier’s humanitarian response, passenger manifest
reconciliation, and family notification process.
d. Name, telephone number, and location of the facility designated as
the FAC and JFSOC.
STEP 3: Complete the “NTSB TDA Accident Notification Supplemental Information
Worksheet.” (see Appendix 5):
1. https://www.ntsb.gov/tda/TDADocuments/TDA_Airline-Supplemental-
Form_8.23.pdf
Email worksheet to TDA: assistance@ntsb.gov.
STEP 4: Upon request, provide the NTSB TDA chief or Designated TDA
Representative the most current reconciled copy of the passenger & crew
list/manifest:
1. Send the passenger list/manifest via email to both of the following
addresses:
a. [email protected]ov
b. assistance@ntsb.gov
2. Include the subject line: “URGENT MANIFEST URGENT (FWD to TDA)”.
3. Passenger list/manifest(s) should be submitted in an Excel format.
4. The file should include the date, time, and a submission version number.
5. The following information should be included (when available):
a. Passenger name (last name, first name, middle name)
b. Seat assignment
c. Passenger category (such as passenger, crew member, non-revenue)
d. Passenger contact information
e. Passenger date of birth
f. Special assistance codes (for example, wheelchair required)
g. Gender
h. Nationality
i. Emergency contact information
STEP 5: The NTSB TDA chief or designated TDA representative will establish a
JFSOC coordination call with the TDA duty officer, TDA air carrier liaison,
the air carrier, the Red Cross, and available local, state, tribal or federal
responding agencies/entities.
1. Contact the TDA duty officer or TDA air carrier liaison
2. Conference call agenda items:
a. Status of emergency response and family assistance plan activation.
b. Air carrier’s publicized toll-free telephone number.
Federal Family Assistance Framework NTSB/Appendix 4
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c. FRC locations and status.
d. FAC location(s) and activation status.
e. Air carrier’s go-team status.
f. Status of notification of passengers’ family members.
g. Air carrier’s family assistance/ emergency response point(s) of
contact.
h. Air carrier’s family assistance coordinator.
i. Manifest updates and crew/passenger accountability.
j. Additional information as needed.
NTSB TDA CONTACT INFORMATION:
Direct:
Through the NTSB ROC:
202-314-6185
202-314-6290
assistance@ntsb.gov
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Federal Family Assistance Framework NTSB/Appendix 5
89 | Page
Appendix 5 – TDA Accident Notification Supplemental Information
Form
51
DISCLAIMER: The information requested on this worksheet will be used by the NTSB and our federal
partners during the initial launch phase of an NTSB accident investigation. Completing this worksheet
is voluntary; however, air carriers must still comply with notification and reporting requirements in
accordance with 49 C.F.R. 830.
Instructions:
Please complete the following survey with as much information as possible. This information
should be submitted to the TDA Division within 1-2 hours after the air carrier makes the official accident
notification to the NTSB Response Operations Center. For questions, please call TDA at 202-314-6185.
AIR CARRIER ACCIDENT INFORMATION
Certificated Air Carrier Operator:
Airline Flight Operated As:
(For example, Northwest Airlines)
Flight
Number
Accident Site location:
(for example, city & state, airport)
Time of
Accident:
Total Number of Persons on Board
PASSENGERS INFORMATION
Adults:
Infants (lap only):
Non-Rev:
Total Paxs:
CREW INFORMATION
# of Flight Crew:
(incl. jumpseat)
# of Cabin/In-Flight
Crew:
Total Crew:
ADDITIONAL DETAILS
HazMat onboard? Yes No Unknown
List Special Groups
onboard (for
example, VIPs, SSR
student groups)
Aircraft Fatalities: Yes No Unknown
Number of Aircraft Fatalities (if known)
Ground Fatalities: Yes No Unknown
Number of Ground Fatalities (if known):
Is there ground structure damage? Yes No
Additional Details (office buildings, residences, shopping mall, other):
Flight Pairing Route:
Departure:
Arrival:
Aircraft Type:
Aircraft Registration:
Toll-free Family Assistance Phone #:
Carrier
EOC Phone
#
FRC Location(s):
FAC Planned Location (if known):
Nearest Commercial Airport (to accident location):
List of Codeshare agreements (for this flight):
Air Carrier POC Name, Title & Direct Phone Number:
Send completed form to assistance@ntsb.gov
51
Fillable form available at https://www.ntsb.gov/tda/TDADocuments/TDA_Airline-Supplemental-
Form_8.23.pdf
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Appendix 6 - NTSB Guidance for Passenger List/Manifest
Distribution & Control
52
The National Transportation Safety Board’s (NTSB) understanding of passenger
list/manifest distribution and control has changed to reflect the current emergency
management approaches for mass casualty incident (MCI) response. Previous NTSB
guidance focused largely on all-fatal accidents (i.e., no surviving passengers or crew),
where the presiding medical examiner or coroner is principally responsible for victim
accounting.
Mass casualty incidents pose a different set of victim accounting challenges due
to the rapid movement of survivors away from the scene. Determining the whereabouts
and welfare of those involved in an MCI is the responsibility of the jurisdiction in which
an accident has occurred. This process requires collaboration between public safety
agencies and the air carrier, who holds critical information related to the persons onboard
the aircraft.
Therefore, it is important for air carriers to develop an understanding of the mass
casualty response and identify the agency(ies) that will be coordinating the victim
accounting operation; develop a process to consider requests for the passenger
list/manifest; and provide relevant information (i.e., number of persons onboard, names
of passengers and crew, contact information for survivors and family members), to
appropriate agencies. This document offers guidance for air carriers and the response
community regarding both the distribution of the passenger list/manifest and the
importance of maintaining control of the information contained on the passenger
list/manifest. This guidance does not obligate air carriers to provide the passenger
list/manifest to any agency or organization beyond what is required by relevant federal,
state, or local statute.
What does the family assistance legislation specifically state regarding passenger list/manifest
distribution?
The family assistance legislation specifies that the NTSB and the designated
organization, which is the American Red Cross (ARC), shall receive the passenger list
from the air carrier involved in the accident upon request.
53
The NTSB and ARC are
restricted from sharing the information other than with the family of a passenger, if
deemed appropriate.
54
Which agencies, beyond those specified in federal legislation, might request information from the
passenger list/manifest?
52
Revised July 16, 2019
53
49 U.S.C. §1136(d), 49 U.S.C. §41113(b)(4), and 49 U.S.C. §41313(c)(4)
54
49 U.S.C. §1136(d)(2)
Federal Family Assistance Framework NTSB/Appendix 6
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The jurisdiction where the accident occurred is responsible for accounting for all
fatal and non-fatal victims of the MCI. This responsibility requires collaboration between
the air carrier and the presiding public safety agencies – emergency management
agency, fire department, emergency medical services, law enforcement, the medical
examiner/coroner, public health authorities and hospitals that have received patients.
Air carriers are essential in this accounting process. They hold critical information – the
passenger list/manifest- that serves as the foundation for the victim accounting process.
The NTSB encourages air carriers to develop a process to consider requests for the
passenger list/manifest and a mechanism to provide information from the passenger
list/manifest to a local or state coordinating agency established by the presiding
jurisdiction responsible for investigating missing persons, such as the emergency
management agency or lead law enforcement agency located within an Emergency
Operations Center (EOC). Air carriers should refer other local agencies to this
coordinating agency for information contained on the passenger list/manifest. Air
carriers should provide the NTSB with the names and agency affiliations of the agencies
with which they shared information from the passenger list/manifest, what information
was included, and the date and time the information was shared, as soon as possible
after dissemination.
What information is included on the passenger list/manifest?
Carriers are obligated to provide the NTSB and ARC “a list (which is based on the
best available information at the time of the request) of the names of the passengers
aboard the aircraft (whether or not such names have been verified) and will periodically
update the list.”
55
The term “passenger” is broadly defined to include everyone aboard
the aircraft (crew, revenue, and non-revenue passengers).
56
Family assistance legislation
does not provide additional detail regarding the contents of the passenger
list/manifest.
As part of the family assistance operation, the NTSB will request additional
information from the carrier, specifically contact information for accident survivors and
family members. The NTSB will use this information to develop a contact list for
communicating with survivors and family members during the family assistance
operation and throughout the investigation. The NTSB expects the air carrier to share
contact information expediently, but also understands that it may take time to obtain
and confirm contact information for accident survivors and family members.
55
49 U.S.C. §41113(b)(4); and 49 U.S.C. §41313(c)(4)
56
49 U.S.C. §1136(h)(2)
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Additional considerations for air carriers:
•
This guidance does not preclude NTSB investigative requests under Title 49 Code
of Federal Regulations Part 831 for manifest-related information including, the
close-out/load manifest, interim documents, final passenger list/manifest, and
procedures to account for people onboard the airplane.
•
Engage early with the public safety agencies involved in the victim accounting
process. The NTSB Transportation Disaster Assistance Division (TDA) will support
air carrier efforts to integrate into this process.
•
Develop procedures to consider requests and determine if appropriate
information from the passenger list/manifest should be provided to the
requesting agency. It is reasonable that once the air carrier shares information
from the passenger list/manifest with the coordinating agency, all other requests
be redirected to that coordinating agency.
•
Ensure that corporate and local (i.e.. station) emergency response plans include
procedures to vet requests from the response community for the passenger
list/manifest and that air carrier personnel at the corporate and local levels are
adequately trained to implement these procedures.
•
Participate in MCI response planning efforts within geographic areas of
operation to develop an understanding of the overarching response and the
victim accounting process. Identify key points of contact within the response
community who will serve in a leadership role during an MCI victim accounting
operation and who will likely request information from the passenger
list/manifest.
Considerations for the response community (i.e., local/state agencies, airports, and hospitals)
directly involved in victim accounting:
•
Identify a coordinating agency for the victim accounting operation that will
request information from the passenger list/manifest from the air carrier. All
additional local and state requests for the passenger list/manifest should be
directed to that agency, which should document the name, agency affiliation and
date/time the information was shared. Information needs vary depending on the
phase of the operation. For example, during the immediate life safety phase, the
most critical information needed by fire/EMS assets responding to the scene are
the number of persons onboard the aircraft. Once accident survivors have been
cleared from the scene, agencies responsible for victim accounting will require
names and, ideally, contact information. It is important for requesting agencies to
clearly articulate the specific information needed and their role in the response at
the time of the request.
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Understand that the information contained on a passenger list/manifest is sensitive
because family members of those onboard the aircraft may not be aware of their loved-
one’s involvement in the accident. While the air carrier is responsible for notifying
families of persons onboard that their loved-one is involved in the accident, the process
takes time.
•
Establish appropriate document control measures and ensure safeguards are in
place to prevent public disclosure of the information contained on the
passenger list/manifest. This information should not be released outside of
agencies that have a direct operational role in the victim accounting process (i.e.,
public safety agencies).
•
Be prepared to address questions from the air carrier regarding the role of the
requesting agency in the victim accounting process, use of the data, and
mechanisms to ensure that the information is not publicly disclosed.
•
Share information about the whereabouts and welfare of victims with the air
carrier, ARC, and the NTSB as part of the victim accounting process. The air
carrier, NTSB and ARC are mandated by federal legislation to offer services and
information to accident victims and their family members.
Air carriers are encouraged to contact the NTSB TDA (202-314-6185;
assistance@ntsb.gov) during the preparedness phase to discuss the guidance offered in
this document, and during the response phase to discuss requests for the passenger
list/manifest if the carrier is unsure about the role of the requesting agency in the
response.
This document supplants other guidance provided by the NTSB regarding
distribution of the manifest.
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Appendix 7 – Family Assistance Operations
Overview
The ability to connect family members to information and resources in a timely
and efficient manner is key to a successful family assistance operation. An effective family
assistance operation makes every effort to provide consistent and equitable resources to
those affected while ensuring that the unique circumstances of survivors and family
members and the accident are taken into consideration.
The following figure illustrates the three phases of an on-scene family assistance
operation. Depending on the accident circumstances, the timeline may vary.
FIGURE 6. NTSB Family Assistance Operations Timeline
Pre-Launch Planning
The planning phase is extremely important to the success of the family assistance
operation and is discussed throughout The Framework in various sections. This appendix
focuses on the initial, intermediate, and long-term phases and elements of the on-scene
family assistance operation until the transition to remote assistance operations.
Call Centers
A call center is a centralized department or group that handles inbound and
outbound calls from those interested in learning of the whereabouts and wellbeing of
their loved one(s). Call centers may be located either within an organization (for
example, local law enforcement or air carrier) or outsourced to another company that
specializes in handling these types of calls.
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As soon as they become aware that an accident has occurred, family members
seek an official agency to obtain information or to report a loved one missing. In
response to an MCI, there may be multiple call centers that collect and provide
information.
The ADFAA requires the air carrier to establish a toll-free phone number to be
answered by “sufficiently trained personnel”
57
to notify family members of the
involvement of their loved one in the accident. The carrier is responsible for making
notifications of involvement to family members as soon as the air carrier has verified the
passenger was aboard the aircraft.
58
Additionally, the carrier call center may be used to
collect information from family and the public to follow up with them after verification is
complete.
A missing persons call center (MPCC) may be established by the local response
community to receive calls from members of the public wishing to report someone
missing. Typically, missing persons reports are investigated by law enforcement
personnel. The objectives of an MPCC are to collect basic information about the person
reported missing, contact information for the caller, and information that will be used by
law enforcement to assess the likelihood of involvement, allowing for investigative
prioritization. Reconciliation of information between the air carrier call center and the
MPCC is important for victim accounting. It is also critical to establish who is managing
and funding the MPCC if it has been established by the local jurisdiction. The NTSB will
facilitate these conversations in the JFSOC.
Family Assistance Facilities
Depending on the circumstances of the accident and response, various types of
facilities may be used to meet the needs of survivors and family members during the
initial and intermediate phases of a family assistance operation. Some of these facilities
are established by the local jurisdiction, some are created on an as-needed basis by
those in the community who quickly identify a need, and others may be executed as part
of the affected air carrier’s emergency response plan. The air carrier and local jurisdiction
should communicate through the EOC any established family assistance facilities and
their purpose. Conversations should include who will be providing updates within the
facility and what support is needed from other organizations.
57
49 U.S.C. §41113(b)(1) and §41413(c)(1)
58
49 U.S.C. §41113(b)(3) and §41413(c)(3)
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Below is an overview of the types of facilities that are often incorporated into the
family assistance operation following a 49 U.S.C. 1136 legislated aircraft accident. Each
serves an important function related to providing survivors and families with a safe,
private place to receive information and access available support services. Each facility
should be compliant with the ADA.
Passenger Gathering Area
A PGA is a temporary, secure, and private facility where surviving
passengers are gathered, accounted for, and secondarily triaged to determine
whether they have any injuries in need of medical treatment. Those without
injuries or other needs often return home or continue with their travel. There
may be a need to reunify survivors with family members awaiting their arrival at
a Reunification Center (RC). A separate crew gathering area (CGA) for surviving
crew may also be established by the air carrier or local jurisdiction.
