FEDERAL FAMILY ASSISTANCE PLAN 

FOR AVIATION DISASTERS

PREPARED BY THE NATIONAL TRANSPORTATION 

SAFETY BOARD

August 1, 2000
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SUBJECT: Federal Family Assistance Plan for Aviation Disasters

1. REFERENCES. 

a. Presidential Executive Memorandum, Subject: Assistance to Families Affected by Aviation 

and Other Transportation Disasters, September 9, 1996

b. Public Law 104-264, Title VII, Aviation Disaster Family Assistance Act of 1996, October 9, 

1996 

c. Memorandum of Understanding between Department of Defense and National Transportation 

Safety Board, April 3, 1997 

d. Memorandum of Understanding between Department of Health and Human Services and 

National Transportation Safety Board, June 19, 1997 

e. Memorandum of Understanding between Department of Justice and National Transportation 

Safety Board, January 28, 1997

f. Memorandum of Understanding between Department of State and National Transportation 

Safety Board , June 18, 1997

g. Memorandum of Understanding between Federal Emergency Management Agency and 

National Transportation Safety Board, October 24, 1998

h. Statement of Understanding between American Red Cross and National Transportation 

Safety Board , September 28, 1998

i. Memorandum of Understanding between Department of Transportation and National 

Transportation Safety Board, , June 19, 1997

j. Department of Transportation and National Transportation Safety Board, Final Report, Task 

Force on Assistance to Families of Aviation Disasters, October 29, 1997

k. Public Law 105-148, Foreign Air Carrier Family Support Act, December 16, 1997

2. PURPOSE. This plan assigns responsibilities and describes the airline and Federal response to 

an aviation crash involving a significant number of passenger fatalities and/or injuries. It is the basic 

document for organizations which have been given responsibilities under this plan to develop 

supporting plans and establish procedures. 
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3. IMPLEMENTATION. This plan shall be executed in full or part by the Director, Office of Family 

Affairs (FA), at the direction of the Chairman, National Transportation Safety Board (NTSB).

a. The Director shall recommend to the Chairman activation of the plan or portions thereof.

b. Federal agencies that have responsibilities under this plan shall maintain control of their 

resources while supporting the NTSB in accordance with the above references. (For 

purposes of this document the terms “Federal agencies” and “Federal staff” includes the 

American Red Cross.)

c. The NTSB, through its communications center, will initiate notification of Federal agencies to 

activate planning and coordinating with the airline an appropriate response based upon the 

magnitude of the aviation crash. As information about the incident becomes more concise, 

additional resources may be called to support the incident. Upon direction from the Director, 

the NTSB communications center will notify any or all of the following operations centers:

(1) American Red Cross (ARC) (703) 206-8822

(2) Department of State (DOS) (202) 647-1512

(3) Department of Health and Human Services (DHHS) (301) 443-1167 Ext. 0 

 1-800- 872-6367 

(4) Federal Bureau of Investigation Operations Center (FBI) (202) 324-6700

(5) Federal Emergency Management Agency (FEMA) (202) 898-6100 

(6) Department of Defense (DOD) (703) 697-0218

(7) Department of Justice (DOJ) (202) 514-5000

d. The role of the NTSB can generally be described as a coordinator to integrate the resources 

of the Federal Government and other organizations to support the efforts of the local and state 

government and the airline to meet the needs of aviation disaster victims and their families. The 

NTSB assists in coordinating Federal resources to local authorities and the airlines. Family 

counseling, victim identification and forensic services, communicating with foreign 

governments, and translation services are among the services with which the Federal 

government can help local authorities and the airlines deal with a major aviation disaster. It is 

recommended that the local government emergency services provide a representative to the 

Joint Family Support Operations Center (JFSOC) to participate in the local, airline, and 

Federal response. Details of the JFSOC are provided at Appendix B. It is recognized that 

the JFSOC layout is dependent on the facilities and rooms available at the time. 
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e. Local authorities will maintain the same jurisdiction in regards to the initial accident response, 

recovery, security, site cleanup and medical examiner operations. The NTSB will lead the 

aviation crash investigation until it is determined to have been caused by a criminal act. The 

FBI will then become the lead investigative agency.

f. The airline continues to have a fundamental responsibility to the victims and their families 

affected by an aviation crash. The airline is primarily responsible for family notification and all 

aspects of victim and family logistical support. Although their major responsibilities have not 

changed, the “Aviation Disaster Family Assistance Act of 1996” and the “Foreign Air Carrier 

Family Support Act” places the airline, as well as other support organizations, in a more 

collaborative relationship with families. 

g. All personnel involved in providing services to assist the victims and their family members 

should be trained in crisis response and must demonstrate compassion, sympathy, technical 

expertise, and professionalism. Information provided by family members and victims through 

discussions, interviews, counseling, and any other form of exchange of personal information 

must remain confidential and shall not be used for future litigation purposes. 

4. SCOPE.

a. This plan pertains to any domestic or foreign commercial aviation crash that occurs within the 

United States, its territories, possessions and territorial seas. 

b. This plan is written with three possible crash scales supporting organizations should consider in 

their development of supporting plans and asset allocation calculations. 

(1) Crash scale 1. This involves an aviation crash that involves 100 or fewer passengers and 

crew who are either fatalities or require medical assistance.

(2) Crash scale 2. This involves an aviation crash that involves 101 - 200 passengers and 

crew who are either fatalities or require medical assistance. 

(3) Crash scale 3. This involves an aviation crash that involves 201 or more passengers and 

crew who are either fatalities or require medical assistance.

5. ASSUMPTIONS.

a. The Chairman of the NTSB will request Federal agencies to support the NTSB in accordance 

with the above references. 

b. The local medical examiner/coroner having jurisdiction will allow the Federal government to 

provide assistance. (It is noted that there are differences between a medical examiner and 
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coroner. For purposes of this document the term “medical examiner” is used interchangeably 

with “coroner”.) 

c. There will be fatalities and seriously injured passengers and crew for each of the above three 

scenarios.

d. Large numbers of families of fatalities will travel to the city closest to the incident and will utilize 

the accommodations provided by the airline. The remainder of families of fatalities will remain 

at their local residence.

e. Most, if not all, families of seriously injured personnel will travel to the location where the 

injured are hospitalized, and once the injured are released from the hospital, will return home. 

6. GENERAL. The family assistance mission tasks that follow an aviation crash are:

a. Make initial notification to family members of victims involved in the aviation crash based on 

manifest documents and other available information.

b. Monitor search and recovery operations conducted by the local jurisdiction and offer 

assistance where needed. 

c. Determine the status and location of victims.

d. Obtain approval of the local medical examiner to provide Federal assistance.

e. Assist the local medical examiner in the identification of fatalities and the notification of 

their families. 

f. Provide psychological and logistical support and services to victims and their family 

members.

g. Provide daily briefings to families on the progress of recovery efforts, identification of victims, 

the investigation, and other areas of concern.

h. Arrange for a memorial service for the fatalities and their family members. 

i. Provide for the return of personal effects.

j. Maintain contact with victims and their families to provide updates on the progress of the 

investigation and other related matters. 

7. RESPONSIBILITIES. There are seven Victim Support Tasks (VSTs). VSTs are tasks which 

participating organizations may be required to perform based upon the size and circumstances of 

the actual incident. The seven VSTs are NTSB Tasks; Airline Tasks; Family Care and Mental 

Health (ARC); Victim Identification, Forensic and Medical Services (DHHS); Assisting Families of 

Foreign Victims (DOS); Communications (FEMA); and Assisting Victims of Crime (DOJ). Each 
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aviation crash is unique, and all of the following responsibilities may or may not be employed. 

Agencies and organizations should consider this and the three crash level scales when developing 

their supporting plans. 
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a. NTSB: VST 1, “NTSB Tasks”.

(1) Coordinate Federal assistance and serve as liaison between airline and family members.

(2) Provide NTSB toll free number to family members to obtain information on the recovery 

and identification effort, accident investigation, and other concerns. This number will 

normally be provided to families on site during the initial family briefing and repeated in 

subsequent briefings. The NTSB will coordinate with the airline to have airline family 

representatives provide the toll free number to the families that do not travel to the site. 

(3) Request a copy of the passenger manifest from the airline.

(4) Coordinate with Department of Transportation for marine search and rescue.

(5) Review with the airline family support logistics with special consideration toward security, 

quality of rooms and facilities, and privacy for family members. 

(6) Integrate local and Federal government officials and airline staff to form a Joint Family 

Support Operations Center to facilitate close coordination of services and activities.

(7) Coordinate assistance effort with local and state authorities, to include the medical 

examiner, local law enforcement, emergency management, hospitals, and other 

emergency support personnel. 