Friends and Relatives Center
An FRC is a temporary, secure, and private facility where family, friends, and
relatives of a passenger are initially gathered. The purpose of this facility is to
provide a location for family, friends, and relatives to receive initial information
about the accident and their loved one’s potential involvement, to provide
information to assist the family assistance operation organizations in providing
support services, and to provide an overview of what family members can
expect moving forward. Minimal support services including basic needs,
emotional support, and health services are often available here. As the family
assistance operation becomes more established, the FRC is often closed or
transitioned to an FAC. FRCs may also be established at satellite locations for
the purposes of assisting families in remote locations (for example, those at
arriving, departing, or connecting airports during travel connections).
Reunification Center
An RC is a temporary location where surviving passengers and family,
friends, and relatives can be reunified following an aircraft accident. This is a
location, separate from the FRC, to allow for the private reunification away from
the families of passengers who may still be awaiting information about their
loved one.
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Joint Family Support Operations Center
The JFSOC is a central meeting location where organizations participating
in the family assistance operation are brought together to monitor, plan,
coordinate, and execute a coordinated response aimed at maximizing the
utilization of all available resources. If possible, the location of the JFSOC
should be within the FAC (if established) or nearby. As with many emergency
responses, the timely communication and sharing of information will be a
challenge to a successful response. To increase effectiveness, a JFSOC
location should be established early in the response and include daily
meetings scheduled with participating organizations to monitor ongoing
family support activities and requests. See Appendix 8 for additional
information.
Family Assistance Center
A FAC is a secure, safe, and centralized facility established to provide
ongoing support services, information, and resources to survivors and family
members after the FRC and PGA are closed following an accident. The location
of this facility may be determined by its proximity to the accident location,
hospitals, or family assistance services being provided for the response. Air
carriers are not required by 49 U.S.C. §41113 or §41313 to open a FAC,
however, establishing a FAC is considered a best practice in a response to a
mass fatality incident or MCI.
The FAC provides a dedicated location to ensure a coordinated family
assistance operation among multiple organizations, including the air carrier,
involved in supporting response efforts. In an aviation accident that meets the
criteria of 49 U.S.C. 1136, only one FAC should be established. This will help
ensure that the NTSB, air carrier, the Red Cross, and other support agencies
are coordinating their resources and services, identifying gaps in service, and
effectively providing information to survivors and families of passengers in a
consistent manner. In many cases, air carriers have plans established for
securing a physical FAC location and logistical set-up; however, a virtual
component may also be necessary to meet the needs of those who are unable
or unwilling to travel to a FAC. See Appendix 11 for additional information.
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Remote Information Center
RICs are additional facilities established to serve as extensions of the FAC to
disseminate information to survivors and family members unable or unwilling
to travel to the accident location or the FAC and to enable them to connect
with services in their local areas. A RIC may be a small information center or
dedicated location within a hospital (such as a family information center) or
other location where information about available services and support are
disseminated.
Ongoing Family Assistance and Remote Operations
As the family assistance operation moves into the long-term phase, there is
typically a transition from the FAC to ongoing or remote operations. This transition most
commonly takes place when fatally injured passengers have been identified and
returned to families, and families return home to plan funerals, memorials, or burial
rituals. The transition may occur prior to completion of the entire identification process.
FAC operations may begin to wind down when family members have gained confidence
in the operation, believe they will remain informed of ongoing efforts after departing,
and understand how they can access further assistance or information once they have
returned home.
The key to a successful transition is communicating what survivors and family members
can expect from the NTSB, air carrier, and the Red Cross once the physical FAC closes.
For example, the NTSB will communicate the investigative process and the next
expected release of information as well as identify the TDA case manager assigned to
serve as the primary POC to survivors and families for the NTSB investigation. The air
carrier will provide the process for the return of PE and contact information should
survivors or family members need to reach them directly. In addition, the Red Cross will
provide information on how survivors and family members can access emotional support
services in their community.
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Appendix 8 – Joint Family Support Operations Center
Definition, Purpose & Objectives
In the aftermath of an aviation accident that meets 49 U.S.C. 1136 criteria, the
NTSB establishes a JFSOC to coordinate the family assistance operation. The JFSOC is a
central meeting location where participating organizations are brought together to
monitor, plan, coordinate and execute a family assistance operation maximizing the
utilization of all available resources. If possible, the location of the JFSOC should be
within the FAC or nearby. Establishing the JFSOC within the FAC allows for continued
situational awareness and monitoring of the facility to identify and address evolving
needs and support for survivors and family members, along with addressing emergent
issues that may arise, such as site visit planning.
The JFSOC is designed to address communication and information sharing
challenges which may impede a successful response. The family assistance operation
partners that typically participate in the JFSOC include but are not limited to; the NTSB,
air carrier, the Red Cross, local or state government (for example, medicolegal authority,
law enforcement, EOC personnel, hospital authorities, public health authorities), tribal
government, and other federal agencies, as needed for the operation.
JFSOC Objectives:
• Facilitate effective communication and sharing of information among those
involved in the family assistance operation,
• Monitor ongoing family support activities and track mission activities of each
family assistance operation partner,
• Ensure efficient delivery of services by identifying needs, gaps, and duplication
of efforts,
• Coordinate resource requests to address immediate and long-term needs, and
plan for the transition from immediate to long-term service provision.
JFSOC Coordination Call
Coordination of the JFSOC begins within hours of the accident notification and
confirmation of the legislated status. The NTSB TDA Chief or designated TDA
representative will invite personnel listed above to participate in a JFSOC coordination
call.
A key objective of the call is to open the lines of communication by bringing
together the key family assistance operation partners. Additional objectives include
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obtaining on-scene situational awareness and determining the date, time, location, and
participants of the first on-scene JFSOC meeting.
During the JFSOC coordination call, the invited family assistance operation partners
will be asked to provide their status at the time of the call, the status of their family
assistance plan, and other areas of focus for their respective organization during this
initial phase of the response. Although the discussion will vary based upon the nature of
the accident, the family assistance response partners listed below should be prepared to
discuss the following topics:
Local family assistance response partner: role and activation status of the agency,
status of accident fatalities and/or survivors including injury severity, hospitals
receiving survivors, patient transport updates, family assistance facilities established
by local authorities and/or the air carrier (such as FRC, PGA, RC), other family
assistance operations currently underway, and an agency POC for family assistance.
NTSB: applicability of the federal family assistance legislation, the composition of the
NTSB launch team and home team (headquarter based) support, anticipated arrival
time, base of operations, currently available accident information, the status of
federal partner agencies who have been activated in support of the response, testing
of the air carrier’s toll-free number, points of contact for the NTSB including family
assistance and media relations, and scheduling of the first JFSOC meeting in the
accident location.
Air carrier: known information about the accident and the passengers/crew; family
assistance team status at the departure, arrival, diversion and other major airport
locations along the route; station response team status, corporate response team
status, activation of mutual aid, codeshare or alliance partnerships, involvement of
service providers, interface with airport authorities, passenger list/manifest status,
toll-free number status, family notification status, locations and travel status of family
members, foreign national involvement (including language needs) or involvement of
other special populations, family assistance facility status (such as FRC, PGA, FAC,
JFSOC), and air carrier points of contact for family assistance and media relations.
Red Cross: local region’s activation status and initial accident response report
summary, known information about accident location and local family assistance
efforts. identity of Red Cross points of contact, if assigned, response plans for
regional/division levels and other Red Cross services, current staff available for
psychological, emotional, and spiritual care; staff on standby, known initial survivor or
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family member interactions, activation of support partners or other disaster relief
organizations, and other Red Cross points of contacts, as necessary, for family
assistance operations.
JFSOC Facility Considerations
The JFSOC is intended as a meeting space for family assistance response partners
to coordinate and direct the family assistance operation and is not for survivors or family
members.
Efforts should be made to create a secure location within a FAC, if established.
(Note that, the nature of the accident and public health concerns may require the use of
a virtual JFSOC coordinated by the NTSB.) The air carrier should locate and secure space
to accommodate the JFSOC. It should be co-located or near the family assistance
operation but away from gathering spaces for survivors and family members.
Space, technology, and communication access, and logistical support should be
considered in the selection of the JFSOC space. To ensure the accessibility to, and
involvement of, all relevant family assistance response partners, virtual or telephonic
means of communication should be available in the space. If the air carrier has difficulty
securing space, the NTSB will coordinate with local authorities to determine the
availability of a suitable location.
JFSOC Meetings
Several types of meetings will occur within the JFSOC to facilitate active
communication and information sharing across family assistance response partners.
Status meetings are scheduled at least once a day, and likely more often during the
initial days of a response. These meetings provide scheduled opportunities to gather
decision makers from each family assistance response partner to address the current
areas of focus as they relate to the fundamental concerns of family members. The daily
status report checklist (see Appendix 10) provides an example of the information that will
be requested and tracked throughout the family assistance operation.
Beyond the daily status meetings, topical meetings may be scheduled to
coordinate and direct specific issue areas, events or requests from survivors and family
members that require a significant amount of planning. Some of these include family
briefing coordination, site visit planning, memorial events, assurance review(s), FAC
transition and long-term support planning, and NTSB TDA departure/close out.
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Family Assistance Response Partner JFSOC Liaisons
Those involved in JFSOC meetings should include senior representatives from
each responding organization with a defined role in the family assistance operation. The
individual participating in JFSOC meetings should have decision-making authority, or
direct and immediate access to those with authority to make decisions, to allocate and
access available resources as the need arises. The individual represents the interests,
activities, and available resources associated with their organization.
Depending on the size and scope of the response, additional individuals may be
necessary to ensure coverage within the JFSOC. Ideally, the same person(s) should serve
in this capacity for the length of the family assistance operation to ensure a consistent
effort by personnel who understand the complex issues of the response and to ensure
the best delivery of services and information to survivors and family members.
JFSOC Roles and Associated Tasks
The following provides an overview of the roles and associated tasks as they relate to
specific family assistance response partners identified under 49 U.S.C. §41113, §41313,
and §1136. As previously discussed, each responding organization with a role in the
family assistance operation should provide representation to the JFSOC. Depending
upon the unique nature of the response and the resources available from all responding
partners, it may be necessary for one individual to take on multiple roles or to delegate
specific tasks to other individuals within their organization to support evolving family
assistance operations.
NTSB TDA chief
• Serves as the NTSB-delegated representative for family assistance operations.
• Provides primary oversight of the NTSB family assistance operation.
• Serves as TDA spokesperson at family briefings.
NTSB JFSOC coordinator
• Liaises with the air carrier and other JFSOC liaisons.
• Manages the day-to-day activities of the JFSOC.
• Coordinates with and assigns tasks to JFSOC liaisons as the need arises.
• Facilitates the exchange of information among JFSOC participants.
• Schedules and facilitates daily and special circumstance JFSOC meetings.
• Schedules and coordinates family briefings with JFSOC liaisons.
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• Prepares family briefing talking points for the NTSB in conjunction with the
NTSB case manager.
• Facilitates the family briefing, introduction of speakers, and question-and-
answer session.
• Ensures that critical information is kept current and available.
• Informs other JFSOC liaisons of significant developments.
NTSB case manager
• Participates in JFSOC meetings to document organizational activities,
response efforts, and assignments.
• Documents relevant information for the JFSOC daily status report.
• Maintains the master list of names, contact information, and locations of JFSOC
liaisons and key family assistance personnel.
• Prepares family briefing talking points for the NTSB in conjunction with the
NTSB JFSOC coordinator.
• Manages family member contact information.
• Coordinates with the air carrier and the Red Cross to ensure ongoing support
after the initial response concludes.
Air carrier senior representative
• Serves as the air carrier’s representative to the chief of the NTSB TDA Division
regarding the air carrier’s family assistance response.
• Answers questions regarding the air carrier’s emergency response plan,
codeshare, alliance and partner organizations, service provider(s), available
resources, and limits to family assistance support.
• Travels to various locations, such as the accident location, hospital, morgue,
JFSOC, and FAC as necessary for the family assistance operation.
• Participates in family briefings as required or coordinates participation by an
air carrier designee.
• Coordinates, prepares, and delivers the air carrier’s information during family
briefings. (This may also be the responsibility of the air carrier family assistance
coordinator.)
Air carrier family assistance coordinator
• Serves as the representative of the air carrier regarding the day-to-day
functions of the air carrier’s family assistance operation.
• Prepares information to be distributed to families of passengers regarding the
carrier’s specific resources (for example, services, points of contact).
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• Ensures that resources are available to meet the needs of families of
passengers, including supply acquisition when needed.
• Coordinates, prepares, and delivers the air carrier’s information during family
briefings. (This may also be the responsibility of the air carrier’s senior
representative).
• Addresses questions related to current and future support provided by the air
carrier.
• Assigns a primary POC to coordinate directly with the Red Cross JFSOC liaison
to ensure that—
o Families of passengers are aware of the family assistance services
available from the Red Cross.
o Requests for emotional, spiritual, psychological, and family care are
fulfilled.
o Adequate facility space is available for providing care.
o Areas are established within the FAC for families of passengers to grieve
privately.
59
o Space is available for on-site respite care for families with minors, if
determined necessary.
o Appropriate support is provided to address cultural diversity and access
and functional needs.
• Maintains information on—
o Injured passengers, using information provided by local government
agencies, public safety organizations, and hospitals.
o Fatality identification efforts (numbers of those recovered, those
identified, those whose next of kin (NOK) have been notified, and those
whose remains have been released) using information provided by the
presiding medicolegal authority.
o Contact information for the family of each passenger.
o The tracking of families of passengers who have been notified of
passenger’s involvement, number of attempted notifications, and
numbers of families for which contact information is unknown; families
travelling to the accident location, currently at the accident location, or
at another location, and projected departures from the accident
location. See Appendix 10 for more information.
59
49 U.S.C. §1136(c)(2)
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Air carrier JFSOC liaison
• Remains available in the JFSOC for questions from responding agencies.
• Participates in all JFSOC daily status and special circumstance meetings and
provides ongoing status updates on status of family activities. See Appendix 10
for the JFSOC daily status report checklist.
• Coordinates and shares information among all JFSOC liaisons.
• Disseminates information within own organization, as appropriate.
• Maintains up-to-date information regarding the location and contact
information for family assistance facilities, key organizational entities, and
personnel.
• Provides ongoing updates during JFSOC meetings and ensures that the NTSB
case manager is aware of any changes.
• Maintains and updates daily plans and incident action plans.
Red Cross NTSB liaison
• Serves as the Red Cross representative to the NTSB TDA chief regarding the
Red Cross national family assistance response.
• Serves as a direct support to the Red Cross JFSOC liaison, staff, and volunteers
assigned to the family assistance operation, ensuring awareness, and
understanding of, and compliance with, the requirements under
49 U.S.C. §113660, the NTSB–Red Cross MOU, and the roles and
responsibilities of the Red Cross, the NTSB, and the air carrier.
• Ensures that a cost-accounting system is in place for potential reimbursement
purposes.
Red Cross JFSOC liaison
• Serves as the primary POC for the Red Cross family assistance response during
JFSOC coordination and is authorized to make decisions on behalf of the
organization.
• Seeks support from the Red Cross NTSB liaison, as necessary.
• Coordinates directly with the air carrier’s primary POC to the Red Cross to
address the following:
o Survivor and family member requests for emotional, spiritual,
psychological, and family care at the FAC or where they are located
(such as hospital, home).
60
49 U.S.C. 1136
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o Adequate facility space is available for support services and staff at the
FAC, if established, including a private place for families to grieve
61
.
o Use of air carrier resources, to the maximum extent practicable, to
provide services from Red Cross staff and volunteers.
• Coordinates additional emotional, spiritual, psychological, and family care
services and staffing to include partner disaster relief organization services,
upon request.
• Ensures a plan to address spontaneous unaffiliated volunteers is activated, if
necessary.
• Ensures that a donation management plan is established with local
organizations that handle donation processing, if necessary.
• Remains available in the JFSOC for questions from responding agencies,
participates in all JFSOC daily status and special circumstance meetings and
provides ongoing updates on the status of family assistance activities. See
Appendix 10 for the JFSOC daily status report checklist.
• Coordinates and shares information among all JFSOC liaisons.
• Disseminates information within own organization, as appropriate.
• Maintains up-to-date information regarding support service requests, staffing,
and daily and future plans.
• Provides ongoing updates during JFSOC meetings and ensures that the NTSB
case manager is aware of any changes.
• Prepares information for distribution to survivors and families regarding Red
Cross support services (such as mental health, spiritual care, respite care for
minors).
• Coordinates, prepares, and delivers information regarding Red Cross support
services during family briefings or delegates this task to senior staff.
Presiding medicolegal authority JFSOC liaison (as required)
• Serves as the liaison for victim recovery and identification activities at the
accident location, the morgue, the antemortem interview process, and the
JFSOC.
• Updates the status of victim identification, including the numbers of those
recovered, those positively identified, those whose NOK have been notified,
and those whose human remains have been released to their families.
• Maintains and shares contact information for family members, as determined
necessary and appropriate, for the provision of family assistance resources.
61
49 U.S.C. §1136(c)(2)
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• Tracks and reports on the progress of antemortem interviews and antemortem
data collection.
• Tracks custody of PE until released to the air carrier for return.
• Participates in daily JFSOC status meeting(s) and briefs participating
organizations on status of family support activities. See Appendix 10 for the
JFSOC daily status report checklist.
• Coordinates and shares information with all JFSOC liaisons.
• Disseminates information within own organization, as appropriate.
• Maintains up-to-date information regarding the location and contact
information for family assistance facilities, key organizational entities, and
personnel.
• Prepares information to be distributed to families of passengers regarding
organization-specific resources (for example, services, points of contact).
• Coordinates, prepares, and delivers organization or agency’s information
during family briefings.
• Ensures that adequate staff is available to carry out family assistance tasks.
Medical treatment facility JFSOC liaison (as required)
• Serves as the liaison among the hospitals that have received passengers
regarding patients’ locations, numbers, and general health status.
• Assists in determining key points of contact within the hospitals to assist in the
receipt of passenger and family member contact information.
• Coordinates with hospital staff to facilitate access for family members to
remotely view family briefings.
• Participates in daily JFSOC status meeting(s) and briefs participating
organizations about the status of family support activities.
• Coordinates and shares information with all JFSOC liaisons.
• Disseminates information within own organization, as appropriate.
• Maintains up-to-date information regarding the location and contact
information for family assistance facilities, key organizational entities, and
personnel.
• Provides ongoing updates during JFSOC meetings and ensures that the NTSB
case manager is aware of any changes.
• Ensures that adequate staff is available to perform family assistance tasks.
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DOS JFSOC liaison (as required)
• Serves as the liaison between DOS and the JFSOC regarding the needs of
foreign national passengers.
• Coordinates with appropriate embassies/consulates and foreign governments
to facilitate the notification of foreign national involvement in an accident and
communication with the NTSB, the Red Cross, and air carrier.
• Monitors the status of foreign national fatalities and survivors within the U.S.
and their families abroad, including travel status for those who choose to travel
to the U.S.
• Coordinates issues involving foreign passengers and the support they will
need from the DOS, the associated embassy/consulate, and other participants
in the JFSOC.
• Provides advice on cultural considerations.
• Answers or redirects calls from foreign government officials.
• Serves as the sponsor for foreign consulate officials who have a need to
participate in the JFSOC or to use family assistance facilities.
• Participates in daily JFSOC status meetings and briefs participating
organizations about the status of family support activities. See Appendix 10 for
the JFSOC daily status report checklist.
• Coordinates and shares information with all JFSOC liaisons.
• Disseminates information within own organization, as appropriate.
• Provides ongoing updates during JFSOC meetings and ensures that the NTSB
case manager is aware of any changes.
• Maintains a daily log of family support activities, requests, and resources
available within their organization and adjusts as necessary.
• Prepares information to be distributed to families of passengers regarding
organization-specific resources (for example, services, points of contact).
• Coordinates, prepares, and delivers organization or agency’s information
during family briefings.
• Ensures that adequate staff is available to perform family assistance tasks.
Federal partner JFSOC liaison (as required)
• Assists JFSOC participants in understanding the roles and responsibilities of
their agency as they pertain to family assistance.
• Identifies assets, resources, and points of contact that can be used to support
the family assistance operation in accordance with preestablished MOU/MOA.
Federal Family Assistance Framework NTSB/Appendix 8
111 | Page
• Participates in daily JFSOC status meetings and briefs participating
organizations about the status of family support activities. See Appendix 10 for
the JFSOC daily status report checklist.
• Coordinates and shares information with all JFSOC liaisons.
• Disseminates information within own organization, as appropriate.
• Provides ongoing updates during JFSOC meetings and ensures that the NTSB
case manager has captured any changes.
• Maintains and updates daily plans, incident action plans and future operations.
• Maintains a daily log of family support activities, requests, and resources
available within their organization and adjusts as necessary.
• Prepares information to be distributed to the families of passengers regarding
organization-specific resources (for example, services, points of contact).
• Coordinates, prepares, and delivers organization or agency’s information
during family briefings.
• Ensures that adequate staff is available to perform family assistance tasks.
State, local, tribal government JFSOC liaisons (as required)
• Assist JFSOC participants in understanding local community structure and
leadership.
• Identify local assets, resources, and points of contact that can be used to
support the operation.
• Assist with coordination of issues of security for the FAC, lodging facilities,
hospitals, morgue, other designated sensitive areas, and the families of
passengers.
• Participate in daily JFSOC status meetings and brief participating organizations
about the status of family support activities. See Appendix 10 for the JFSOC
daily status report checklist.
• Coordinate and share information with all JFSOC liaisons.
• Disseminate information within own organization, as appropriate.
• Maintain up-to-date information regarding the location and contact
information for family assistance facilities, key organizational entities, and
personnel.
• Provide ongoing updates during JFSOC meetings and ensure that the NTSB
case manager is aware of any changes.
• Maintain and update daily plans, incident action plans and future operations.
Federal Family Assistance Framework NTSB/Appendix 8
112 | Page
• Maintain a daily log including family support activities, requests, and resources
available within their organization and adjust as necessary.
• Prepare information to be distributed to families of passengers regarding
organization-specific resources (for example, services, points of contact).
• Coordinates, prepares, and delivers organization or agency’s information
during family briefings.
• Ensures that adequate staff is available to perform family assistance tasks.
Federal Family Assistance Framework NTSB/Appendix 9
113 | Page
Appendix 9 – JFSOC Coordination Call Agenda (Sample)
Objectives
The objectives of the JFSOC coordination call are to initiate an open line of
communication among key family assistance operation stakeholders; obtain situational
awareness regarding the status of the family assistance response during the initial phase;
and organize the date, time, location, and participants for the first JFSOC meeting at the
accident location. A JFSOC Coordination Call will be scheduled approximately 2-3 hours
following notification to the air carrier and the Red Cross that the accident meets criteria
established under 49 U.S.C. §1136. The NTSB chief or TDA representative will facilitate
the call. Although the participants in the coordination call will vary based on the nature of
the accident response, at a minimum, the following agencies will be requested to join
the call:
• The NTSB
• Air carrier (partners and service providers, as needed)
• The Red Cross
• Local response agencies engaged in the family assistance operation (for
example, OEM, first responders, hospitals, and healthcare coalitions, presiding
medicolegal authority)
• State, tribal, and/or other federal agencies having a role in the response.
Meeting Agenda
1. Introductions by response agencies including contact information:
a. Agency’s POC during travel to accident location.
2. NTSB’s legislated status determination.
3. Local response agency:
a. Status of accident fatalities and survivors.
b. Overview of injury severities.
c. Hospital transports: locations, numbers, points of contacts.
d. Current family assistance operations and involvement.
e. Local Chapter Red Cross status.
4. NTSB status:
a. Launch team composition, arrival time, lodging.
b. TDA launch and home team (headquarter based) status.
c. Air carrier toll-free number call verification reminder.
d. Current investigative information.
Federal Family Assistance Framework NTSB/Appendix 9
114 | Page
e. Media Relations Division contact information.
f. Federal partner status.
5. Air carrier status:
a. Family assistance leadership status.
b. Family assistance team status.
c. Passenger list/manifest, crew composition and status of reconciliation.
d. Toll-free number activation and status.
e. Crew and passenger status.
f. Family notification process status.
g. Facilities status (such as FRC, PGA, CGA, FAC, JFSOC).
h. Service provider involvement (such as PE vendor, consultants).
i. Media Relations Division contact information.
6. Red Cross status:
a. National NTSB liaison POC.
b. JFSOC liaison assignment status.
c. Available local/regional support services and local response status.
d. Available support services on standby.
7. Review of pending requests (data, resource needs) and responsible party;
identification of immediate coordination needs among participants for report
during first on-scene JFSOC meeting.
8. Meeting location and time of first on-scene JFSOC meeting.
Federal Family Assistance Framework NTSB/Appendix 10
115 | Page
Appendix 10 – JFSOC Meeting Checklists
JFSOC Initial Meeting Checklist
Organization’s status, points of contact and JFSOC
role.
All response
partners
Number, location(s), and duties of support
personnel.
All
Overview of investigative process, timelines, site
condition, and other concerns.
NTSB
Overview of passenger/crew information (numbers,
nationalities, special populations).
Air Carrier
Status of toll-free telephone number and level of
activity.
Air Carrier
Status of passenger list requests; including who has
requested copies and concerns.
Air Carrier
Status of the family assistance operation:
FRC/PGA/CGA/FAC/RIC, hospital locations, remote
access to services plan; number of family members
at the FRC/PGA/FAC/hospital locations
(currently/daily).
Air Carrier
Family assistance team status, involvement, and
status of family assistance service provider.
Air Carrier
Review of current FAC set-up; what rooms have
been assigned and what rooms are still needed for
each response partner.
Air Carrier
Status of notification of involvement: number of
family groups notified, number for which
notification was attempted, number still pending
notification.
Air Carrier
Federal Family Assistance Framework NTSB/Appendix 10
116 | Page
Crewmember family status, location,
accommodations, plan for accessing services, and
other concerns.
Air Carrier
Family member travel updates: number and
locations (for example, home, family hotel,
hospital[s], other) of family members in the accident
location; number of family members expected to
arrive within the next 24 hours, number of family
members not expected to travel, and their
location(s).
Air Carrier
Number of survivors and family members provided
hotel accommodations.
Air Carrier
Number of survivor and family member requests
coordinated with the Red Cross by air carrier family
assistance teams.
Air Carrier
Status of PE management process (process
overview, timeline, communications plan, role of
third party, complications, retention plan).
Air Carrier
Number of requests received for support by
survivors and family members and/or air carrier
Family Assistance Teams at the FAC, at hospitals,
and those not traveling within the last 24 hours.
Red Cross
Total number of survivors and family members
provided services.
Red Cross
Status update on current Red Cross staffing and
services being provided at accident
location/FRC/FAC/ hospitals/other locations.
Red Cross
Status update on current staffing and services
provided by other partner disaster relief or support
services organization(s) being provided at accident
location/FRC/FAC/ hospitals/other location.
Red Cross
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Review of resource needs (additional service rooms
or staff; private room for families; workspace; break
area for volunteers) and availability of potential
support services (respite care for minors; donation
management).
Red Cross
Status of community memorial events or services.
Red Cross
Status and location of Red Cross region(s) involved
outside the accident location.
Red Cross
Status of response (EOC activation; types of support
operations; ESF-8 activity [if applicable]; local
agency involvement, and other considerations).
Local and/or
State OEM
Status of victim recovery and identification efforts.
Medicolegal
Status of antemortem data collection, interviews,
and DNA reference sample collection.
Medicolegal
Number of families notified of positive
identification.
Medicolegal
Status of the release of human remains.
Medicolegal
Update on assistance provided to families of foreign
nationals.
DOS
Anticipated challenges, gaps, and duplication of
services during the next operational period.
All
Summary/remarks on current daily activities.
All
Summary/remarks on activities scheduled for the
next operational period.
All
Review of coordination activities needed prior to
next JFSOC meeting.
All
Exit strategy (estimated timeline; transition to
remote support, anticipated challenges, and related
issues.
All
Federal Family Assistance Framework NTSB/Appendix 10
118 | Page
JFSOC Daily Meeting Checklist
NTSB status update, investigative update, current
priorities.
NTSB
Family member travel updates: number and
locations of family members in the accident
location; number of family members expected to
arrive within the next 24 hours, number of family
members expected to depart within the next 24
hours, number of family members not expected to
travel.
Air Carrier
Number of family members at the
FRC/PGA/CGA/FAC/RIC other family assistance
locations (currently/daily).
Air Carrier
Number of family member requests coordinated
with the Red Cross.
Air Carrier
Status of PE management. Air Carrier
Number of requests received for support by
survivors, family members and/or Air Carrier Family
Assistance Teams at the FAC, at hospitals, and those
not
traveling within the last 24 hours.
Red Cross
Total number of survivors and family members
provided services.
Red Cross
Status update on current Red Cross staffing and
services being provided at accident
location/FRC/PGA/CGA/FAC/ hospitals/other
locations.
Red Cross
Status update on current staffing and services
provided by other partner disaster relief or support
services organization(s) being provided at accident
location/FRC/FAC/ hospitals/other locations.
Red Cross
Review of resource needs (additional service rooms
or staffing) and additional support service needs
and availability (respite care for minors, donation
management).
Red Cross
Status of community memorial events or services.
Red Cross
Status and location of Red Cross region(s) involved
outside the accident location.
Red Cross
Status of victim recovery and identification efforts.
Medicolegal
Status of antemortem data collection, interviews,
and DNA reference sample collection.
Medicolegal
Federal Family Assistance Framework NTSB/Appendix 10
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Number of families notified of positive
identification.
Medicolegal
Status of the release of human remains.
Medicolegal
Update on assistance provided to families of foreign
nationals.
DOS
Issues to report from the overnight operational
period and/or yesterday.
All
Successes, challenges, needs, gaps, duplication of
services, during the previous operational period.
All
Summary/Remarks on current daily activities.
All
Anticipated challenges, gaps, duplication of
services during the next operational period.
All
Discussion of site visit; safety, NTSB Investigator-in-
Charge (IIC) support, timing, and other
considerations. See Appendix 16 for the site visit
JFSOC meeting checklist.