(8) Maintain communications with the involved airline to receive frequent updates on the 

status of notification of victims’ families.

(9) Conduct daily coordination meetings with the airline and local and Federal government 

representatives to review daily activities, resolve problem areas, and to synchronize 

future family support operations and activities. An example of information that may be 

needed at the daily coordination meeting is at Appendix B.

(10) Provide and coordinate family briefings to those at the site and those who decide not to 

be at the site. 

(11) Discuss with the medical examiner the subject of DNA testing: i.e., under what 

conditions would it be used; to what extent would it be used; whom the medical 

examiner would use to collect and test samples; and whom would pay for testing of 

samples. 

(12) Coordinate with investigator in charge for a possible visit to the crash site for family 

members. 

(13) Provide information releases to the media pertaining to the types of support that have 

been brought in to assist family members. 
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(14) Maintain contact with family members to keep them informed about the progress of the 

investigation and continue to meet their future needs. 

a) Approximately 2 to 4 months after the date of the crash, factual reports written by 

the NTSB investigators are made available in a public docket. Families should be

informed approximately 4 weeks prior to the factual report being made public that 

they may request the NTSB provide a copy of the report. The report will be 

provided to them at no cost.

b) Families will also be notified of a public hearing concerning the crash if the NTSB 

decides a public hearing is necessary. The hearing is designed to gather additional 

facts from individuals selected to testify. Travel and lodging for the hearing is at the 

family’s expense. Families will be provided seating and copies of official exhibits 

discussed at the hearing. 

c) Families will be invited to attend, at their own expense, the board meeting at 

NTSB’s Washington, DC, headquarters. The NTSB investigative staff presents to 

the full five Member Board a draft accident report for member discussion and 

approval at this board meeting. This report documents the NTSB’s determination of 

the probable cause of the crash and recommendations on ways to prevent future 

aviation crashes. 

(15) Consolidate and review after action reports to resolve problem areas and update 

operating plans and procedures.

b. Airline: VST 2, “Airline Tasks”. 

(1) In addition to accident notification required by 49 Code of Code of Federal Regulations 

(CFR) 830.5, notify the NTSB communications center at (202) 314- 6290 immediately 

upon knowledge of a crash. 

a) Provide place of incident (or general vicinity of incident), number of passengers and 

crew based on preliminary departure information and number of injured and fatalities 

(if known).

b) Provide flight number, origination, connection points and final destination (if known), 

and whether the flight was domestic or international. 

c) Provide name and telephone number of the person who is in overall charge of the 

incident site.

d) Provide name, telephone number and location of the hotel that has been designated 

as the JFSOC.
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e) Provide name and telephone number of the person responsible for the passenger 

manifest. 

f) Provide name and telephone number of the person responsible for family notification. 

(2) Provide the public a reliable publicized toll free number with sufficient telephone capacity. 

a) When disseminating the toll-free number, the carrier should ask the media to inform 

the public that this number should only be used by individuals who have a reason to 

believe a family member or friend was a passenger on the flight. 

b) The media notice should emphasize that initial calls to the airline are to provide a 

point of contact with the airline, provide basic flight information to the caller, and 

gather information so the airline may obtain points of contact for each passenger. 

c) The media should be asked to reemphasize the carrier involved, the flight number, 

airport of origination, connection and final destination. This may reduce the number 

of callers who know someone who was on another carrier’s flight traveling to a 

different destination. 

d) The “message” heard by callers on hold should urge anyone who does not have 

reason to believe that a family member or friend was a passenger or is unable to 

provide relevant information on the passenger to please clear the line. The 

“message” also should restate the carrier involved, the flight number, airport of 

origination, connection and final destination.

(3) Provide timely notification to family members of passengers which may consist of a 

continuous process of updates based upon manifest reconciliation with boarding 

documents (ticket lifts, ticket readers, final gate check-in name list). It is recommended 

that passenger information be provided to family members as it becomes known. Do not 

wait until all names on the check-in manifest are confirmed before notifying individual 

family members. For example, the family should be provided information as to whether 

the passenger is shown checked in or not, but that the passenger’s status cannot be 

confirmed until the check in manifest is reconciled with the boarding documents collected 

at the gate. Once contact is established with family members, it must be maintained,

regardless if additional information becomes available. Personnel should be trained in 

crisis response and techniques to notify a person that a family member may have been 

involved in a disaster. 

(4) Provide the NTSB, upon request, the most current reconciled copy of the passenger 

manifest. Each copy should be numbered or annotated so it can be distinguished from 

previous copies.

(5) Secure facilities at departure, arrival, and connecting airports where family members may 

be initially gathered to protect them from media and solicitors, as well as to receive 
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continuous updates on the reconciliation of the passenger manifest and other information 

on the crash. If at a secured facility, family members will be notified personally and 

privately by personnel trained in crisis response and death notification that their loved one 

was on the plane.

(6) Provide logistical support to family members who desire to travel to the incident site (or 

to a hospital location), which includes, but is not limited to, transportation, lodging, meals, 

security, communications, and incidentals. Factors to consider in selecting a facility are 

quality of rooms and size of facilities, privacy for family members, and relative location to 

medical examiner’s office, temporary morgue, airport operations, crash site, NTSB 

investigation Headquarters, and medical treatment facilities. 

(7) Inform family members (or family friends or clergy who are with the family) at an 

appropriate time, but as early as possible after being notified, that it is critical that they 

contact their family dentist to obtain the dental records and dental x-rays of their loved 

one. Ask the family to have the records and x-rays overnight expressed to the address of 

the hotel where the JFSOC will be located. Packages should be addressed to the 

Deputy Director, FA, NTSB. If the family is coming to the site within the next 48 hours, 

the family may arrange to hand carry these documents. It should be explained that dental 

records and x-rays are critical in the victim identification process. If the family is already 

at the site or arrives without making arrangements with their dentist, Disaster Mortuary 

Operational Response Team (DMORT) personnel will coordinate with the family’s 

dentist to obtain dental records and x-rays. 

(8) Make provisions for a JFSOC to include space, communication and logistical support for 

the assisting local and Federal staff. Details of the JFSOC are provided at Appendix B.

(9) Make provisions for private areas within the hotel for DMORT and medical examiner 

personnel to collect ante mortem information from families at the site. Also provide quiet 

space and communications for DMORT and medical examiner personnel to 

telephonically collect ante mortem information from families who decide to stay away 

from the site. Plan to provide the following rooms for crisis counseling/DMORT use:

a) Crash scale l: 6 rooms

b) Crash scale 2: 12 rooms

c) Crash scale 3: 15 rooms

 Support requirements for planning purposes are at Appendix B. These facilities will also 

be used to inform families when positive identification has been made by the medical 

examiner. By having the DMORT/medical examiner team representative located within 

the family assistance center, transportation of victim’s remains and other logistical 
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considerations can be better coordinated without having an airline reservation specialist at 

the morgue location. 

(10) Provide DOS representative necessary information on foreign passengers to facilitate 

interaction with appropriate foreign government embassies.

(11) Provide notification to family members prior to releasing passenger names to the public. 

Family members should be given appropriate time to notify other family members and 

friends prior to public release of the victim’s name. While it may be necessary for some 

families to have more than one contact point with the airline, families may be requested to 

designate one primary contact point for purposes of information sharing among the 

family. This will allow the airline to use their personnel in a more efficient manner. The 

carrier is under no obligation to release the victim’s name if family members do not wish 

the victim’s name to be released.

(12) Inquire at the time of notification or soon after if family members desire, ARC crisis 

assistance or an ARC person just to talk to. If they are undecided or say no, ask them 

to inform their airline representative if they reconsider. Pass all requests for assistance to 

the ARC representative who will coordinate for an ARC staff member in the family 

member’s local area to contact the family.

(13) Provide the media with continuous updates on the progress of the notification process, 

such as providing the number of victims’ families notified as of a certain time and the 

number remaining to be notified. This process will continue until all victims’ families have 

been notified.

(14) Assist family members as they travel to and from the site by informing flight crews and 

airport personnel that family members are on particular flights. At departure, connecting, 

and arrival airports, family members should have airline personnel meet and assist them 

while on airport grounds. If necessary, seek assistance from other carriers who may have 

a larger presence at the airport. Assist family members as they depart the incident site 

and provide a contact person who will continue to be the airline interface with the family 

after the family returns to their residence.

(15) Provide a contact person to meet family members as they arrive and accompany them at 

the incident site. This person will be responsible for assisting the family while at the site 

and should continue to be the airline interface with the family until the family returns to 

their residence. At that time the airline may decide to designate a single contact person 

for all family members.

(16) Maintain daily contact with family members who do not travel to the incident site by 

providing a contact person from the airline. 

(17) Establish a badging system to identify family members. 
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(18) Establish a joint liaison with ARC at each supporting medical treatment facility to track 

the status of injured victims and to provide assistance to their families. 

(19) Develop procedures for the handling of personal effects not being held as evidence for 

purposes of a criminal or accident investigation. Utilizing a third party who has 

experience in the return of personal effects associated with aviation disasters should be 

considered. Done properly it is time consuming and resource intensive. Consideration 

should also be given to protecting airline employees from re-experiencing the 

crash, which could result in future psychological and physical health problems. Provisions 

will be made for unclaimed possessions to be retained for at least 18 months from the 

date of the crash as required by law. 

(20) Designate an individual who will be the airline’s representative to the Deputy Director of

FA. This individual will travel to various locations, such as accident site, morgue, 

JFSOC, and family assistance center with the Deputy Director of FA. The designated 

individual should have the authority or ready access to those who have sufficient authority 

to make decisions on behalf of the airline.

(21) Consult with family members about any airline-sponsored monument, including any 

inscriptions. 

(22) Provide reasonable reimbursement to the ARC for the services provided to the family, 

airline, and supporting personnel.

(23) Coordinate with DOJ in arranging meetings with family members to explain their rights 

under the victims of crime legislation, if the crash is declared a crime.

(24) Provide the same support and treatment of families of non-revenue passengers (and any 

other victim of the accident) as for revenue passengers.

(25) Participate in daily coordination meetings to review daily activities, resolve problem 

areas, and to synchronize future family support operations and activities. Information that 

may be needed at the daily coordination meeting is at Appendix B. This information is 

helpful to plan logistical requirements, such as food, lodging, and transportation, as well 

as providing everyone with an update of current and future support operations. 

c. ARC: VST 3, “Family Care and Mental Health”. 
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(1) Provide a representative to the JFSOC to coordinate with other members of the 

operations center staff ARC related issues and family requests for assistance. Additional 

personnel may be needed for crash scale 2 or 3 scenarios.

(2) Coordinate and manage the numerous organizations and personnel that will offer 

counseling, religious and other support services to the operation. A staff processing 

center, away from the Family Assistance Center, should be set up to screen, monitor and 

manage personnel (paid and volunteer) so that families are not outnumbered and 

overwhelmed by well-intentioned organizations and individuals. The staff processing 

center will also be responsible for the badging of personnel, matching volunteer skills with 

organizational needs, assigning work schedules, briefing and debriefing of support staff, 

personnel and planning for future activities.

a) Qualified local resources should be integrated with ARC personnel to provide crisis 

and grief counseling, food services, administrative assistance, and other support 

services to family members and support organizations. 

b) Crisis and grief counseling should be coordinated with the airline to contact and set 

up an appointment, if appropriate, with family members who do not travel to the site. 

(3) Employ an accounting system to accurately record cost data in specific cost categories 

for later reimbursement.

(4) Activate local, state and national ARC personnel to provide crisis and grief counseling to 

family members and support personnel. This includes coordinating with the airline to 

contact and set up an appointment, if appropriate, with family members who do not 

travel to the site.

(5) Assess the needs and available resources of other agencies and coordinate with them to 

ensure ongoing emotional support for workers during the operation and provide 

debriefings before departure.

(6) Establish a joint liaison with the airline at each supporting medical treatment facility to 

track the status of injured victims and to provide assistance to their families. 

(7) Coordinate with the airline to establish areas for families to grieve privately.

(8) Coordinate on site child care services for families who bring young children.

(9) Arrange a suitable inter-faith memorial service days following the crash and a memorial 

service for any future burial of unidentified remains.

(10) Provide families, at their request with referrals to mental health professionals and support

groups that are in the family member’s local area.
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d. DHHS: VST 4, “Victim Identification, Forensic and Medical Services”. 

(1) Provide a representative to the JFSOC to coordinate with other members of the 

operations center staff DHHS related issues and family requests for assistance. 

Additional personnel may be needed for crash scale 2 or 3 scenarios.

(2) Provide necessary DMORT team members to assist the medical examiner in victim 

identification and mortuary services. Configuration of team and skills required will be 

determined by details of the crash, medical examiner’s request for assistance, and crash 

scale 1, 2, or 3 factors. 

(3) Provide, if appropriate, a portable morgue facility and the necessary equipment and 

supplies to augment the local medical examiner’s capabilities. 

(4) Monitor the status of incoming dental records and x-rays to insure that all records have 

been received. If not, take steps to obtain the records and x-rays. Request assistance 

from DOS for acquiring necessary records for foreign passengers and crew.

(5) Develop a standard ante mortem questionnaire and disposition of remains form that can 

be adapted to meet local medical examiner and state requirements. The disposition of 

remains form will be used to obtain directions from the lawfully authorized next of kin on 

what he/she desires the medical examiner to do with remains that may later be identified 

as those of their family member. Information collected from family members is strictly 

confidential and will be used only for medical examiner purposes.

(6) Interview family members who are both on site and off site for ante mortem identification 

information and disposition of remains information. 

(7) Coordinate with the medical examiner to integrate non-DMORT personnel who are 

providing assistance to the medical examiner’s office into the morgue operation.

(8) Assist the medical examiner in notifying family members of positive identification and 

include an explanation of how identification was determined. Notification team may 

include, if appropriate, ARC crisis counselor, clergy, and airline family escort. 

(9) Check remains prior to release to local funeral director. Insure that all documentation is 

correct and a chain of custody is established. 

(10) Provide the NTSB with names of victims and their next of kin (NOK), relationship to 

victim, and addresses and telephone numbers of NOK. A source for this information is 

the ante mortem questionnaire. 

(11) Assist the airlines, if requested, with finding next of kin to be notified by use of 

established cooperative relationships with local, state, and Federal law enforcement 

agencies.
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(12) Provide, if requested, professional medical staff and technicians to assist in the care and 

recovery of injured victims. 

(13) Assist the ARC, if requested, with additional trained and experienced crisis counselors. 

e. DOD: Supports DHHS in VST 4, “Victim Identification, Forensic and Medical Services”. If 

required:

(1) Provide the use of a military installation, such as Dover Air Force Base, for mortuary 

support operations.

(2) Provide personnel from the Armed Forces Institute Pathology (AFIP), Office of the 

Armed Forces Medical Examiner (OAFME), to assist in the identification effort and to 

conduct appropriate DNA comparison testing on specimens submitted by the medical 

examiner.

(3) Provide assets from the US Navy’s Support Salvage (SUPSALV) for the purposes of 

offshore search, salvage, and recovery of non-military aircraft wreckage, when these 

services are not locally available. SUPSALV is delegated the responsibility for technical, 

and when tasked, operational control of aircraft search, identification, and/or underwater 

recovery operations. NTSB and SUPSALV will jointly determine if assets should be 

deployed and SUPSALV will advise the NTSB on alternate search and recovery 

methods that may be employed. 

(4) Provide within 24 hours a trained Graves Registration and Recovery Team to assist in 

the recovery efforts at the crash site.

(5) Provide within 72 hours available dental records and x-rays of military fatalities that are 

active duty, retired, veteran, or reserve.

(6) Provide pouches and transfer cases for human remains. 

f. DOS: VST 5, “Assisting Families of Foreign Victims”. If required:

(1) Provide a representative to the JFSOC to coordinate with other members of the 

operations center staff DOS related issues, such as obtaining dental records and dental 

x-rays from foreign families and responding to family requests for assistance. Additional 

personnel may be needed for crash scale scenarios involving international flights.
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(2) Provide official notification to foreign governments that have citizens involved in the 

aviation incident after obtaining necessary information on foreign passengers from the 

airline.

(3) Assist the airline in notifying US citizens who may reside or are traveling outside the 

United States that a member of their family has been involved in an aviation accident.

(4) Provide translation services to facilitate communications with the victim’s family and all 

interested parties.

(5) Assist the airline, the Federal support staff, and others in maintaining daily contact with 

foreign families who do not travel to the United States.

(6) Assist foreign air carrier’s employees and families of foreign victims with entry into the 

United States and extend or grant visas.

(7) Facilitate necessary consulate and customs services for the return of remains and 

personal effects into the country of destination.

(8) Assist in the effort to provide the medical examiner the necessary information on foreign 

victims to complete death certificates.

g. FEMA: VST 6, “Communications”. If required:

(1) Provide a representative to the JFSOC to coordinate with other members of the 

operations center staff and local and state officials emergency management related issues. 

Additional personnel may be needed for crash scale scenarios involving a major city 

emergency response.