All
Exit strategy (for example, estimated timeline,
transition to remote support update, challenges).
All
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Federal Family Assistance Framework NTSB/Appendix 11
121 | Page
Appendix 11 – Family Assistance Center
Definition & Purpose
The FAC is a secure, safe, and centralized facility that provides ongoing support
services, information and resources to survivors and family members typically after an
FRC or PGA closes. Historically, FAC operations addressed mass fatality incidents
focusing on families of deceased victims; however, FAC operations have evolved to
address MCIs involving survivors. and should be an important part of family assistance
response planning. Air carriers are not required by 49 U.S.C. §41113 and §41313 to
establish a FAC; however, a FAC provides a dedicated location to ensure a coordinated
family assistance response among multiple organizations. In an aviation accident that
meets the criteria of 49 U.S.C 1136, there should only be one FAC established. This will
help ensure that the NTSB, air carrier, the Red Cross and other support agencies are
coordinating resources and services together, identifying gaps in service, and effectively
providing information to survivors and families of passengers in a consistent manner. In
many cases, air carriers have FAC plans established for securing a location and logistical
setup; however, a virtual component may be necessary to meet the needs of those who
are unable or unwilling to travel to a FAC.
Although a FAC is not mandated by law, it has become an MCI best practice. If a
FAC is determined necessary for the response, the air carrier should plan on securing a
facility near the accident site but not overlooking the scene. In the event of an overwater
loss, a discussion about the FAC location will take place during the JFSOC coordination
call. Factors to be considered in an overwater loss are proximity to departure and arrival
and proximity to nearest municipality with infrastructure that can support a family
assistance operation.
The FAC facility should provide adequate space for family members to receive
support services, resources, family briefings, and basic needs. If possible, it is best to
secure a facility that allows for or is nearby overnight accommodations for family
members. The air carrier should also consider adequate space to house the family
assistance operations (such as the JFSOC, FAC staff break rooms, and operations
rooms). See Appendix 12 for a sample FAC floor plan.
FAC Functions
The FAC is established to meet and support the immediate and short-term needs
of survivors and family members. Several critical functions will take place in the FAC, and
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coordination among all agencies involved in FAC operations is essential in
accomplishing these functions. These critical functions include:
• Providing safety, security, and basic needs, including food and beverages,
health services, and the badging of staff and family members.
• Providing information on NTSB daily family briefings, death notifications,
the victim recovery and identification process.
• Providing access to resources available through the air carrier, including
travel and lodging, PE processing, and financial assistance.
• Providing access to emotional, psychological, spiritual, and family care
services available through the Red Cross or other relief organizations,
including mental health providers, support referrals, and respite care for
minors.
• Prioritizing reunification efforts through:
o Hospital or healthcare interface, including patient tracking, hospital
coordination, and inclusion into the larger family assistance
operation.
o Victim recovery and identification, including antemortem interviews
and DNA collection by the presiding medicolegal authority, death
notifications, and the return of human remains.
Location & Facility
Ideally, the FAC should be nearby but not within view or walking distance of the
accident location. The FAC provides easy access to on-site services and amenities and
must be compliant with the ADA.
62
At minimum, consideration should be given to a
facility that provides a wide range of amenities and has multiple meeting rooms, a large
ballroom or conference room, up-to-date information technology infrastructure, and
food and beverage or kitchen services.
Arrangements for a FAC should be coordinated by the air carrier in consultation
with the NTSB. This requires awareness of the local jurisdiction’s plans and current status.
In addition, the JFSOC will be established within or near the FAC to allow for close
coordination among all the family assistance response partners.
If available, a hotel can typically address the critical functions of a FAC in a central
location and may also provide access to lodging for survivors and family members, if
necessary. If possible, FAC facilities should be identified ahead of time. Carriers may
choose to identify hotels ahead of time and work with hotel management in advance. For
62
42 U.S.C. §12102
Federal Family Assistance Framework NTSB/Appendix 11
123 | Page
example, if adequate space is not available, the air carrier may choose to discuss with
hotels the possibility of relocating current guests to other facilities to accommodate
survivors and family members.
When preselecting a FAC facility, consideration should be given to the possible
duration of the family assistance operation and the maximum length of availability the
facility can provide. This will prevent closing the FAC prematurely and will allow families
to stay at a single location for an extended period without risk of being moved. Air
carriers should clearly communicate with families how long they intend to support a
family assistance operation (for example, until shortly after all human remains are
transported, etc.) The anticipated number of family members traveling to an area and
choosing to visit the FAC may vary greatly from day to day. The number of family
members per passenger may fluctuate between 5 and 10, depending upon the phase of
the response (for example, human remains recovered, identifications made, human
remains ready for transport for memorial or funeral services).
Family members will want to access the FAC unfettered by the media or
onlookers. Restricting access to the areas (such as parking lots, side streets, parks)
surrounding the FAC facility may not be possible; however, efforts should be made to
work with hotel or facility management, security, or local law enforcement to determine
what options are available to reduce interactions as families arrive or depart the FAC.
Media and unsolicited attorneys are not permitted inside the FAC. The media will be
provided separate briefings by the NTSB. Approved legal aid services that provide pro-
bono legal assistance and education to survivors and families affected by the accident
may be present as a support service within the FAC. For survivors or families who retain
legal representation, these attorneys or legal representatives are also not permitted in
the FAC and related family assistance activities (such as family briefings). Attorneys are
also restricted from approaching other survivors or family members for 45 days following
the accident. See Appendix 12 for an FAC sample layout.
Virtual FAC Operations
Virtual FAC operations may be necessary for survivors or family members unable
to travel to a physical FAC at the accident location. Through the JFSOC, family assistance
response partners will evaluate the need for virtual operations, the extent to which they
can be provided, and the virtual technology available to support this effort. Examples of
possible virtual resources may include a hybrid family briefing provided in person at the
FAC and simultaneously made available virtually for survivors and family members to
attend from their current locations (for example, at home or in a hospital). A FAC website
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may be established to provide online access to the same information and resources
available in the FAC’s support service area. Development of this website will be
discussed during JFSOC meetings.
Demobilization
During JFSOC meetings, family assistance response partners should plan the
demobilization of the FAC early in the operation to help survivors and families set
realistic expectations of how long the facility and in-person services will remain
operational. Early planning will also help response partners prepare for demobilizing
their own on-scene operations and transition to remote and long-term operations, as
necessary.
There may be several factors to consider when planning to demobilize the FAC.
Family members are most likely to leave the FAC when their loved one has been
identified and they can return home to begin planning funeral or burial rituals or when
they are notified that the identification process will continue for an extended period, and
they will be contacted directly when the process is complete. Should this occur, families
will be contacted at home regarding positive identifications made after the FAC closes.
As a reminder, the intermediate phase and associated FAC operations are focused on
providing short-term services and information until survivors and families depart. As part
of their demobilization, response partners should provide contact information to
survivors and family members to access information and resources once the operations
transition to the long-term phase.
Concerning the NTSB TDA’s departure from the accident location, this decision
will be made in the JFSOC and will depend on multiple factors, including the status of
the on-scene work involved in the NTSB investigation and NTSB launch team (such as
Board member, media relations, and government affairs) departures from the accident
location. Once NTSB on-scene media briefings cease and the documentation and fact-
gathering efforts by the NTSB investigative team begin to conclude, the NTSB TDA will
transition to remote communications with survivors and family concerning investigative
updates and information, ending on-scene family briefings facilitated by the TDA team,
and initiating their departure from the accident location.
Federal Family Assistance Framework NTSB/Appendix 11
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The departure of NTSB TDA does not conclude the family assistance operation.
Response partners, including the air carrier and the Red Cross, will continue
coordinating efforts with the NTSB TDA Division to address ongoing assistance to
survivors and family members as the intermediate phase of the family assistance
operation transitions to the long-term phase and demobilization of the FAC.
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Federal Family Assistance Framework NTSB/Appendix 12
127 | Page
Appendix 12 – FAC Layout (Sample)
JFSOC
C
ARRIER
O
PERATIONS
M
EDICAL
E
XA MINER
/
C
ORONER
C
HILD
R
ESPITE
C
ARE
H
EALTH
S
ERVICES
F
AMILY
M
EMBER
R
EGISTRATION
/
B
ADGING
Q
UIET
R
OOM
F
AMILY
M
EMBER
D
INING
A
REA
FAC S
TAFF
R
OOM
(D
INING
, M
ISC
.)
A
NTEMORTEM
I
NTERVIEW
R
OOM
A
NTEMORTEM
I
NTERVIEW
R
OOM
A
NTEMORTEM
I
NTERVIEW
R
OOM
F
AMILY
M
EMBER
B
RIEFING
R
OOM
S
ECURITY
F
AMILY
M
EMBER
I
NTERNET
A
CCESS
E
MBASSY
A
ND
C
ONSULATE
S
ERVICES
S
ERVICE
P
ROVIDER
O
PS
OR
F
ACILITY
D
OGS
S
ERVICE
P
ROVIDER
O
PERATIONS
A
MERICAN
R
ED
C
ROSS
O
PERATIONS
POSSIBLE FAMILY ASSISTANCE CENTER (FAC) LAYOUT*
R
ESTROOMS
R
ESTROOMS
R
ESTROOMS
I
NFORMATION
T
ECHNOLOGY
G
REETERS
* T
HIS
DIAGRAM
IS
A
SCHEMATIC
. T
HESE
ARE
OPERATIONAL
/
SERVICE
PROVISION
AREAS
NOT
DRAWN
TO
SIZE
OR
MEANT
TO
INDICATE
LOCATION
. S
PECIFIC
FAC
LAYOUT
WILL
BE
BASED
ON
THE
PHYSICAL
FACILITY
. *
* A
REAS
HIGHLIGHTED
IN
BLUE
ARE
CRITICAL
AREAS
THAT
SHOULD
BE
CONSIDERED
WHEN
DETERMINING
THE
LAYOUT
OF
A
FAMILY
ASSISTANCE
CEN TER
. *
CHARGING STATION
NTSB
M
EETING
R
OOM
S
UPPORT
S
ERVICES
R
OOM
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Federal Family Assistance Framework NTSB/Appendix 13
129 | Page
Appendix 13 – Family Briefings
During the intermediate phase of the family assistance operation, the NTSB TDA
will facilitate family briefings to ensure a consistent, coordinated message from family
assistance response partners to survivors and family members. The focus of briefings is
on providing official information about search, rescue/recovery, victim identification, and
other activities to include the NTSB’s investigation, to the extent possible.
Those selected to brief on behalf of their organization should be effective
communicators, be experienced with crisis communications, and have good listening
skills. It is recommended that these briefers be senior-level officials within their
organization or a subject matter expert on the topic being discussed. Each briefer is
expected to participate in all family briefing planning meetings.
Briefers will also be expected to debrief together in the JFSOC immediately
following the family briefing to address issues, follow up requests or needs, ensure that
questions were answered by the appropriate organization, and make any needed
corrections or updates prior to the next briefings.
NTSB-facilitated briefings should be provided to survivors and family members at
least once daily, and more often as deemed necessary. Briefings should be held at the
same time each day and notice of upcoming meetings should be communicated as soon
as possible to survivors and families. In the event of a change to the briefing schedule or
other information associated with the event, it is important to consider the most effective
form of communication (such as SMS messaging, email, phone calls) to deliver updates
on short notice.
Briefings should include adequate time after each presentation for survivors and
family members to ask questions. A moderated conference bridge should be used for
sessions with remote tele- and/or video conferencing to ensure that all questions from
remote attendees are heard and addressed. The time allotment scheduled for questions
and answers must be long enough to accommodate the number of questions that may
be asked but must consider the needs of briefers that have an active and ongoing role in
the site response (such as fire and rescue responders and the medicolegal authority
representative). An agenda should be made available to survivors and family members
once it has been finalized in the JFSOC. Agendas should include the list of briefers in the
order they will present, their organization, and title. Providing an agenda will help inform
survivors and family members about information being given during the briefing, who
will provide that information, and where to direct any questions they have. Questions
Federal Family Assistance Framework NTSB/Appendix 13
130 | Page
should be addressed by the organization’s briefer responsible for the item or topic, and
briefers should delegate questions as needed to the appropriate organization involved
in the family briefing. Survivors and family members should also be made aware of any
other organizations in attendance that are not identified on the agenda.
Family Briefing Planning Meeting
The NTSB TDA will facilitate a JFSOC meeting before each family briefing to
determine the agenda and order of briefers. Lengths of briefings vary; however, a
briefing can last up to 2-3 hours or longer, depending on multiple factors, such as the
number of attendees and questions, status of on-scene recovery work or investigation, or
use of interpretation services, if needed.
Briefing Agenda (Sample)
A typical family briefing agenda may include —
• Opening statement, review of agenda:
• Date and time of briefings.
• Safety orientation (evacuation, exits, AEDs) and housekeeping items.
• Introduction of each briefer.
• Briefing topics (question-and-answer session after each).
• Status of search and recovery operations (if needed).
• Status of medicolegal process (such as status of identification).
• Status of investigation.
• Status of PE management.
• Available support services (for example, travel, financial, emotional care,
childcare, legal services).
• Planned events (such as incident site visit, community memorial events).
• Closing statement; location and time of next briefing.
Attendance at family briefings is tightly controlled and limited. Those not allowed
into the FAC, such as media, members of the public, and attorneys, will not be allowed
to attend family briefings, neither in person nor remotely. If space is limited in the
briefing room, survivors and family members may be asked to select a single
representative or a limited number of representatives to attend in person for their family
group, and additional family members may be encouraged to attend remotely.
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Only briefers and a limited number of senior representatives from each
organization should attend family briefings. Family briefings are not intended for air
carrier assistance team members, Red Cross volunteers, or others staffing the FAC.
Support services and staffing needs during a family briefing will be determined ahead of
time in the JFSOC and coordinated through each JFSOC liaison. Those staffing the FAC
should use the family briefing time as an opportunity to rest, call home, eat, or handle
personal tasks. Senior representatives present in the family briefing may provide an
update to their organization’s staff, as deemed appropriate, following the briefing.
The date and time for the final official NTSB-facilitated family briefing should be
determined during a JFSOC meeting. Survivors and family members should be notified
as soon as possible in advance of the final briefing’s occurrence. The final briefing is a
critical opportunity to provide survivors and families with plans and expectations for
demobilizing the FAC provisioning of in-person services and transitioning to long-term
and remote support and communication. This is also an opportunity to provide survivors
and family members contact information that will assist them in requesting available
ongoing support and information after they depart.
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Family Briefing Room Layout (Sample)
P
S
P
M
P
M
P
M
P
S
P
S
P
S
Chair Table
Whiteboard or Easel
P
M
Pedestal Microphone
P
S
Pedestal Audio Speaker Telephone / Speaker Phone
Trash Bin
Laptop
Camera
Info
Table
Info
Table
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Appendix 14 – Victim Accounting
What is Victim Accounting?