(2) Provide personnel, upon request of the NTSB, to assist in public information 

dissemination, to include assistance in establishing and staffing external media support 

centers at the crash site, wreckage hanger, family support operations center, airport, and 

other areas that may attract media interest. 

(3) Provide voice and data communication assets to communicate from the incident 

site to 

(4) the NTSB Communications Center.

h. DOJ: VST 7, “Assisting Victims of Crime”. If required: 
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(1) Provide, upon NTSB request, a FBI Disaster Squad with sufficient personnel to 

obtain fingerprint identification of aviation crash fatalities. This team will work with the 

medical examiner and the DMORT personnel at the morgue location. 

(2) The following responsibilities will only be implemented if the airline disaster is officially 

declared a criminal act: 

a) Provide a representative to the JFSOC to coordinate with other members of the 

operations center on DOJ-related issues.

 b) Provide information to victims and their family members, on site and off site, as 

required under the Victims of Crime Act of 1984, the Victim and Witness Protection 

Act of 1982 as amended, other relevant statutes, and the 1995 Attorney General 

Guidelines for Victim and Witness Assistance. 

c) Assist the ARC, if requested, with additional trained and experienced crisis 

counselors through the Office for Victims of Crimes Community Crisis Response 

Program.

d) Provide updates to victims and their family members on the progress of the criminal 

investigation.

8. COORDINATING INSTRUCTIONS.

a. The point of contact for this plan is the Deputy Director, FA, NTSB. The telephone number 

is (202) 314-6185. The office fax number is (202) 314-6638.

b. Upon implementation and until the NTSB’s family affairs staff is situated at the JFSOC, calls 

should be directed to the NTSB Communications Center at (202) 314-6290 (voice) or (202) 

314- 6293 (fax). The Communications Center will pass any information or messages to the 

appropriate NTSB family affairs staff member.

c. It is recommended that supporting agencies make the same individual or individuals available 

to each aviation crash as their representative to the JFSOC. Major aviation incidents do not 

occur frequently. When they do occur, however, people and organizations in the past have 

had very little or no experience dealing with the many sensitive issues of an aviation disaster. 

By developing a core group of experienced staff, operational procedures will continually 

improve and individual and group experiential bases will increase, all culminating in the better 

delivery of support services to victims and their families. Agencies are not precluded from 

designating and training alternate personnel.

d. It is recommended that Federal personnel involved at the incident site wear clothing articles, 

such as hats, shirts, and/or jackets that identify the agency or group with which they are 

associated. This will be helpful for families, as well as for all those involved in supporting the 

operation. 
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e. Agencies that participate in supporting victims and their family members under this plan are 

requested to submit an after action report to the Deputy Director, FA, within 30 days of 

completion of their tasks. This information must be captured so appropriate lessons can be 

derived, corrective actions taken, and plans changed accordingly. A sample format is at 

Appendix C. 

f. Other than the media releases by the airline on the progress of family notification and release 

of passenger names described in paragraph 7b, all media inquiries and releases that pertain to 

the family affairs operation will be referred to the NTSB family affairs officer. The NTSB will 

advise and assist the local medical examiner on any media affairs in his or her area of 

responsibility. Support organizations may provide press releases or briefings on their specific 

agency mission/action during this event. There are no restrictions on victims or family members 

meeting with the media if they so desire. 

g. Due to differences in individual airline and airline underwriter policies, as well as the aviation 

crash itself, reimbursement of costs associated with participation in an aviation disaster will be 

made after discussions with the airline and their insurance underwriter. 

 

ENCLOSURES

Appendix A Drafted Media Release and Background Papers

Appendix B Joint Family Support Operations Center

Appendix C Suggested After Action Report Format 

Appendix D Questions and Answers
20

APPENDIX A

DRAFT MEDIA RELEASES AND BACKGROUND PAPERS

Media Topic

Federal Agencies Supporting the Victims of (Accident)

National Disaster Mortuary Operational Response Team (DMORT)

Victim Identification Process

Aviation Disaster Family Assistance Act of 1996 (Background Paper)

Return of Personal Effects (Background Paper)
18

FOR IMMEDIATE RELEASE: 

FEDERAL AGENCIES SUPPORTING THE VICTIMS OF (ACCIDENT)

(LOCATION)— The Aviation Disaster Family Assistance Act of 1996 (PL 104-264, Title 

VII), was passed by the Congress and signed by President Clinton on October 9, 1996. This Act gave 

the National Transportation Safety Board (NTSB) the additional responsibility of aiding the families of 

victims of aircraft accidents occurring in U.S. territory. An earlier Presidential Executive Memorandum, 

dated September 9, 1996, complements the new law, in which President Clinton designated the NTSB 

as the coordinator of Federal services for families of major transportation disasters. 

The NTSB, in a cooperative effort with local, state and (AIRLINE) authorities, is coordinating 

Federal support to assist (CITY) in meeting the needs of the victims’ families of (ACCIDENT). 

Federal and other agencies that are involved in the family support area are: (American Red Cross 

(ARC); Department of State (DOS); Department of Health and Human Services (DHHS); 

Federal Emergency Management Agency (FEMA); Department of Justice (DOJ); and

Department of Defense (DOD). 

The ARC is providing crisis and grief counseling not only to the families that are here in (CITY), 

but also for those families who have decided to remain home. The ARC has activated local, state, and 

national ARC personnel to augment local resources to support the families affected by this tragic 

disaster. ARC personnel and local volunteers are also at key locations, such as the airport, family 

assistance center and the morgue, assisting all the support workers who have contributed so much to 

this operation.

 The Department of Health and Human Services (DHHS) is primarily responsible for assisting 

the (CITY) medical examiner in the identification and return of deceased victims to their families. 

 The National Disaster Mortuary Operational Response Team (DMORT) is currently assisting 

the city medical examiner. The team is composed of forensic pathologists, odontologists,

anthropologists, finger print experts, and other technical personnel. DHHS is also providing a fully 

equipped mobile mortuary to expand the medical examiner’s capabilities.

(Since there are foreign passengers involved in this accident, The Department of State 

(DOS) is assisting the airline in officially notifying the victim’s government and helping those 

affected foreign families travel to the US. They are also providing translation services to 

facilitate communication with all interested parties.)

(The NTSB has also called on the Federal Emergency Management Agency (FEMA) 

to augment NTSB public information efforts with additional staff. This will enable the NTSB 

to staff additional media support locations, such as XXXXX)
19

(Now that this tragedy has been officially declared a criminal act by (LAW

ENFORCEMENT AGENCY), the Department of Justice (DOJ) is providing information to 

family members on the services and assistance provided under the Victims of Crime Act of 

1984. Such services and assistance may include compensation for loss of support, loss of 

wages, medical and mental health counseling expenses, and funeral costs. DOJ is also 

responsible for keeping the family members up to date on the progress of the criminal

investigation.)

 
20

FOR IMMEDIATE RELEASE: 

DISASTER MORTUARY OPERATIONAL RESPONSE TEAM (DMORT)

(LOCATION)—Immediately upon being notified of the (ACCIDENT), the National

Transportation Safety Board contacted the local medical examiner (NAME) to jointly assess the 

situation to determine if the Federal government can assist in the recovery and identification of fatalities 

of (ACCIDENT). 

(ME’s name) requested Federal assistance and the NTSB requested the Office of Emergency 

Preparedness, United States Public Health Service (USPHS) to activate the Disaster Mortuary

Operational Response Team (DMORT). Approximately (time and date) the first elements of 

DMORT arrived on site. 

The DMORT members are composed of private citizens each with a particular field of

expertise. Their licensure and certification is recognized by all states and they are compensated for their 

duty time by the Federal government. They will assist the medical examiner with recovery,

identification and body preparation of the deceased victims. The team consists of forensic pathologists, 

medical examiners, odontologists, anthropologists, funeral directors, finger print experts, and other 

skilled technicians. Many have experience with other aviation disasters, as well as experience involving 

natural disasters. 

The NTSB also requested the delivery of an emergency mobile mortuary. The facility, which is 

maintained in Rockville, Maryland, contains a complete morgue with the necessary prepackaged

equipment and supplies to support each workstation. It (arrived...time/date) (is expected to arrive 

approximately time/date). It (has been/will be) located in the vicinity of (location) and (is/will be)

considered a secure site. 

This has been a cooperative effort between local, state, and Federal officials, as well as

(airline) with the shared goal of recovering, identifying and returning all victims of this disaster to their 

loved ones as quickly as possible. 
21

FOR IMMEDIATE RELEASE: 

VICTIM IDENTIFICATION PROCESS

(LOCATION)—(NAME), the local medical examiner is leading the effort to identify the 

victims of (ACCIDENT). As the medical examiner, (NAME) is legally responsible and retains 

jurisdiction on victim identification and cause of death determination.

The Aviation Disaster Family Assistance Act of 1996 designates the National Transportation 

Safety Board (NTSB) to coordinate Federal assistance in response to aviation accidents, such as the 

(ACCIDENT). The NTSB, at the request of (NAME), has provided the medical examiner’s office 

the services of the Disaster Mortuary Operational Response Team (DMORT). The team consists of 

forensic pathologists, medical examiners, odontologists, anthropologists, funeral directors, finger print 

experts, and other skilled technicians. Many have experience with other aviation disasters, as well as 

experience involving natural disasters. The NTSB also requested the delivery of an emergency mobile 

mortuary, which is maintained in Maryland. It contains a complete morgue with the necessary

prepackaged equipment and supplies to expand the operational capacity of the medical examiner’s 

office.

The identification process is very deliberate and time consuming. Consequently, family

members and the media are cautioned not to expect immediate identifications to be made. In some 

cases, unfortunately not all victims may be identified. To minimize this possibility, the NTSB has called 

on this team of experienced experts.

The identification process utilizes a number of media to make a positive identification. The 

process may start with documents found on the victim, as well as descriptions of clothing, jewelry, and 

other characteristics described by family members. Family members have been requested to provide 

dental records and x-rays that will assist the forensic odontologists with their work. The fingerprint 

experts of the FBI Disaster Squad will also make fingerprint comparisons. Forensic pathologists and 

anthropologists can also assist by providing information on general age, sex, size, color of hair and eyes, 

and race of the victim. Based upon past medical information collected from family members, they may 

be able to determine a victim by a previous broken arm that was reported by the family and the 

comparison of a x-ray taken by the medical examiner. Collectively, all these procedures’ findings must 

support one another prior to a positive identification being determined by the medical examiner. 

Once (NAME) makes a positive identification, the medical examiner’s office will personally 

notify the victim’s family. Health care and other support professionals will be available to assist family 

members through this experience. 

 
22

FOR BACKGROUND INFORMATION

AVIATION DISASTER FAMILY ASSISTANCE ACT OF 1996 (PL 104-264, Title VII)

The National Transportation Safety Board (NTSB) has been investigating the nation's aviation 

accidents for nearly thirty years and has been to the scene of nearly 100,000 general and commercial 

airplane accidents. The Aviation Disaster Family Assistance Act of 1996 (PL 104-264, Title VII), was 

passed by Congress and signed by President Clinton on October 9, 1996. The Act gave the NTSB the 

additional responsibility of aiding the families of victims of aircraft accidents. The new law is

complemented by an earlier Presidential Executive Memorandum dated September 9, 1996, in which 

President Clinton designated the NTSB as the coordinator of Federal services for families of major 

transportation disasters in the U.S. This authority enables the NTSB to harness the collective resources 

of the Federal government and direct aid to any area in which it is needed. 

Before President Clinton’s Presidential Memorandum, the families of people killed or injured in 

a commercial aircraft accident had been primarily assisted in the aftermath of the accident by the 

involved airline. Often local and state agencies, including volunteer organizations also responded, but 

often times the effort was uncoordinated and divisive. While the airline remains a major participant, the 

NTSB is now able to apply Federal resources to augment local and state efforts and coordinate the 

overall family assistance support system.

The following are highlights of the Aviation Disaster Family Assistance Act of 1996:

1. The Chairman of the NTSB designates and publicizes the name and telephone number of the 

Director of the Office of Family Affairs who will be the liaison between family members and the airline.

2. The Chairman of the NTSB designates a nonprofit organization (American Red Cross) 

whose primary responsibility will be to coordinate the emotional care and support to victims and their 

families. 

3. Upon request, the airline will provide a copy of the latest available passenger manifest to the 

Director of the Office of Family Affairs.

4. No person (including a State or political subdivision) will impede the ability of the NTSB 

and/or the Director of the Office of Family Affairs to carry out its responsibilities or the ability of the 

families of passengers involved in the accident to have contact with one another.

5. Provides a 30-day waiting period in which unsolicited communications by attorneys,

representatives of an attorney, insurance company, or airline litigation representative to victims or their 

families are prohibited. 
23

FOR BACKGROUND INFORMATION 

RETURN OF PERSONAL EFFECTS

At the time victims of an accident are removed from the incident site, their personal effects are 

also being recovered. All recovered items are stored in a secure area. There are two types of personal 

effects, associated and unassociated. 

Associated personal effects are those personal items that can be identified to a specific

individual. Examples are items such as rings or earrings that are found on the victim or articles such as a 

wallet found in a carry on bag with driver’s license, credit cards, and other items with a specific 

person’s name. 

Unassociated personal effects are those items that can not be identified to a specific person. 

Examples may be a necklace or earrings found near, but not on, a victim or clothing that has spilled out 

of a suitcase. 

Sometimes authorities retain personal effects if needed as evidence or as part of the

investigation. Once the authorities no longer need retained items, the items are returned to the airline to 

be returned to the appropriate owner. 

The airline or their representative returns associated items by contacting the survivor or victim’s 

family and asking them how they would like the recovered items returned. The airline or its

representative then carries out the desires of the survivor or the victim’s family. 

The process for the return of unassociated personal effects is deliberate and time consuming. 

The primary problem is determining ownership of items that may number in the thousands. Normally, all 

items are first inventoried, numbered, and photographed. Once completed, a photo catalogue is 

produced and provided to all families who request a copy. Instructions are provided for claiming an 

item. Once all families have responded, items that are claimed by only one family are returned according 

to their instructions. Claims by more than one party must be substantiated and proven by pictures, 

invoices, or other means. The item in question is returned once ownership is determined. 
24

APPENDIX B

Joint Family Support Operations Center

The Joint Family Support Operations Center (JFSOC) is an important element in the control 

and coordination of the responses and resources of supporting organizations involved in an aviation 

accident. 

Although the JFSOC concept is not new, historically there has been no element such as the 

JFSOC that has been utilized at an aviation accident that specifically focused on coordinating support to 

families affected by an aviation disaster. 

The JFSOC comes from the well-utilized and regarded concept of the Emergency Operations 

Center (EOC). It is a central location where participating organizations can be brought together to 

monitor, plan, coordinate, and execute a response operation maximizing the utilization of all available 

resources. Communication or sharing of information has always been and will always be the major 

obstacle to a successful emergency response. The JFSOC is designed to address this common 

problem. 

Organizations that will normally be involved in the JFSOC are the NTSB, airline, ARC, local 

government and law enforcement. Depending on the extent of the disaster, other organizations may also 

be involved in the JFSOC. They may be the Department of State (DOS), Department of Justice 

(DOJ), Federal Emergency Management Agency (FEMA), Department of Defense (DOD), and foreign 

consulates. 

The responsibilities of the JFSOC are as follows:

1. Serves as the central focal point for coordination and sharing of information among participating 

organizations.

2. Monitors ongoing family support activities and tracks mission activities of each organization, 

such as the status of the resources available, whether is has been assigned or is out of service.

3. Maintains current list of locations and key telephone numbers of involved organizations and 

personnel.

4. Provides responses to calls and requests or provides an appropriate hand off with the primary 

organization responsible for the issue.

5. Maintains a daily journal of organizational activities and responses.

6. Maintains a record of coverage of family affairs activities by the media.
25

The staff of the JFSOC is responsible for the following tasks:

1. Maintains current status of family support activities.

2. Prepares input for the NTSB family web site.

3. Provides input for the daily family briefing.

4. Agencies represented in the JFSOC will be briefed on activities concerning family support via 

daily briefings.

5. Coordinates and shares information among all organizational representatives.

6. Maintains locations and telephone numbers of organizational entities along with key personnel 

(family assistance center, medical examiner, staff processing center, NTSB investigation HQs, 

airline, crash site, supporting organizations, local law enforcement, local government, and etc).

7. Responds to requests with an appropriate reply or by directing requests to the appropriate 

organization with primary responsibility.

8. Monitors and collects media reports on the family support area.

9. Maintains and updates daily plan and future operations.

10. Maintains status and location of injured victims.

11. Maintains status of identification effort utilizing information provided by ME/coroner.

12. Updates information on numbers of families at site and projected departures/arrivals (24/48 

hours).

13. Tracks status of ante mortem interviews.

An aviation accident may take place anywhere, from an isolated area to a major metropolitan area. 

Due to the need to provide flexible planning guidance, the location of the JFSOC will be determined on 

a basis of available space, such as hotels, local government buildings, mobile command posts, and also 

the location and severity of the aviation disaster. 