Accounting for passengers and other victims involved in an aircraft accident is an
important step in the reunification process. Upon learning that a loved one was involved
in an accident, family members will often want to go to the passenger’s last known
location. To be able to report where the passenger is in an accurate and timely manner
and to facilitate reunification, the NTSB; the air carrier; the Red Cross; and local, state,
tribal, and federal response agencies will need to coordinate with one another to answer
two questions: Who was aboard and where are they located?
Who was aboard? To determine who was aboard the aircraft at the time of the
accident, the local response community will require input from the air carrier. The
passenger list/manifest serves as the most immediate form of information
available regarding the identities of those aboard the aircraft. Knowing who was
aboard provides a starting place for the victim accounting process. The
jurisdiction responsible for victim accounting should identify a coordinating
agency to request passenger list/manifest information from the carrier. The air
carrier should develop a process to consider requests and a mechanism to
provide relevant information (such as number of persons aboard, names of
passengers, contact information for survivors and family members) to the
coordinating agency responsible for victim accounting. The NTSB Guidance (see
Appendix 6) does not obligate air carriers to provide the passenger list/manifest
to any agency or organization beyond what is required by relevant federal, state,
or local statute.
Additionally, based on the circumstances of the accident, there may be a need to
account for victims affected by the accident that were not aboard the aircraft at the
time of the accident.
63
As their names will not appear on the passenger
list/manifest, identifying and locating additional victims will require coordination
among all the response partners. It will be important to locate and identify these
victims to ensure they are provided equal access to important information and
resources as required by 49 U.S.C. §1136, §41113 and §41313.
Where are they located? Identifying the location of passengers and other victims
can be difficult depending on the circumstances of the accident and the nature of
63
49 U.S.C. §41113(b)(9) and §41313(c)(9)
Federal Family Assistance Framework NTSB/Appendix 14
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the injuries received. The victim accounting process involves a variety of agencies
and varies from jurisdiction to jurisdiction. For example, the presiding
medicolegal authority is responsible for identifying fatally injured passengers
transported to the morgue; injured passengers may be treated on-scene by local
first responders, transported to multiple medical facilities, or transport themselves
to a medical treatment facility; uninjured passengers may evacuate to a nearby
PGA/CGA without the need for medical treatment or may even leave the accident
location without interfacing with any responding agency.
Managing Victim Location Data
Given the potential for numerous passengers aboard an aircraft and the multiple
places where victims may be in the aftermath of an accident, coordination among all
responding agencies must start from the beginning of the response effort. Ideally, the
local jurisdiction designates a central coordinating agency to collect and consolidate all
the data that is part of the victim accounting operation. This agency would then be
responsible for coordinating the information received from first responders, hospitals,
the air carrier, and other key organizations, as well as ensuring all response stakeholders
receive the information they need to meet their responsibilities. Coordination efforts
would begin at the EOC and transition to the JFSOC.
The central coordinating agency should look at all information sources to
synthesize the data into a full accounting of the identities and location of all accident
fatalities and survivors. Once this information is known, it should be communicated
through the JFSOC with the NTSB, air carrier, the Red Cross and other federal, state,
tribal, and local government, and support organizations. Information on the location of
survivors should be communicated to family members by the air carrier as soon as
possible. All responding agencies will need to contribute information received from
various sources to notify family members and provide relevant, timely information and
resources to survivors and family members.
The following information sources are used in the victim accounting and
reunification process:
Passenger List/Manifest: The air carrier is the source of the passenger
list/manifest of names of the passengers and crew members aboard the aircraft at
the time of departure. This information is critical in clarifying who was aboard, as
well as providing the initial data required to continue the accounting process and
to organize family member contact information for a particular passenger. Given
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the importance of this information, the NTSB has developed guidelines to assist
air carriers and the response community regarding both the distribution of the
passenger list/manifest and the importance of maintaining control of the
information contained on the list. See Appendix 6 for more information on
passenger list/manifest distribution.
Friends and Relatives Centers and Passenger Gathering Area Records: FRC
records provide information to responding agencies about family members at a
given location who may be associated with a passenger aboard the aircraft. PGA
records provide information to the responding agencies about which passengers
have evacuated the aircraft and have been accounted for in a safe gathering
location.
First Responder Data: First responder data can come in the form of (EMS) run
sheets, triage tags, and/or missing persons reports collected by fire, EMS, or law
enforcement. Initial identification of injured passengers begins at the accident
scene by first responders and is then fed into the larger victim accounting or
patient-tracking process. EMS triages patients and transports them to the
appropriate medical treatment facility based upon their status and injuries. In
some cases, data includes EMS run sheets, transport records, or other triage data
that accompanies the patient to the medical treatment facility. Many jurisdictions
have patient-tracking systems initiated by EMS; the tracking concludes when the
patient or fatality arrives at the medical treatment facility or the presiding
medicolegal authority. Local law enforcement is responsible for taking missing
persons reports from family members attempting to locate their loved ones.
Information from these reports can be helpful in creating a complete victim list.
Hospital Records: As patients are received at medical treatment facilities, hospital
staff either collect identity information from patients themselves or use other
means to assist in a presumptive identification of the patient. Hospital data may
involve the upload of patient information into an existing electronic medical
record system (for example, an online system or a tracking spreadsheet). Once
patient information is collected and available, the hospital should work with the
designated central coordinating agency to relay information for victim accounting
and reunification through the JFSOC.
Call Center Data: Multiple call centers may be activated following a mass casualty
or fatality incident to disseminate information to the affected population and
collect information from potential family members of passengers. The local
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jurisdiction may activate a call center to quickly divert calls from 911 or other
emergency service lines. As required by 49 U.S.C. §41113 and §41313, the air
carrier will activate a toll-free number for family members of passengers to call
seeking information about the accident and the response. Records collected from
the various call centers can be helpful in identifying potential accident fatalities
and survivors. If a call center is established by the local jurisdiction, family member
contact information should be provided to the JFSOC so that the air carrier may
establish communication with families once a passenger’s involvement in the
accident has been confirmed.
Decedent Identification: The presiding medicolegal authority is responsible for
the positive identification of decedents. Depending upon jurisdiction, the
medicolegal authority or law enforcement may provide death notifications to the
NOK. The medicolegal authority may rely on information collected by the local
central coordinating agency to carry out these responsibilities.
Major Aviation Accident Victim Accounting - Best Practices
The amount of data regarding survivors, their location and status depends largely
on the severity of the accident and the number of victims. Integration of data from
several sources is required in an aviation accident to assist with victim accounting and
reunification. All individuals believed to be missing because of the accident must be
accounted for as alive or among the deceased. This victim accounting process requires
close communication and coordination between law enforcement (responsible for
missing persons investigations) and the presiding medicolegal authority (responsible for
medicolegal death investigations).
In an aviation accident involving numerous injuries and fatalities, knowing the
exact status of each passenger in the first hours is challenging. The affected air carrier is
still attempting to gather information from the PGA and other locations and may not be
able to immediately track passenger status or location. First responders [such as Aircraft
Rescue and Fire Fighting (ARFF), EMS, and law enforcement] may begin to collect
passenger information. ARFF/EMS responders create pre-hospital care reports that may
be useful for tracking the status of passengers who have been treated and transported to
hospitals or medical treatment facilities.
Local, state, or tribal law enforcement agencies in the jurisdiction where the
accident occurred are responsible for initiating and completing a missing person
investigation for those individuals reported (or otherwise believed to be) missing
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because of the accident. When someone is found alive in a local hospital or at home in
another town, their name can be removed from the list of the reported
missing/presumed dead. When the presiding medicolegal authority has positively
identified an individual, their name can also be removed. In a mass fatality incident, the
air carrier will have a passenger list/manifest as an initial source of data sharing, and the
presiding medicolegal authority responsible for victim recovery and identification will
confirm the identity of the fatalities as part of the medicolegal death investigation.
In an event resulting in fatalities and injuries, first responders (ARFF, EMS, and law
enforcement) and hospitals receiving patients provide additional data needed to
account for survivors. In an event resulting in some fatalities and injuries, uninjured
survivors may have walked away from the accident location, increasing the challenge.
Attempts should be made to account for uninjured survivors prior to their departure
from the site. For example, law enforcement entities should obtain name and contact
information for survivors who are not injured and plan to leave the area.
Additionally, airport and air carrier personnel should already have agreements in
place with Customs and Border Patrol (CBP) regarding customs clearance procedures
for uninjured survivors who are foreign nationals and should communicate the status of
foreign nationals to the DOS and relevant consulates. Accounting for uninjured survivors
may require additional follow-up by either the air carrier or law enforcement if these
survivors have not been accounted for prior to departing from the accident location. The
NTSB will support the victim accounting process by coordinating efforts among local,
state, or tribal response agencies, including the presiding medicolegal authority, law
enforcement, OEM, hospitals, and other emergency support personnel.
The Health Insurance Portability and Accountability Act of 1996 (HIPAA), Public
Law 104–191, requires that hospitals restrict release of patient information.
64
The NTSB is
a “public health authority” as defined under HIPAA, and the regulations promulgated by
the DHHS to administer HIPAA. Consistent with 49 U.S.C. 1101-1155 and HIPAA, a
“covered entity” may disclose protected health information to the NTSB for the purpose
of the notification of family members. Individual hospitals may have internal policies that
are more restrictive than those of HIPPA.
Some issues concerning victim accounting depend on the status of the victims:
1. Fatalities: The presiding medicolegal authority has responsibility to recover and
identify fatalities. Depending on the jurisdiction, local law enforcement or the
64
HIPAA - https://www.cdc.gov/phlp/publications/topic/hipaa.html
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medicolegal authority may be responsible for death notification. However, death
notification cannot occur until a fatality has been identified.
2. Injured, able to communicate, and hospitalized: Hospitals gather contact
information from affected individuals (patients). Patients may be able to notify
family about their status and location; hospital staff may contact family members at
a patient’s request.
3. Injured, not able to communicate, and hospitalized: Hospitals may have an internal
process for cases of unidentified patients. However, in the chaos of numerous
patients being admitted following an accident, identification of patients may take
a while to resolve. Information collected by the air carrier (such as passenger
list/manifest, call center records, notification of involvement call records) may
assist hospitals in patient identification. Identifying these patients is a joint effort
among law enforcement, the air carrier, and the hospital. Information provided by
other hospitals, and possibly the presiding medicolegal authority, may help
account for unidentified patients through elimination.
4. Non-injured: Incident command and first response agencies capture contact
information for those who wish to depart the accident scene.
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Appendix 15 – Victim Identification
Definition and Importance
Victim identification is the method of identifying fatalities of a mass casualty or
mass fatality incident. The NTSB engages with the presiding medicolegal authority as
soon as practicable to establish a working relationship to understand the size and scope
of the accident and the capabilities and resources of the jurisdiction, and to offer federal
support.
65
In general, five factors influence the complexity of the victim identification process
and may influence the amount and type of resources requested to support the recovery
and identification effort:
1. The number of fatalities. As the number of fatalities increases, so do the
amount of time and resources needed to collect, manage, and analyze
ante- and postmortem data.
2. An open or closed victim population. A closed population is when the number
of victims and their names are known (for example, air carrier accident with a
passenger list/manifest). Conversely, an open population is one in which
neither the number of victims nor their names are known (for example,
explosion in a public building). Accidents involving open victim populations
require more time and resources to resolve because authorities must
distinguish those actually missing from those initially reported missing. The
antemortem data collection process can only begin once a victim is known to
be missing.
3. The condition of human remains. It is generally much easier to recover and
identify complete bodies than fragmented human remains. Other conditions
that increase the amount of time and resources to identify the fatalities include
commingling, thermal modification, and decomposition. When remains are
fragmented, the reliance on DNA identification methods increases, in turn
requiring more time and resources. In an open population accident with
fragmented remains, the standard of care is to identify all remains, since the
number and names of the dead are not known. With a closed population
accident, the goal is to account for all potentially identifiable remains for each
fatality. Often, this approach does not require analysis of all remains, just those
that have a potential to be identified.
4. Challenges in search and recovery operations. Remote terrestrial or
underwater recovery operations require specialized support and more time,
thus delaying the collection of postmortem data.
65
49 U.S.C. §1136
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5. The availability of antemortem information. Not all fatalities have easily
accessible or available antemortem information. For example, a fatality who
has never received dental care will not have dental records. Often,
antemortem information is provided by the families of passengers. However,
the absence of useful antemortem data, or the presence of incorrect data, will
slow the victim identification process.
In coordination with the presiding medicolegal authority, the NTSB can request
the following federal assets to assist in the victim recovery and identification effort:
• DMORT
66
to assist with fatality management and victim identification.
• FBI DVI Team
67
to assist in obtaining fingerprint identifications.
• FBI ERT
68
or other FBI laboratory assets to assist with victim recovery and
documentation operations.
• AFMES
69
to assist in medicolegal investigation issues. This includes AFMES
resources and facilities including the AFDIL
70
and the DOD DNA Registry.
71
The NTSB will work directly with the presiding medicolegal authority to determine
the need for additional resources to support victim recovery and identification efforts.
Medicolegal authorities vary greatly in terms of staffing, facility size, capabilities,
and resource networking. Some offices may be able to manage an aviation accident with
existing staff and facilities, while other offices, particularly those in rural areas, may
require assistance. To ensure adequate resources for the presiding medicolegal
authority to meet their responsibilities, the NTSB will work with the local jurisdiction to
coordinate the use of local, state, or tribal response teams along with the resources of
various federal agencies.
The presiding medicolegal authority, with support from other responding
organizations, has the following roles:
1. Victim Recovery: The physical location of the accident determines the
resources required and the procedures employed for search and recovery
operations. The personnel and equipment needed for scene documentation
and recovery operations vary significantly depending on whether the accident
occurred on land or over water. The NTSB has authority for the aircraft
66
https://www.phe.gov/Preparedness/responders/ndms/ndms-teams/Pages/dmort.aspx
67
https://www.fbi.gov/file-repository/handbook-of-forensic-services-pdf.pdf/view
68
https://www.fbi.gov/?came_from=https%3A//www.fbi.gov/services/laboratory-1/forensic-
response/evidence-response-team
69
https://www.health.mil/Military-Health-Topics/Health-Readiness/AFMES
70
https://dpaa-mil.sites.crmforce.mil/dpaaFamWebAFMES
71
https://health.mil/Military-Health-Topics/Health-Readiness/AFMES/DoD-DNA-
Registry?type=Fact+Sheets
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wreckage, the presiding medicolegal authority has jurisdiction over the human
remains and associated PE, and the air carrier has responsibility for
unassociated PE.
The costs related to victim recovery and identification can be high and are
directly related to the number of fatalities, the condition of human remains,
and the presiding medicolegal authority’s policies regarding identification of
remains. Typically, the air carrier is responsible for reasonable costs of victim
recovery and identification. However, the air carrier is not required by
legislation to pay for such costs. The costs of the victim recovery operation are
normally shared among local, state, tribal, and federal agencies.
2. Victim Identification: The process of victim identification following an aircraft
accident is thorough, deliberate, and based upon proven scientific methods.
While there are best practice recommendations in the U.S. for accident victim
identification (DVI), there are no enforceable national standards. The
expectation by families and society at large is that all reasonable methods will
be used to complete identifications in a timely and professional manner.