The involved air carrier should plan on securing a hotel area that can accommodate the people, 

equipment, and activities that will be involved in the JFSOC. Although hotel space for family members 

and the Family Assistance Center (FAC) will be at a premium, the JFSOC should be located in a same 

hotel. A small ballroom or large conference room would be ideal. Planning guidance for people and 

equipment is provided for the three crash scales. 
26

While the air carrier is reserving space for the families, FAC, and the JFSOC, the NTSB will be in 

contact with local authorities to see if their EOC is suitable and available, as well as other local facilities. 

If the local government can accommodate the JFSOC, the NTSB will coordinate with the air carrier to 

determine the best location for the JFSOC.

 The following is a general description of the duties and responsibilities of members of the JFSOC:

1. Coordinator: The JFSOC Coordinator represents the NTSB and is charged with managing 

the day to day activities of the JFSOC. The coordinator is responsible to the Board’s 

family affairs specialist managing the FAC. The coordinator may assign responsibilities to 

JFSOC members; facilitates the exchange of information among the JFSOC participants; 

ensures critical information is kept current; informs other participants of significant 

developments; collects information that may be used for family briefings; ensures individual 

logs are kept current; coordinates with NTSB HQs on information to be placed on the 

Board’s web site; and other duties relating to the specific requirements of the accident.

2. Deputy Coordinator: A Deputy Coordinator may be designated to assist the Coordinator. 

The Deputy Coordinator may be from the carrier or from the local emergency management 

group.

3. Administrative Officer: An Administrative Officer will assist the Coordinator with 

administrative functions, such as preparing drafts of documents, collecting and posting of 

logs; assembling clips of media coverage of the accident; providing supplies; and other 

duties relating to the specific requirements of the accident.

4. Airline representative: The airline representative is responsible for representing the carrier in 

the JFSOC. The representative serves primarily in a coordinating role for the carrier. Such 

things as passing information to the carrier’s command center on passengers that have been 

positively identified (after families have been notified); questions relating to current and 

future support provided to families by the airline; other agencies’ current and future plans 

and developments; meetings and agendas; and other informative issues are examples of 

things that the representative may be doing in the JFSOC. Other tasks are maintaining a 

daily log; monitoring status of injured victims and numbers of family members on and off 

site; providing input for daily briefings to family members; updating other JFSOC 

participants on the carrier’s activities and developments, and general sharing of information. 

5. Local government representative: The local government representative is the coordinating 

point for JFSOC participants on issues of security of the morgue, FAC, hotels for family 

members and other designated sensitive areas. The representative is also responsible for 

keeping his/her organization informed of family affairs activities and meetings; updating other 

JFSOC participants on the local government’s activities and developments; maintaining a 

daily log; providing input for daily briefings to family members; identifying local assets and 

resources that can be utilized in support of the operation; and assisting other participants in 

their understanding of the local community and their leaders. 
27

6. ARC representative: The ARC representative serves primarily in a coordinating role for the 

ARC and its FAC coordinator and staff processing center; responding to questions that 

relate to current and future support being provided to families and support workers by the 

ARC; answering questions related to persons and organizations who want to volunteer 

services or support; informing the ARC of scheduled meetings; and other informative issues 

are examples of things that the representative may be doing in the JFSOC. Other tasks are 

maintaining a daily log; monitoring status of support personnel in the FAC and other sites; 

answering or redirecting calls from family members who may be off site; providing input for 

daily briefings to family members; updating other JFSOC participants on the organization’s 

activities and developments; and general sharing of information. 

7. DOS representative: The DOS representative serves in a coordinating role between the 

JFSOC and the DOS. The representative will coordinate issues involving foreign 

passengers and the support they will need from DOS, the victim’s embassy/consulate, and 

other participants of the JFSOC. Other tasks include maintaining a daily log; monitoring 

status of foreign victims and their families; providing advice on cultural issues; answering or 

redirecting calls from foreign government officials; providing input for daily briefings to family 

members; updating other JFSOC participants on the organization’s activities and 

developments; and general sharing of information. If foreign consulate officials participate in 

the activities of the JFSOC, the DOS representative will serve as their sponsor. 

8. DOJ representative: The DOJ representative is responsible for representing DOJ in the 

JFSOC. DOJ will not normally be involved in the JFSOC, unless the disaster is considered 

to be caused by a criminal act. The representative serves primarily in a coordinating and 

informational role for DOJ. Since the ARC’s and DOJ’s role of assisting victims is closely 

related, it is imperative that both organizations closely work with one another. 

Synchronization of current and future support provided to families by both organizations is 

critical. Other representative tasks are maintaining a daily log; monitoring of support 

provided to families; providing input for daily briefings to family members; updating other 

JFSOC participants on organizational activities and developments; and general sharing of 

information. 

9. FEMA representative: The FEMA representative is not normally involved in the JFSOC, 

unless the disaster requires substantial Federal government assistance. This may be a 

disaster that takes place in a highly populated area causing severe structural damage and a 

substantial number of ground casualties. The representative will be primarily responsible for 

coordinating the local and state emergency management agency efforts with the family 

support operation. 

 
28

Manpower Planning Guidance

Manpower: Person(s) must have decision-making authority or have access to those who do and must 

be knowledgeable about the structure of their organization.

Crash scale 1 Crash scale 2 Crash scale 3

NTSB 2 2 2

Airline 2 2 3

ARC 1 2 3

HHS 0 0 0

DOS * * *

FEMA # # #

DOJ # # #

DOD $ $ $

Local 

Government 2 3 4

* Person required if foreign (non-U.S.) personnel are on the flight and additional personnel required if it 

is an international flight

# Required only if having a role in operation and additional personnel required if organization has a large 

role

$ Required if carrier is chartered military flight
29

Communications (Telephone) Planning Guidance

Crash scale 1 Crash scale 2 Crash scale 3 

NTSB 4 4 4

Airline 4 4 4

ARC 4 4 4

HHS 0 0 0

DOS # 2 2 2

FEMA # 2 2 2

DOJ # 2 2 2

Local 4 4 4

Government

# Necessary if agency is involved in accident response

Each agency should have access to data ports for computer systems.
30

Other Resource Planning Guidance

Crash scale 1 Crash scale 2 Crash scale 3

Fax machines 2 2 3

Copying machines (high speed) 1 1 2

Copier should collate and sort

Printers 2 2 2

Paper shredder 1 1 1
31

AIRLINE

Telephones would be

placed at each work

station

DOS, DOJ, FEMA Local Gov't ARC

NTSB

Status Board on wall

SUGGESTED LAYOUT FOR JOINT FAMILY

SUPPORT OPERATIONS CENTER (JFSOC)
32

JOINT FAMILY SUPPORT OPERATIONS CENTER DAILY STATUS REPORT 

INFORMATION

1. Number families notified /number pending notification AIRLINE

2. Number families on site /number of families at home AIRLINE

3. Number of total family members at the hotel AIRLINE

4. Number of families expected to arrive within next 24 hours AIRLINE

5. Number of families expected to depart within the next 24 hours AIRLINE

6. Number of families at home that have been contacted by their 

airline representative within the last 24 hours AIRLINE 

7. Status of injured personnel and location of family members AIRLINE

8. Number of families at the site that have requested ARC assistance 

and have been assisted by ARC personnel within the last 24 hours ARC 

9. Number of families at home that have requested ARC assistance and have been contacted by their 

ARC representative within the last 24 hours ARC

10. Number of workers that have received ARC assistance in last 24 hours ARC

11. Number of injured emergency personnel that have received ARC assistance ARC

12. Status of dental records and x-rays ME 

13. Status of ante mortem and disposition of remains interviews ME

14. Status of identification efforts ME

15. Status of families notified of positive identification ME

16. Status of release of remains ME

17. Update on assistance provided to foreign families DOS

18. Update on assistance provided to victims and families DOJ

19. Number of Federal support personnel, to include DMORT and ARC personnel ALL

 on site and their locations. 

15. Remarks on daily activities. ALL

16. Remarks on next 24 hours activities. ALL
33
34

APPENDIX C

SAMPLE AFTER-ACTION REPORT FORMAT

National Transportation Safety Board

Director, Office of Family Affairs

490 L’Enfant Plaza East, SW

Washington, DC 20594-2000

SUBJECT: (AVIATION ACCIDENT) AFTER-ACTION REPORT

Describe such items as how the organization was organized; relationships to other organizations; what 

the organization’s mission was; how many of the organization’s personnel were involved; what other 

resources were provided; transportation and equipment requirements; date arrived/departed; daily 

activities; and any other item the organization feels important to add to this document. This outline is not 

intended to limit the content of the input. 

Attach as separate enclosures specific areas observed throughout the operation that were both 

successful and problem areas. The following format is provided:

Topic:

Discussion:

Recommendations:

Also enclose any programs, associated ceremonial material, or video coverage. 
35

APPENDIX D

Frequently Asked Questions

Please note this section was in response to many inquiries for clarification about various 

topics of the basic plan from some small and foreign air carriers. This is not a substitute for 

reading and understanding the basic plan.

Is there a specific definition of who constitutes a family member?

U.S. Federal and state laws define who constitutes a family member from a legal point of view. 

These legal definitions may also vary from state to state. The traditional view included spouse, 

children, mother, father, brother, and sister. Terms such as stepparents, stepsiblings and life 

partners have become more common in recent years in defining some family environments. It is 

suggested that airlines should plan on dealing with a variety of family member scenarios and to 

take each one on a case by case basis. 

During the initial hours of an aviation disaster there is a significant amount of verification of 

facts that the airline needs to do. What information should be given to a family member if 

they call while the verification process is still in progress?

Airlines must establish contact with the family of a victim as soon as possible following an 

accident. In some cases, a family member may call the airline before the airline has reached out 

to contact the family that has just called in. During this process it is important to give whatever 

passenger information about the victim that is available. There are cases in which notifying an 

additional family member may be necessary. There may be a family member who will be calmer 

or more helpful to the airline in dealing with his or her family. This person may also be able to 

assist in other situations, such as families that do not use English as their primary language.

Are there any special considerations for employees assigned to be family escorts?

As specialized airline escorts are assigned to family members, it is important to identify any 

immediate needs the family may have. This may include monetary, childcare, medical or religious 

needs. 

Are there any steps that an airline can take to be better prepared to manage the manifest 

reconciliation process during an emergency?

It is strongly suggested that airlines periodically and randomly select flights that have departed 

and verify the manifest using each airline’s specific emergency procedures for manifest 

reconciliation. This exercise provides an opportunity for employees to develop the habit of 

checking manifests against boarding documents. It may also identify procedural problems that 
36

can be corrected prior to an accident. After a period of time the airline will be able to establish a 

confidence level based on the accuracy of the initial manifests. 

Is there a requirement by an airline to release the names of the passengers and crew to the 

media? 

There is no requirement to release the names of passengers and crew to the media. However, 

once notification has been made, it is acceptable to ask a family how much time they will need to 

establish contact with other family members. There should be consideration in delaying any 

release of names until a family has had an opportunity to contact other family members. 

It is important to keep family members informed, even if there is no additional news. Family 

members should receive regular updates. Please remember that if the airline states they will call 

a family member back within a specific time frame, then those calls must be done as close to the 

time set as possible. 

Are there any steps an airline can take to limit the number of inquiry calls that follow a 

disaster? 

When the media asks the airline for an 800/888 number, it is important for the airline to stress 

that the numbers are “only for those family members who have reason to believe that their loved 

one was onboard the flight”. Also, the media should continue to reemphasize the name of the 

carrier, flight number, airport origination, connection and final destination.

The airline should also have an internal “call home” system. Upon learning that the airline has 

had a major accident, crews and employees should be advised through the company’s internal 

communications network of the event to call home and advise family members of their well 

being.

Are there any special considerations for family members who wish to travel to the accident 

city? 

Legislation requires that airlines will “assure” that they will provide transportation to the 

accident city and that they “assure” they will assist with the immediate needs of family members, 

including lodging. 

It is unreasonable to ask a family member to travel alone to an accident site in which a loved one 

has been killed or injured. It is important for the airline to consider requests on a case by case 

basis as there are numerous factors that may require more than one family member or a nonfamily member to travel to the accident city. 

Some family members may request to travel to the accident city via an alternate air carrier or 

alternate mode of travel (rental car, bus, or train). It is suggested that the airline try to honor 

such requests.
37

Are there any training topics that can help teach employees how to assist families following an 

accident?

It is required that airlines train the employees in a number of areas, including, but not limited to: 

an understanding of the range of physical and emotional reaction to trauma, including long term 

effects from post traumatic stress disorder; understanding the need for information by family 

members and victims; skills to assist with age groups that range from children to the elderly; 

how to remain caring, non-judgmental and compassionate while assisting those who are 

suffering or who are extremely demanding or angry.

There should be a variety of methods used, including, but not limited to: small groups with role 

play scenarios; use of survivors and family members who relate their experiences in person or by 

video tape; timeline of the response from the first hour to the return of the remains and personal 

effects and first year anniversary; introduction to representatives of Federal agencies that would 

be involved in the accident and the American Red Cross.

It is also very important to tell employees about the effects they may encounter while responding 

to a major accident. Training should include methods employees can use take care of themselves 

during and after the response. It should also train them how to look out for co-workers who may 

be having difficulties.

After initial training there should be annual recurrent training.

Does an airline need to file their plan?

All carriers that are required to file their assurances must file with both the NTSB and the US 

DOT. 

What issues should an airline consider in managing personal effects?

Due to the physical and psychological impact that the recovery process can have on airline 

employees, it is strongly suggested that a professional third party be employed to respond to and 

manage the recovery and cataloging of the personal effects effort.

Airlines need to allow family members the opportunity to view non-associated personal effects. 

This can be done via a catalog or a CD with photographs of the items. 

What is the AIR Team?

The local Red Cross chapter will initiate the Red Cross response in accordance with local 

planning. These activities may be supported as needed by other Red Cross chapters from within 

the state. The Aviation Incident Response Team (AIR Team) made up of trained and experienced 

Red Cross disaster management specialists will mobilize within 4 hours, travel to the site and 

blend with the existing Red Cross response and coordinate and manage the resulting Red Cross 

response.
38

Why was the American Red Cross selected?

The NTSB designated the ARC because it met the requirements that were set forth in the 

legislation. The legislation required an organization that was independent and nonprofit, that 

had experience in disasters and post trauma communications with families, and could take the 

responsibility of coordinating the emotional care and support of the families of passengers 

involved in the accident. 

Is there any requirement by an airline to meet with the ARC before a disaster occurs?

There are no mandates for an airline to meet with the ARC before a disaster. However, it is 

important that local airline station management and Red Cross chapters coordinate their local 

planning activities where appropriate to ensure each group’s awareness of the other’s plans. 

This will enhance the coordination of the immediate response. An annual pre-disaster meeting 

can eliminate any misunderstandings or confusion on services that may or may not be provided.

What other services can the ARC provide to an airline, family members, or the community 

where the disaster occurred?

The ARC can also provide emotional or critical incident stress debriefing (as required) for local 

agencies that may not have specialists or training in this area. If needed, they will assist with 

referrals to families for long term mental heath service providers. 

What is the role of the U.S. State Department during an aviation disaster in the United States 

or its territories? 

The U.S. Department of State will be responsible for notifying a foreign government that citizens 

from their country were involved in an aviation disaster.

What assistance can the State Department offer to a foreign air carrier that has had an 

accident in the United States or its territories?

They can assist the affected foreign air carrier with alerting Customs and Immigration that a 

corporate “Go Team” is enroute to the accident city. They can assist with obtaining required 

visas or other documents required gaining entry into the United States.

Assistance can also be given to family members enroute to the accident city. The State 

Department will work with Customs and Immigrations to ensure that entry into the United 

States by these families is done in a timely and professional manner.

What is the difference between the Friends and Family reception center and the Family 

Assistance Center (FAC)? 
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The Friends and Family reception center will be located at the arriving and departing airports. 

This is a temporary location for family members to gather until a Family Assistance Center is 

established. The Family Assistance Center will typically be located in a hotel, but may be located 

in another type of facility, such as a college or community center. This is the location where 

families will gather to obtain information and assistance.

Who is responsible for the FAC? 

The airline should secure a facility to accommodate all family members traveling to the accident 

city. Agencies providing support and services to families will work together to insure families 

are served properly. The NTSB has the overall responsibility to make certain the FAC runs 

smoothly, but relies upon the cooperation and support of all contributing organizations.

How will professionals and other service agencies in the local community be utilized?

ARC has been designated as the non-profit organization responsible for family care and mental 

health. In this capacity they will manage the recruitment, training and support of all volunteers, 

including those in the local community, through a Staff Processing Center. It is the intent of the 

ARC and the NTSB that local professionals and organizations affiliated with a disaster response 

agency/organization, spontaneous individual volunteers and groups are integrated in order to 

provide support to the incident as required.

Who is considered family for access to the FAC?

Today’s family often does not have traditional boundaries. Any definition of “family member” 

should take into consideration that many individuals consider themselves to be the family of the 

victim, even though the law does not formally recognize the relationship. This would be the case 

for a fiancée or long-time companion. Family member will be defined in broad terms for the 

purpose of FAC access. 

How do families not traveling to the accident city get information and support?