Biologically based methods are considered by courts of law as primary methods
of positive identification. Other methods may result in a presumptive identification and
may lead to a positive identification, which requires the comparison of antemortem
records with samples collected from the human remains. Exact matches of unique
biological characteristics found in both lead to a positive identification.
Biologically based methods include:
• Comparison of dental records and radiographs
• Comparison of fingerprints
• Comparison of bone structure in radiographs
• Comparison of healed fractures in radiographs
• Unique medical features, such as implants/prosthetics
• Comparison of DNA
In an aircraft accident involving fragmented human remains, identification is
followed by the process of reassociation of remains. Reassociation takes more time and
is more complex than identification. Although a victim may be identified quickly using a
single tooth, the ability to bring together the disassociated remains of victims relies
primarily on DNA. DNA identification involves comparing DNA samples of the deceased
with either antemortem samples from biological relatives or a sample of DNA from the
deceased obtained from clothing, a hairbrush, or a similar item containing skin or hair
cells.
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3. Antemortem and Postmortem Information Collection: The presiding
medicolegal authority is responsible for interviewing families of fatalities and, if
necessary, obtaining medical or dental record information. Depending on the
condition of the human remains, families may be asked to provide the contact
information of their loved one’s dentist or doctor.
When activated, DMORT can also assist the presiding medicolegal authority
with monitoring the status and receipt of requested antemortem records. This
includes dental records, medical records, and DNA reference samples.
4. Positive Identification and Death Notification: Once a positive identification
has been made, the presiding medicolegal authority, DMORT team member,
or designee will provide an official death notification to the passenger’s legal
NOK, to decide on how and when the human remains will be returned for
burial or disposition. Air carriers may employ a service provider who will work
with the medicolegal authority and family members to assist in the transfer
from the medicolegal office or temporary morgue operation to final
disposition. Family assistance team members may assist family members by
making appointments for conversations with the medicolegal authority and
service provider, if applicable.
5. Disposition of Human Remains: The medicolegal authority will make
arrangements in coordination with the air carrier for the release of human
remains to the funeral home selected by the NOK. Victim’s remains will be
transported from the morgue by a service provider contracted by the air
carrier, dependent upon the policy of the medicolegal authority, to the funeral
home selected by the NOK. A POC for the funeral home selected by the NOK
should be provided during the identification and death notification process.
Generally, victims’ remains are released on an individual basis as they are
identified. However, the medicolegal authority may choose to release unidentified
remains as a group and will hold the release of those remains until family members can
be consulted about disposition.
72
Air carrier family assistance team members should direct questions regarding
victim recovery, identification, disposition of remains and death certification to their team
leader or equivalent. The team leader should notify their air carrier JFSOC liaison to
make the NTSB TDA and other JFSOC liaisons aware of any concerns raised by
individual family members so they may be properly addressed with the relevant
medicolegal representative.
72
49 U.S.C. §41113 (b)(5) and §41313 (c)(5)
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Additionally, families should be reminded of available emotional, spiritual, and
family care services from the Red Cross or other disaster relief organizations if additional
support is desired during the victim identification and death notification process.
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Appendix 16 – Accident Site Visit
After an aviation accident, it is common for survivors and families to request to see
the site where the accident occurred. Early in the operation, during JFSOC meetings it is
important to begin discussing the possibility of an accident site visit prior to receiving
requests. An assessment should be done to identify any potential risks before such a
request is granted, and safety should remain a top priority in the decision-making
process. It is critical that all key stakeholders are involved in the decision, including those
who may not be involved in ongoing JFSOC coordination efforts (such as TSA
representatives, airport representatives, incident command, the NTSB investigative
team). If a site visit is determined possible, the NTSB will facilitate the coordination of the
event with relevant family assistance partners, including the air carrier, the Red Cross,
and applicable federal, state, tribal, and local agencies critical to planning efforts. NTSB
TDA will coordinate directly with the NTSB’s IIC to ensure the site visit does not impede
the investigative process and minimally impacts personnel working at the accident
location. Planning efforts should address, but are not limited to:
Condition of Site
Site visits should not occur until the site is deemed safe for access by survivors and
family members by the NTSB, incident command agencies, or other relevant
stakeholders (such as the property owner). A viewing area should be established to
identify specific access boundaries; prevent direct access to wreckage, evidence, or
other potential hazards; and reduce visitors’ risk of injury at the accident location. Site
visits should not be scheduled until human remains, and clearly distinguishable PE are
removed from the site or from view in the area.
Environmental Conditions
Environmental conditions or hazards may have a significant effect on-site visit
planning and execution and may change suddenly and without notice. Conditions or
hazards to consider and monitor prior to the site visit may include weather, temperature,
wildlife, or contamination. Additional supplies, staff, equipment, and other resources
may be needed to ensure the safety of those participating in the visit. Hazardous or poor
conditions may necessitate cancellation of the site visit.
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Victim Populations
Those choosing to attend a site visit may not be from the same victim population
and may include family members of deceased passengers, surviving passengers and
their families, ground victims, crew members, or others. It is important to discuss during
the JFSOC coordination meetings whether a single site visit will be adequate or if more
than one visit will be needed to address the range or number of potential attendees.
Logistics, Resources, and Staffing
The potential number of survivors and family members interested in attending a
site visit, along with the range of accident location considerations, directly impact
logistics planning and management of resources for such an event. Resources that may
need to be addressed or managed during a site visit include security, staff,
transportation, fencing or barriers, restrooms, water, a temporary memorial stand, safety
gear, and other necessary equipment or resources.
Transportation should be provided for all attendees to the site rather than
allowing independent travel to the location, when possible.
A designated temporary memorial should be set up prior to the site visit to allow
attendees to leave tributes, flowers, or other mementos when they arrive. Survivors and
family members should be advised about the final disposition of any item left at the
temporary memorial in advance of the event to ensure that items of significant value or
sentiment are not left as returning these items may not be possible.
Appropriate support services and staffing needs during a site visit are determined
in advance in the JFSOC and coordinated through each JFSOC liaison. On-site support
should include adequate mental health, spiritual care, and medical staffing. Site visits are
not intended for air carrier assistance team members, Red Cross volunteers, or FAC staff,
and none of these should attend. Those staffing the FAC should use the site-visit time as
an opportunity to rest, call home, eat, or handle personal tasks.
Pre-Site Visit Family Briefing
Prior to a site visit, a family briefing should be scheduled dedicated to preparing
and setting expectations for survivors and family members planning to attend the event.
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This briefing will provide an opportunity to explain the site visit schedule, transportation,
the amount of time they will have at the site, and any limitations (such as distance they
will be from the wreckage, no video or photography policies, media exposure). The
JFSOC team may elect to request that attendees sign a waiver in advance of the visit (this
can take place during the pre-site visit family briefing. An example of a waiver is
provided on the next page).
Upon return from a site visit to the FAC or other designated location, additional
support services and staffing should be made available, for those returning from the
event. Requests for basic needs such as water, quiet room, food, or rest, should also be
addressed.
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National Transportation Safety Board
Site Visit Waiver (Sample)
I understand that participation in this wreckage viewing is limited and may be obtained only under
the close supervision and control of authorized NTSB personnel. I acknowledge that the
unauthorized and knowing alteration, destruction or removal of any wreckage or other materials
is a federal crime. The NTSB prohibits unauthorized touching or manipulation of the aircraft
wreckage as well as all photography, video, or audio recording during the wreckage viewing, and
I hereby agree to abide by these prohibitions. Children under the age of 18 must be accompanied
by their parent or legal guardian.
I understand that the wreckage viewing is being held on private property and the NTSB has
received permission to use the property for this viewing by the property owner. I agree to remain
in the designated areas identified for the wreckage viewing and will not access restricted areas or
items on the property not involved with this viewing.
I agree to abide by the restrictions associated with the viewing, both those restrictions known at
signing as well as any that the NTSB states during the viewing to ensure safety. I understand that I
may be required to leave the viewing location if NTSB personnel determine that I am not abiding
by these restrictions, that I am causing a disruption, hazard to myself, or hazard to others. I release
the NTSB from any and all injuries, physical and otherwise, and any associated liabilities that may
arise from viewing the property and viewing the aircraft wreckage. I also acknowledge by my
signature below that, before entering the site, I have been made fully aware of the potential
emotional and physical consequences of viewing the site and associated wreckage. I have been
informed of emotional support services available from the American Red Cross and how to access
them in the event I feel the need for such services during or following the site visit.
Visitor’s Name (Please print):
Attendee Signature or Date
Parent/Legal Guardian for child attendee
*By submitting this form, you are confirming that you are the parent or legal guardian of the child
attendee.
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National Transportation Safety Board
Site Visit Sign-up Form (Sample)
Access to the [NTSB case #] site is limited and may be obtained only under the close
supervision and control of authorized NTSB personnel.
The site may include wreckage or other items that could cause physical harm if touched.
Visiting this site may have an emotional and psychological impact.
The alteration, destruction or removal of any wreckage, personal effects, or other
materials associated with the site is a federal crime.
Photography, video, or audio recording during the site visit is prohibited.
Children under the age of 18 years must be accompanied by a parent or legal guardian.
Those seeking to participate in the site visit must complete the NTSB’s Site Visit Waiver
and provide their contact information below.
Name
Telephone #
Email Address
Signed
Waiver
1
2
3
4
5
6
7
8
9
10
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Appendix 17 – Personal Effects Management
Best Practices
In an aviation accident, the following suggested PE management best practices
should be considered by the JFSOC team. It is understood that unique factors at the
accident location may influence the application of these procedures.
PE Survey Team
Prior to the PE recovery process, a PE survey team will meet at the accident location
approximately 24-36 hours (depending on circumstances) after the accident. The team
will include:
• Personal effects service provider representative.
• NTSB TDA specialist.
• FBI ERT team leader (at the request of the NTSB).
• Local law enforcement representative.
• Air carrier representative.
• Underwriter representative (optional).
• Presiding medicolegal authority representative.
The survey team will inspect the accident location and perform the following tasks:
• Locate the PE item farthest from the main wreckage.
• Based on a standard approach to crime scene investigation methodology, search
an area twice the distance and depth from the location of the farthest and deepest
PE item recovered.
• Examine the influence of terrain and environmental issues (such as mud, sand,
trees) on PE search and recovery.
• Discuss and agree upon the recovery plan offered by the PE vendor.
• Brief air carrier management on the recovery plan.
Survey Team Final Inspection
Once the PE vendor has cleared the scene of PE and is ready to terminate
on-scene operations, survey team members will assemble at the accident scene for a
final inspection of the accident site, ensuring that the scene is clear of all visible PE and
all reasonable recovery actions have been completed.
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The survey team will include all the members of the PE survey team (see above),
except for the presiding medicolegal authority.
Monitor Accident Scene
Monitoring the accident site for a period following the initial cleanup may reveal
additional PE. The following surveys are recommended:
• A site survey by the PE vendor and the air carrier representative 30-60 days
following environmental remediation.
• A site survey by the PE vendor and the air carrier representative following the first
significant environmental, geological, or meteorological events likely to alter the
site conditions (such as heavy rains, snow melt, flooding, crop planting or clearing,
windstorms, or earthquakes).
Once completed, survey results are to be provided to the NTSB TDA via email at
assistance@ntsb.gov. TDA staff may be reached at (202) 314-6185.
One-Year Anniversary
Approximately 30 days before the one-year anniversary, the PE vendor and air
carrier should walk the accident site to locate any PE that has moved to the surface
because of changes in the site condition. This survey should be conducted regardless of
whether there are any anniversary visits or memorial events planned or scheduled to
take place at the accident location.
Once the PE vendor and air carrier representative have completed this survey,
results are to be provided to the NTSB TDA, via email, at assistance@ntsb.gov. TDA staff
may be reached at (202) 314-6185.
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Appendix 18 – Family Support Tasks by Role
NTSB FSTs
1. Inform the air carrier(s) involved in the aircraft accident regarding the applicability
of 49 U.S.C. §41113 or 49 U.S.C. §41313.
2. Inform the DOT regarding the applicability of 49 U.S.C. §41113 or
Title 49 U.S.C. §41313.
3. Request from the air carrier a copy of the passenger list/manifest, based on the
best available information at the time of the request, with the names of the
passengers who were aboard the accident aircraft.
4. Designate and publicize the name and telephone number of a director of family
support services (NTSB TDA chief or other TDA-appointed representative) to
serve as a federal POC for the families of passengers involved in the accident and
to act as a liaison between the air carrier and the families of passengers. The
NTSB’s TDA Division addresses family members’ requests for information
regarding the agency’s investigation, family assistance operations, and services
provided by the air carrier and the Red Cross.
5. Designate the Red Cross as the organization with the primary responsibility for
coordinating emotional care and support for the families of passengers involved
in an accident. Notify the Red Cross National Headquarters of the aircraft accident
and their designation in accordance with 49 U.S.C. §1136.
6. Discuss with the presiding medicolegal authority the capabilities and resources of
their office staff for conducting fatality identification based on the size and scale of
the accident, including possible coordination with the AFDIL for DNA
identification.
7. If requested, provide information on the passenger list/manifest about a specific
passenger to their family, to the extent that the NTSB TDA representative
considers appropriate. Advise family members of air carrier’s toll-free number.
Notify air carrier POC of family contact information.
8. Ensure that family members receive the air carrier’s toll-free number and are
made aware of support services being provided by the air carrier and the Red
Cross.
9. Provide an NTSB toll-free number and email address to families of passengers for
them to obtain information on the accident investigation and the victim
identification and recovery process.
10. Organize and facilitate a JFSOC coordination call with the air carrier, the Red
Cross, and other supporting federal, state, tribal, and local agencies as needed to
become aware of the family assistance operation and response status.
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11. Encourage response organizations to share information about the whereabouts of
fatalities and the whereabouts and welfare of survivors with the air carrier, the Red
Cross, and the NTSB as part of the victim accounting process.
12. Establish and maintain contact with families of passengers to keep them informed
about support services, the accident investigation, and other accident
investigation related concerns including relevant NTSB public hearings and
meetings.
13. Coordinate through the NTSB Media Relations Division regarding family
assistance efforts.
14. Monitor open-source media to determine when the air carrier toll-free number
becomes publicly available:
14.1. Publicize the air carrier’s toll-free number through NTSB social media
platforms.
14.2. Call the air carrier’s toll-free number to verify its operational status and
to determine how information is being provided to callers seeking
information.
15. Maintain communication with the air carrier to remain current regarding the status
of family notification (for example, number of family groups notified, number for
which notification was attempted, number still pending notification). See
Appendix 10 for additional information.
16. Establish a JFSOC based upon available space in or near the FAC. Invite
representatives of the air carrier’s family assistance response team, the Red Cross
liaisons and other response organizations (for example, medicolegal authority,
hospital association, ESF-8 representative, etc.).
17. Integrate the NTSB, the air carrier, the Red Cross, and other relevant stakeholders
to ensure that the travel and logistical support needs of the families of passengers
are being addressed, giving special consideration to security, the quality of hotel
rooms and facilities, privacy, and access and functional needs.
18. Coordinate family assistance efforts with local response organizations and
individuals, including the medical examiner, law enforcement, OEM, hospitals,
and other responding organizations.
19. Coordinate with the air carrier and local jurisdiction to help determine the
appropriate agency(ies) to receive passenger list/manifest data when multiple
requests are made to the air carrier.
20. Provide family members with contact information for local law enforcement
and/or the presiding medicolegal authority to answer questions and concerns
regarding victim accounting, identification processes and reunification efforts.
21. Facilitate the federal response in the recovery and identification of fatally injured
passengers involved in the aircraft accident.
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22. Notify the DHHS to initiate the NDMS and the appropriate DMORT personnel,
supplies, and equipment to assist in the management of fatality identification, as
needed.
23. Facilitate coordination between DOS and the presiding medicolegal authority to
support fatality recovery and identification efforts for foreign passengers, as
applicable.
24. Inform the presiding medicolegal authority about the role of the Red Cross and
the support services available to families, to include coordinating efforts for
memorial services associated with individuals or group remains interment and
psychological, emotional, and spiritual care.
25. Coordinate and initiate requests for federal family assistance assets using
MOAs/MOUs as determined necessary.
26. Coordinate with DHS and FPS to provide law enforcement and security services at
any federally leased, owned, or occupied facility, property, investigation site,
operational area, asset, or other location owned, occupied, or secured by the
federal government during the course of an NTSB investigation, hearing, meeting,
or study, including facilities used for FACs, FRCs, and JFSOC operations and for
press briefings, telecasts, and other functions.
27. Organize and facilitate family briefings to ensure that the families of passengers
are provided information to the maximum extent practicable prior to any NTSB
public briefing, about the accident, its causes, and any other findings from the
NTSB’s investigation.
28. If the accident location remains under the control of the NTSB, assess the
potential of a site visit for families of passengers. Accident scenes under the
control of law enforcement officers require collaboration among the responsible
agency, NTSB, air carrier, the Red Cross, and other support agencies.
Management of the site visit should be coordinated through the JFSOC. See
Appendix 16 for site visit considerations.
29. Upon request, facilitate the sharing of contact information among survivors and/or
family members.
30. Coordinate an on-scene and post-response family assistance assurance review
with the air carrier and the Red Cross to review the family assistance operation
and legislative requirements and to identify challenges and lessons learned, with
the goal of enhancing operating plans and procedures in the future.
31. Within 45 days of the accident, monitors for and responds accordingly to any
unsolicited communications from attorneys received by families of passengers.
73
73
49 U.S.C. §1136(g)(2)
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32. Determine whether a 30-day extension is required for the Red Cross as the
designated organization to ensure access to services by families of passengers
beyond 30 days after the accident has occurred.
74
33. Via JFSOC meetings, support the coordination of PE management by response
partners. See Appendix 8 for JFSOC information.
33.1. Ensure that the affected air carrier is aware of its role and responsibilities
regarding the PE management obligations outlined in federal
legislation.
33.2. Ensure that families of passengers are informed about PE recovery,
processing, claim, and disposition. Note: For PE retained for an
accident investigation or a criminal investigation, securing and returning
these items is typically the responsibility of the investigative agency. The
NTSB will coordinate the return of PE it has retained for an accident
investigation.
33.3. Determine the evidentiary value of PE, retain relevant items, and release
non-evidentiary PE to the appropriate organization, communicating with
the families of passengers regarding the investigative process and the
return of PE taken into NTSB custody.
33.4. the provision of federal family assistance activities if the investigation
determines that the accident is the result of an intentional criminal act.
33.5. Coordinate the transition of PE management to the FBI if the event has
been determined to be a criminal act.
34. Inform families of passengers of NTSB public hearings and meetings pertaining to
the investigation and provide information about attendance at the event.
35. Ensure that briefings are made available simultaneously by electronic means for
survivors/family members that are not able to attend briefings in person.
Air Carrier FSTs
1. Submit a plan to the NTSB and the DOT for addressing the needs of the families of
passengers involved in an aircraft accident resulting in any loss of life.
75
See
Appendix 2 for submission guidance.
1.1. If the air carrier requires the utilization of the Red Cross or any other
suitably trained individuals to initiate notification to the families of the
passengers at the time of the accident, a mutually agreed-upon plan
should be established in advance and included in the carrier’s plan filed
with the NTSB and the DOT.
74
49 U.S.C. §1136(g)(3)
75
49 U.S.C. §41113(a) and §41313(b)
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2. Commit sufficient resources to carry out the filed plan to address the needs of
passengers’ families.
76
3. Establish a process for notifying the family members of passengers regarding the
passengers’ involvement in the accident.
77
.
4. Provide adequate training to employees and agents (for example, gate, customer
support, and reservations) to meet the needs of survivors and family members
following an accident. Training topics should include, but are not limited to:
4.1. Federal transportation accident family assistance legislation.
4.2. The air carrier’s roles and available resources.
4.3. The role of response partners, including the Red Cross.
4.4. The employee’s and agent’s specific role.
4.5. Psychological first aid, crisis response, interpersonal communication,
and stress management.
5. Establish a plan for providing media updates regarding the air carrier’s family
assistance operation. Consider providing information regarding:
5.1. Availability of the toll-free number.
5.2. Establishment of family assistance facilities.
5.3. Progress of the family notification process (the number of families
notified, the number of families remaining to be notified, and/or
completion of the process).
5.4. Information regarding resources available to passengers’ families.
6. In addition to the accident notification requirements under 49 C.F.R. §830.5,
78
as
soon as practicable, complete and submit the NTSB TDA Accident Notification
Supplemental Information Worksheet (see Appendix 5) to assistance@ntsb.gov.
7. Provide the NTSB and the Red Cross NTSB and/or JFSOC Liaison, upon request, a
copy of the passenger list/manifest, based on the best available information at the
time of the request.
7.1. Provide subsequent versions of the passenger list/manifest to the NTSB
upon request and at regular intervals as agreed upon by the air carrier
and the NTSB, based on the specific circumstances of the accident. The
information contained on the passenger list/manifest should be the best
available information at the time the request is made or at the agreed
76
49 U.S.C. §41113(b)(14) and §41313(c)(13)
77
The air carrier is under no obligation to publicly release the names of passengers; however, if the air
carrier elects to do so, the air carrier should provide notification to family members prior to releasing this
information. The air carrier should give family members adequate time to notify other family members
prior to public release.
78
https://www.ecfr.gov/current/title-49/subtitle-B/chapter-VIII/part-830/subpart-B/section-830.5
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upon intervals. See Appendix 6 for additional information. Provide
updated passenger list/manifests to the Red Cross NTSB and/or JFSOC
Liaison (if initially requested) at the same time as those provided to the
NTSB.
8. Develop procedures to consider and respond to additional requests for the
passenger list/manifest from the local response community via the EOC. See
Appendix 6 for distribution guidance.
9. Ensure equal treatment of the families of revenue passengers, non-revenue
passengers, and any other victim of the accident (including ground victims).
79
10. Secure private facilities at departure, arrival, connecting airports, and hubs, as
needed, in coordination with the airport authority(ies) for use as family assistance
facilities. Families of passengers may elect to gather at these locations while in
transit to the accident location. Facilities established to support family assistance
operations should be compliant with the ADA.
80
11. Notify family members (in person, if practicable)
81
as soon as possible to verify
whether a passenger was aboard the aircraft (even if the names of all passengers
have not yet been verified).
12. Establish a toll-free telephone number to allow family members to contact the air
carrier directly for information regarding the air carrier’s assistance to family
members. Consider the following:
12.1. Modify the normal “hold” message. Similar considerations should be
made for “on-hold” soundtrack(s) for phone lines that may receive
incoming calls following an accident to eliminate music, sales
information, and similar non-accident-related messages. Similar
considerations should be made for all public interfaces.
12.2. Ensure that sufficient staff are designated to manage an increase in call
volume from family members immediately following an accident.
12.3. Ensure that the toll-free call center staff are adequately trained and
prepared to work with affected family members.
12.4. Establish a process for efficiently gathering critical information from
callers to aid in timely notification and to facilitate subsequent
engagement regarding the family assistance operation and available
services.
12.5. Gather and share contact data collected from affected family members
both internally and with federal, state, tribal and local response
organizations (for example, data from multiple call centers, multiple
family members of the same passenger) through the JFSOC.
79
49 U.S.C. §41113(b)(9) and §41313(c)(9)
80
42 U.S.C. §12102
81
49 U.S.C. §41113(b)(3)
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12.6. Establish a process to follow up with callers who have been identified as
affected family members.
12.7. Determine and share information about services that will be made
immediately available to affected family members in the aftermath of an
accident.
12.8. Ensure the accessibility of information to callers with varying access and
functional needs (for example, speakers of languages other than
English, those who rely on TTY technology, and those who may have
difficulty in understanding or processing complex information).
12.9. Establish a plan to decommission the toll-free number as the family
assistance operation transitions from an active response to long-term
assistance.
13. Publicize the toll-free number and consider using both traditional and digital
media outlets to emphasize the following information:
13.1. The name and accident flight number of the air carrier(s) involved.
Provide all partner and codeshare flight information.
13.2. The origination, connecting, and destination airports.
13.3. The toll-free number is for family members of passengers believed to be
on the flight.
13.4. The air carrier has activated its family assistance program in response to
the accident and encourage families to contact the air carrier through
the toll-free number to receive additional information and support.
14. Ensure the publicized toll-free telephone number remains operable with sufficient
capacity to handle the anticipated call volume to collect contact information of
family members of passengers.
15. Inform families of passengers at the time of initial notification (or soon thereafter)
about the involvement of the Red Cross and their available services and provide
reminders throughout the operation about these services to address any needs
for psychological, emotional, and spiritual care.
16. Coordinate directly with the Red Cross JFSOC liaison to address support requests
for psychological, emotional, and spiritual care as they are received by the air
carrier’s family assistance teams or other sources and ensure that adequate facility
space is available for providing these services and for accommodating support
services staff.
17. Designate a representative of the air carrier’s security division to collaborate with
DHS FPS and other law enforcement agencies (for example, local, state, tribal,
federal) to conduct a threat assessment to determine the necessary level of
security.
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18. Work with the local jurisdiction to secure a facility to serve as the FAC, considering
size, services available, security, privacy, and proximity to the key elements of the
family assistance operation. Make alternate accommodations to provide
information and offer resources to families of passengers when a physical FAC is
not established, or individuals elect not to travel to the primary FAC. Facilities
established to support alternate accommodations should be ADA compliant.
18.1. Coordinate adequate private spaces or rooms within the FAC, or other
suitable location, for the presiding medicolegal authority, the Red Cross,
and other family assistance operation organizations to communicate
privately with families of passengers. These spaces should be equipped
with sufficient technology to allow for virtual meetings (for example,
conference calls and web-based video conferences).
18.2. Make provisions for a JFSOC to include meeting space, separate
workspace, communication technologies, and logistical support for
local, state, tribal, and federal response partners. If available, separate
workspace may be made available for the NTSB and the Red Cross on a
full- or part-time basis as needed.
18.3. Ensure the provision of an adequate number of private rooms or space
in the FAC for families of passengers to meet with the presiding
medicolegal authority or designee, for the authority to obtain
antemortem information and/or the collection of DNA reference
samples. These rooms can also be used for other family assistance
support services when the medicolegal authority has completed their
process.
18.4. Provide a dedicated area in the FAC, or other suitable location, for the
Red Cross to establish as an area for families and survivors to grieve
privately.
82
18.5. Provide a dedicated area in the FAC, or other suitable location, for the
Red Cross to establish on-site temporary respite care for families who
arrive with minors.
18.6. As part of broader FAC security, establish a badging system that
uniquely identifies families of passengers for access within family
assistance facilities. Considerations should be made regarding badging
requirements for individuals who have a need to access family
assistance facilities.
18.7. Coordinate through the JFSOC badging requirements for support
personnel; if necessary, consider development of a unique badging
system to ensure proper identification and to allow access for other
supporting agencies. In unique cases, the NTSB, in coordination with the
air carrier, will decide on the layout and design of the badge(s).
82
49 U.S.C. §1136(c)(2)
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19. Provide the DOS the information outlined in 14 C.F.R. § 243.7
83
if the accident
meets the criteria established under 14 C.F.R. §243.11
84
and provide DOS
representatives information about any foreign passengers to facilitate interaction
with appropriate foreign embassies.
20. Inform the presiding medicolegal authority about the air carrier’s assistance that is
available to families of passengers related to the disposition of human remains. If
assistance is being provided via a service provider, ensure that connections are
made between the family and the service provider.
21. Consult with the family of each fatally injured passenger in coordination with the
medicolegal authority about available resources related to the disposition of
human remains.
22. Provide DOS representatives information regarding foreign passengers necessary
for facilitating interaction with appropriate foreign government embassies.
23. Designate a contact person(s) to support families of passengers while they remain
in the accident location. If possible, this person(s) should continue to be the air
carrier interface with the family until the family returns to their residence, or until
the conclusion of the on-site family assistance operation.
23.1. If the family has not previously received official notification, notify them
of their loved one’s involvement in the accident at an appropriate time
as soon as possible after the family arrives in the accident location.
23.2. For family members not present in the accident location, establish a
contact for remote support to ensure the delivery of daily updates
during the on-site family assistance operation. Communicate any
changes to the support structure between on-site/immediate support
and long-term support to the TDA JFSOC liaison as soon as possible.
24. Provide physical care and logistical support including, but not limited to,
transportation, lodging, meals, security, communications, and incidental
expenditures, to families of passengers who desire to travel to the accident
location.
85
This may include the following:
24.1. Informing and making available air carrier personnel at departure,
connecting, and arrival airports to offer assistance.
24.2. Informing gate agents and flight crews that families of passengers are
aboard.
24.3. Seeking assistance from other carriers with a larger presence at airports
or transportation hubs where family members will be transiting.
24.4. When possible, tell family members about other available services (for
example, the Red Cross) at first contact with the family.
83
https://www.ecfr.gov/current/title-14/chapter-II/subchapter-A/part-243/section-243.7
84
https://www.ecfr.gov/current/title-14/chapter-II/subchapter-A/part-243?toc=1
85
49 U.S.C. §41113(b)(11) and §41313(c)(11)
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25. Designate an air carrier senior representative (see Appendix 8) who will serve as
the representative to the NTSB’s designated director of family support services.
This person will oversee the air carrier’s family assistance operation and may need
to:
25.1. Travel to various locations, such as the accident location, healthcare
facilities, medicolegal facilities, JFSOC, and FAC.
25.2. Address questions regarding the air carrier’s Emergency Response Plan
(for example, service providers, available resources, and limits to family
assistance support).
25.3. Participate in, or coordinate the participation of, an alternative
spokesperson for family briefings.
26. Designate an air carrier family assistance coordinator who will serve as the primary
POC regarding the air carrier’s day-to-day family assistance operations.
Depending on the unique nature of the accident and the resources available from
the family assistance response partner, it may be necessary for one individual to
take on multiple roles or to delegate specific tasks to other individuals within their
organization. See Appendix 8 for additional duties.
27. Designate an air carrier JFSOC liaison, who will remain present in the JFSOC to
coordinate the air carrier’s ongoing family assistance operations. This person
should have the authority to make decisions and commit resources
86
on behalf of
the air carrier. See Appendix 8 for additional duties.