A conference call bridge will be used during family member briefings. Families not traveling to 

the accident city will be provided a toll-free number to connect to the bridge. In addition, the 

airlines will maintain contact and provide support to the family and the ARC can provide 

support through their chapters in the local community.

Who is responsible for the expenses associated with the FAC?

The airline is generally responsible for reasonable expenses associated with the set up and 

operation of the Family Assistance Center.

How do other service providers interact with the American Red Cross?
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The ARC is interested in the assistance of others that can help at an accident. They will establish 

a staff-processing center to insure the best use of all resources. Other providers can contact the 

ARC through the processing center or can contact their local chapter of the ARC in advance if 

interested in assisting.

How will the airlines, local emergency responders, ARC, and other Federal agencies 

coordinate the services delivered to family members?

These services for families will be coordinated through a Joint Family Support Operation Center 

(JFSOC). The operations center will be facilitated by a member of the NTSB Office of Family 

Affairs and will have representation from each organization providing assistance. This will 

insure efficient use of resources and sharing of information.

What type of training will airline escorts need to work with the family members?

Many airlines have initiated extensive training for their family member escorts. For those who 

have not, it is important that the escorts understand the dynamics of working in this 

environment, what is expected of them, basic understanding of grief and trauma, and effective 

communication with families experiencing complicated grief. 

How do the family members get answers to their individual questions?

First, they should ask their airline escort/representative for answers to their questions. If the 

airline representative can not answer the question, they will notify their supervisor. The 

supervisor will either provide the answer or ask assistance from the agency that is most likely to 

have the answer. 

What areas of consideration should airports have in planning to assist families during the first 

few hours of an aviation disaster?

Although airports are not currently required to plan for family assistance issues, airports should 

plan to assist passengers and their families during the initial hours of a disaster. 

This is especially critical for those airlines that have limited manpower or are charter operations 

that may have no company representation at the airport.

Consideration should be given to providing family members a secluded Friends and Family 

reception area in which to gather while awaiting information from the airline about their loved 

one. Airline clubs, conference rooms, or restaurants can serve this purpose. This room should be 

away from the media and should have restrooms in or near by. Police officers should be used to 

secure the room and the immediate area from the general public. If at all possible, choose a 

room that does not have a view that overlooks the crash site or recovery operation. Local Red 

Cross chapters should be included in planning sessions as they can provide mental health and 
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health (nurses) services personnel, as well as other needed local resources, to assist airline staff 

with families at this location.

If the room or airline club has a television(s), it would be best to leave at least one television on 

and give family members the option to stay in that room or to stay in an area that does not have 

a television or one that is turned off. This option will allow those family members that wish to 

watch the news coverage of the disaster to do so.

What areas of consideration should be given when airports are reviewing their airport 

emergency plans? 

If an airport’s plan calls for sealing off access to the airport or terminals during an emergency, 

consideration should be given to asking local airline management to determine a list of those 

employees who would be required to have access to the airport or terminal(s) during such a 

period. Airport operations access (AOA) badges for these individuals should be issued with a

unique indicator. Some airports have used the following indicators, “COMMAND POST”, 

EMERGENCY ACCESS”, “INCIDENT RESPONSE”, “DISASTER RESPONSE” or a 

large letter “E”. Once a format is chosen, the information is relayed to all law enforcement 

agencies that would be used to seal off the airport. This should allow those airline/airport 

personnel to gain access when roadways are closed.

Airports should consider placing large signs at their predetermined staging and emergency 

access areas and gates. These signs should be reflective, preferable white on red wording and in 

simple text. For example, STAGING AREA “A” or MUTUAL AID ACCESS GATE #5. 

These simple signs would assist in eliminating any confusion for mutual aid agencies that may 

respond to the airport or who have periodic personnel changes.

Airports should review and contact all of the emergency service agencies within a five (5) mile 

radius of the airport. These agencies should receive aircraft emergency ingress/egress 

familiarization and training. Airport fire services can coordinate with airlines to arrange 

familiarization tours of various airline aircraft types.

There should be pre-accident meetings with local emergency planners, hospitals, American Red 

Cross, city, county, state police and fire services, and clergy.

Are there any special considerations about moving wreckage after life safety efforts have 

been completed?

Once the event has moved from a rescue to a recovery operation, the area should be sealed off 

until the first NTSB representative arrives on the scene and takes charge. If at all possible, 

pieces of wreckage should not be moved. If there is a need to move pieces of the wreckage, 

every effort to photograph the wreckage should be made prior to disturbing the items.

If the accident is caused by a criminal act, who will be in charge?
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In a scenario in which the accident was caused by a criminal act, the FBI will be the lead agency. 

The NTSB will support the FBI with technical expertise. Even if it is not a criminal act, local 

authorities must ensure that all wreckage is preserved and not moved unless necessary for life 

safety activities

What resources can the NTSB provide to a medical examiner or coroner in the way of 

personnel, equipment and temporary morgue facilities?

Under the Federal Family Assistance Plan for Aviation Disasters, the NTSB will coordinate and 

integrate the resources of the Federal Government to support the efforts of the local and state 

government. The Department of Health and Human Services/Office of Emergency Preparedness 

(DHHS/OEP) has been designated as the primary agency for “Victim Identification and Forensic 

and Medical Services.” 

The Public Health Service, a division of DHHS has developed a Disaster Mortuary Operational 

Response Team (DMORT) and mobile morgue to provide manpower and technical assistance to 

support local medical examiners or coroners in times of an aviation disaster.

In addition, under the Federal plan, the NTSB can call upon the resources of the Department of 

Defense (DOD) and Federal Bureau of Investigation (FBI) Disaster Squad to provide additional 

support.

What is DMORT?

DMORT stands for Disaster Mortuary Operational Response Team. The team is set up to provide 

professional personnel and technical support and assistance to the local medical examiner or 

coroner in forensic services and victim identification. The team is composed of forensic 

pathologists, forensic anthropologists, forensic dentists, medical investigators, funeral directors 

and other technical support staff. 

What is the Portable Morgue Unit?

The DMORT Portable Morgue Unit (DPMU) has been developed to support the processing and 

identification of victims in the event of a mass fatality incident. The DPMU is a packaged system 

containing all the equipment and supplies required to establish and operate a temporary morgue 

facility under austere field conditions and/or augment local morgue capabilities. It is designed to 

be deployed by land, sea and air transport. 

What is the FBI Disaster Squad?

The FBI has a team of highly trained experts in the area of fingerprint identification. This team is 

normally activated simultaneously with the DMORT and will provide any assistance to the local 

medical examiner or coroner in the area of fingerprint identification.
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In addition to the conventional means of identification, can DNA be used as another method of 

identification?

Dental records and x-rays along with fingerprints are normally the primary methods used in victim 

identification. DNA will be used as a last resort and only after all conventional means of identification 

are exhausted. 

Will autopsies be performed on all flight crew and passengers?

Generally speaking, the local medical examiner or coroner has jurisdiction and determines if 

autopsies will be conducted. The NTSB has specific requirements that the flight crew is autopsied 

and full toxicology tests are performed. Depending on the circumstances of the crash, the NTSB 

investigator-in-charge will consult with the medical examiner or coroner to determine if 

additional autopsies are required.

What is a FAA toxicology kit and how do I go about getting one?

A FAA toxicology kit is a kit that provides specimen collection vessels and instructions to the 

medical examiner in obtaining fluid and tissue samples needed by the FAA to test for drugs and 

alcohol in the blood system of the flight crew.

Generally, medical examiner offices throughout the country should have at least four kits on 

hand in their facility. If the medical examiner or coroner does not have access to kits, the NTSB 

team through the FAA representative will provide them. 

How is ante mortem information obtained from family members?

Generally, the local medical examiner or coroner is responsible for obtaining medical record 

information from family members. However, in the event the local jurisdiction does not have 

enough staff to interview family members, trained DMORT members can be used to assist the 

local jurisdiction in interviewing family members. 

Is the NTSB responsible for making positive identification of victims in the disaster?

The local coroner or medical examiner is responsible for making positive identification of 

victims. The NTSB can provide additional resources, such as the DMORT and/or the mobile 

morgue from the Department of Health and Human Services. These resources are available to 

help local authorities manage a large number of victims. 

How does the local medical examiner or coroner request assistance?

The medical examiner or coroner should contact the Forensic Specialist, Office of Family 

Affairs, at the NTSB in Washington, DC.. The specialist will ask them specific questions on the 
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number of fatalities and what resources the medical examiner/coroner has or doesn’t have in 

order to meet their responsibilities. The NTSB will activate the DMORT and FBI Disaster Squad 

at the request of the medical examiner or coroner. The telephone number is 202-314-6290.