28. Assign a primary POC to the Red Cross JFSOC liaison to ensure that requests
from families of passengers or survivors received by the air carrier for emotional,
spiritual, and psychological care services or referrals are addressed, regardless of
where the families or survivors are located. See Appendix 8 for additional duties.
29. Review with the NTSB, the Red Cross, and other relevant stakeholders the travel
and logistical support needs (for example, video, software, or other technological
needs) of the families of passengers, giving special consideration to security, the
quality of hotel rooms and facilities, privacy, equitable access, and functional
needs.
30. Advise the NTSB and the Red Cross if family members have expressed that they
would prefer not to engage directly with air carrier representatives so that
alternative means of offering information and services are made available.
31. Monitor the needs of injured passengers and their family members at each
medical treatment facility through ongoing coordination with the Red Cross
JFSOC liaison and other agency JFSOC liaisons to ensure access to information
and resources.
86
49 U.S.C. §41113(b)(14) and §41313 (c)(13)
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32. Coordinate with the Red Cross spiritual care staff to address family member
requests for memorial services.
33. Participate in the preparation and logistical coordination of an accident site visit
for families of passengers if an accident site visit is determined appropriate by the
NTSB.
34. If appropriate and requested by the families of passengers, support the
Red Cross in facilitating a memorial service for any future burial of unidentified
human remains through coordination with the families, the local medicolegal
authority, and other relevant local organizations.
35. Consult with the families of passengers about any air carrier–sponsored
monument, including any inscriptions.
36. Ensure that the transmission of any NTSB-conducted public hearing, or
comparable proceeding, occurring at a location more than 80 miles from the
accident location, is available to families of passengers at a location open to the
public at both the origin city and destination city of the accident flight.
37. Consult with the NTSB and the DOS on the provision of assistance to U.S. citizens
within the United States in the event of an accident occurring outside of the United
States that involves any loss of life.
38. Coordinate directly with the FBI VSD regarding the provision of family assistance if
the event is determined to be an intentional criminal act and the NTSB
relinquishes investigative priority to the FBI.
39. Provide reasonable compensation to the Red Cross for services they have
provided if requested by the Red Cross National Headquarters.
87
40. Participate in the NTSB-coordinated family assistance assurances reviews, both
on-scene and post-response, to review the family assistance operation and
legislative requirements, resolve problems, and update operating plans and
procedures.
41. Ensure that a plan is in place to address the management of PE within the control
of the air carrier. See Appendix 17 for more information. The air carrier may
consider using a third party that has experience in managing PE associated with
MCIs.
42. Ensure that families of passengers are informed about the PE management
process, the condition in which items may be returned (cleaned, repaired, as-is
with the caveat that items be safe to handle), including any future disposal process
for unclaimed items.
88
42.1. Return any possession, if requested by the family of a passenger, within
the control of the air carrier (regardless of its condition), unless the
87
49 U.S.C. §41113(b)(11) and §41313(c)(11)
88
49 U.S.C. §41113(b)(5) and §41313(c)(5)
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possession is needed for the accident investigation or a criminal
investigation.
89
42.2. Retain any unclaimed possession of a passenger within the control of
the air carrier for at least 18 months.
90
43. Consult with the NTSB regarding the air carrier’s role in the return process of any
PE in the custody of the NTSB.
44. Consult with other entities that may have a role in the management of PE (for
example, medicolegal authority, local, state, tribal, or federal law enforcement,
insurance companies, hospitals) to determine the air carrier’s role in the return
process of any PE in the custody of those entities.
45. Provide updates regarding the PE management process during daily JFSOC
meetings and post-accident response discussions. Specific information to share
includes the role of a third-party, progress and complications with the returns
process, and the status of unclaimed or unwanted items 18 months following the
accident. See Appendix 8 and Appendix 10 for additional information for
additional information.
46. Consult with survivors and family members regarding the disposition of remains of
carry-on or checked fatally injured pets.
47. Notify family members both before and after any planned disposal of unclaimed
PE within the control of the air carrier that will occur after the required 18-month
retention period lapses.
Red Cross FSTs
1. Designate an NTSB liaison familiar with federal family assistance legislation, the
NTSB-Red Cross MOU, and the roles and responsibilities of the Red Cross, the
NTSB, and the air carrier to support the regional or the local Red Cross leadership
team assigned to serve as the functional lead for emotional, spiritual, and
psychological care services in accordance with the legislation.
2. Assign a JFSOC liaison who will remain present in the JFSOC to coordinate
ongoing family assistance operations on behalf of the Red Cross with the authority
to make decisions on behalf of the organization. The liaison will be responsible for
participating in daily JFSOC status meetings, providing operational updates and
the status of daily activities and services, disseminating information within their
organization as appropriate, and maintaining up-to-date information regarding
available Red Cross or other disaster relief organization staffing and services
within the FAC and any alternate locations (for example, hospitals).
See Appendix 10 for the JFSOC status report form.
89
49 U.S.C. §41113(b)(6) and §41313(c)(6)
90
49 U.S.C. §41113(b)(7) and §41313(c)(7)
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3. Ensure that Red Cross staff and volunteers, and any other personnel approved by
the Red Cross to provide support services, are familiar with the roles and
responsibilities of the NTSB, the air carrier, the Red Cross, and other federal
partners during a federal family assistance operation.
4. Review with the air carrier, the NTSB, and other stakeholders the travel and
logistical support being provided to the families of passengers by the air carrier,
to provide subject matter expertise related to the access and functional needs of
family members and survivors, to ensure needs are being adequately addressed.
5. Coordinate with the air carrier liaison assigned to the Red Cross to address any
requests from families of passengers or survivors for emotional, spiritual and/or
psychological care services or referrals, regardless of their locations (for example,
an FAC, hotel, hospitals, other medical treatment facilities, home).
6. Assign Red Cross disaster mental health staff or volunteers to coordinate with
local disaster relief organizations or agencies to address on-site emotional and
psychological care requests during the JFSOC coordination phase.
7. Assign Red Cross spiritual care staff or volunteers or coordinate with local disaster
relief organizations or agencies to provide on-site spiritual care at the FAC, or
other suitable location.
8. Coordinate staffing activities with the air carrier to ensure the badging of support
personnel providing emotional, spiritual, and psychological care services at the
FAC, or other suitable location is adequate. If necessary, consider developing a
unique badging system to ensure proper identification and allow access for other
disaster relief organizations approved by the Red Cross.
9. Coordinate with the air carrier to establish a dedicated area in the FAC, or other
suitable location, for families and survivors to grieve privately
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and provide
appropriate staff, as necessary.
10. Coordinate with the air carrier to establish a secure location within the FAC, or
other suitable location, for on-site temporary respite care for survivors or families
of passengers who arrive with minors, if determined necessary by the air carrier,
the Red Cross, and the NTSB, and provide appropriate staff.
11. Coordinate with the air carrier to identify adequate private spaces or rooms with
technology and telephonic capabilities within the FAC, or other suitable location,
necessary for providing on-scene, remote or virtual psychological, emotional, and
spiritual care support to survivors and/or families of passengers.
12. Manage spontaneous unaffiliated volunteers, as necessary.
13. Manage unsolicited donations through partnerships with local community entities
experienced in donation management, as necessary.
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49 U.S.C. §1136(c)(2)
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14. For resources other than psychological, emotional, and spiritual care support,
coordinate with the air carrier to identify the availability for additional resources
needed.
15. Employ an accounting system to accurately record cost data in specific cost
categories in case the Red Cross National Headquarters later requests
reimbursement for their response from the air carrier.
16. Facilitate a memorial service for any future burial of unidentified human remains
through coordination with the families, the local medicolegal authority, the air
carrier, and other relevant local organizations, when appropriate. Should these
services occur outside of the JFSOC operational period, coordinate directly with
the air carrier’s identified individual(s) for ongoing support. Notify the NTSB TDA
Red Cross coordinator of event date and time. See Appendix 8 for more
information.
17. Participate in the preparation and logistical coordination of an accident site visit
for survivors or families of passengers if an accident site visit is determined
appropriate by the NTSB. Coordinate with the NTSB and the air carrier to ensure
that staffing for psychological, emotional, and spiritual support is sufficient for the
event.
18. Participate in the NTSB-coordinated assurances reviews, both on-scene and post-
response, to review the family assistance operation and legislative requirements,
resolve problem areas, and update operating plans and procedures.
19. Upon request, provide psychological, emotional, and spiritual care staff to public
locations where any NTSB-conducted public hearing and meetings, or
comparable proceeding, are being held or transmitted.
20. Coordinate directly with the FBI VSD if an event is determined to be an intentional
criminal act and the NTSB relinquishes investigative priority to the FBI. Coordinate
directly with the FBI VSD to determine their ongoing involvement in the response
under agreements the Red Cross has or makes with the FBI VSD.
DOS FSTs
1. Provide official notification to foreign governments of citizens involved in the
accident. Such notifications will take place after obtaining necessary information
on foreign passengers from the air carrier.
2. Assist the air carrier in notifying U.S. citizens who may reside in, or who are
traveling, outside the U.S. that a member of their family has been involved in an
aviation accident.
3. Assist the presiding medicolegal authority in acquiring the necessary information
to facilitate the identification of foreign national fatalities and to complete death
certificates.
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4. Assist in obtaining dental and medical records and DNA reference samples from
families of foreign national fatalities.
5. Assign a representative to the JFSOC to coordinate DOS-related issues, including
obtaining records (dental and medical) and DNA reference samples from the
families of foreign nationals, upon request. See Appendix 8 for JFSOC information.
6. Provide logistical and communications support in establishing contact with
foreign authorities and individuals abroad to aid the air carrier, the Red Cross, and
the NTSB in fulfilling their legislated duties, if possible.
7. Provide adequate personnel to assist the federal family assistance operation for
accidents involving significant numbers of foreign nationals, particularly for those
accidents involving international flights.
8. Provide interpretation and/or translation services (via DOS staff or a contracted
provider) as needed to facilitate communications with the families of passengers
and all interested parties, during family briefings.
9. Assist foreign air carrier employees and families of foreign nationals (both
fatalities and survivors) with entry into the U.S., extending or granting of visas to
eligible applicants, as determined necessary.
10. Respond to requests of the families of passengers for information and assistance,
as appropriate.
11. Coordinate with the necessary foreign mission(s) to facilitate consulate and
customs services for the return of PE to the country of destination, as applicable.
FBI FSTs
1. Provide the NTSB, upon request, an FBI ERT, and other FBI Laboratory assets to
assist with fatality documentation and identification as directed by the presiding
medicolegal authority.
2. If the FBI is asked to support the local response community with family assistance
services, assign a JFSOC liaison to coordinate with the NTSB, the air carrier, and
the Red Cross to ensure integration into the federal family assistance operation.
3. If the aviation accident is determined to be an intentional criminal act, assume
responsibility for the investigation from the NTSB; the FBI VSD will assume federal
family assistance activities, including the following:
3.1. Coordinate with the NTSB TDA to ensure an effective transfer of the
federal family assistance operation to reduce any additional distress to
families of passengers during the transition.
3.2. Coordinate with the air carrier and the Red Cross regarding any
ongoing responsibilities or roles they have for a federal criminal
investigation.
3.3. Coordinate with the NTSB regarding the transition of PE management.
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3.4. Coordinate with the air carrier regarding their role in the return of PE.
DHHS FSTs
1. Provide the resources of the NDMS, DMORT, the VIC team, and other fatality
management personnel, supplies, and equipment to assist the presiding
medicolegal authority and the NTSB with the examination and identification of
fatalities.
2. Provide, if necessary, a DPMU and the necessary personnel, equipment, and
supplies to augment the capabilities of the presiding medicolegal authority.
3. Follow the DMORT Standard Operating Procedures for National Transportation
Safety Board Activations.
4. Assign the necessary DMORT personnel, based on necessary skills and existing
capabilities, to assist the presiding medicolegal authority with fatality identification
and mortuary services.
5. Monitor the status of all incoming antemortem records, including dental, medical,
and DNA data, to ensure that all records have been received. Take steps to obtain
the missing records and radiographs.
6. Use a specially trained VIC team to interview families of passengers, both on- and
off-site, regarding antemortem identification and disposition of human remains.
7. Coordinate with the presiding medicolegal authority to integrate qualified
personnel into the morgue operation.
8. Assist the presiding medicolegal authority in notifying families of passengers of
positive identification, including an explanation of how identification was
determined, if necessary.
9. Ensure the accuracy of the chain of custody by reviewing documentation and
human remains prior to their release to the designated funeral director.
10. Assist the presiding medicolegal authority with the reassociation of human
remains following the identification process.
11. Provide the NTSB with contact information for the NOK, gathered from the
antemortem interview.
12. Employ a standard antemortem questionnaire and disposition-of-remains form
that can be adapted to meet local medical examiner and state requirements. The
form will be used to obtain directions from the lawfully authorized NOK regarding
their wishes for human remains that may later be identified as those of their family
member. Note: Information collected from families of passengers is strictly
confidential and is ultimately under the control of the presiding medicolegal
authority.
13. Coordinate with the presiding medicolegal authority regarding the management
of PE physically associated with human remains.
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DOD FSTs
1. Provide the use of a military installation, such as the Charles C. Carson Center for
Mortuary Affairs located at Dover Air Force Base, in support of mortuary
operations, if requested.
2. Provide resources from AFMES and AFDIL to assist in the identification effort and
to conduct appropriate DNA comparison testing on specimens submitted by the
presiding medicolegal authority. Note: AFMES and AFDIL personnel may travel to
the accident location to assist with victim identification.
3. Provide available medical and dental records and DNA reference samples of
fatalities who may have antemortem records based on prior or current military
service.
FEMA FSTs
1. Assign a JFSOC liaison to coordinate with federal, state, and local officials
concerning emergency management–related issues, if requested by the NTSB.
See Appendix 8 for more JFSOC information.
2. Provide personnel and communication assets to facilitate communication from the
accident location to the NTSB ROC, if requested by the NTSB.
3. Provide personnel to assist in public information dissemination, including
assistance in establishing and staffing external media support centers at the
accident location, wreckage hangar, locations associated with the family
assistance operation, airport(s) and other areas that may attract media interest, if
requested by the NTSB.
FPS FSTs
1. Coordinate with the NTSB to determine security vulnerabilities and
countermeasure requirements for location(s) associated with the NTSB
investigation (for example, the accident location, those associated with the family
assistance operation, and those for media briefings).
2. Conduct building and facility security risk assessments, upon request from the
NTSB; provide a threat assessment and recommendations for ensuring the
security of designated locations.
3. Ensure that sufficient certified, trained, and equipped uniformed personnel are
provided as deemed appropriate by the threat assessment, for each designated
location.
4. Provide protection for designated NTSB Board Members and NTSB staff during
the response.
5. Provide an FPS-operated mobile command vehicle to afford interoperable
communications and a secure environment for use by NTSB staff.
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6. Assume responsibility for investigations associated with FPS activities at NTSB-
designated locations as required, and share current intelligence with the NTSB, as
permitted by law, regulation, or order, at the affected location.
