Circular Letter
MSC/Circ.1173

ADOPTION OF AMENDMENTS TO THE INTERNATIONAL AERONAUTICAL AND MARITIME SEARCH AND RESCUE (IAMSAR) MANUAL

(23 May 2005)

 

1. The Maritime Safety Committee (MSC), at its eightieth session, (11 to 20 May 2005), having been informed that the International Civil Aviation Organization (ICAO) had approved the amendments to the IAMSAR Manual prepared by the Joint ICAO/IMO Working Group on Harmonization of Aeronautical and Maritime Search and Rescue, and that they had been endorsed by the Sub-Committee on Radiocommunications and Search and Rescue (COMSAR) at its ninth session (7 to 11 February 2005), adopted the annexed amendments in accordance with the procedure laid down in resolution A.894(21).

 

2. The Committee decided that the amendments should enter into force on 1 June 2006.

 

Annex.

SECTION 1.
PROPOSED AMENDMENTS TO THE IAMSAR MANUAL – VOLUME I

 

1. Abbreviations and Acronyms

 

- Insert the new line as follows:

 

"MRO ....... Mass rescue operation"

 

2. Glossary

 

- Replace the present definition of Aircraft co-ordinator (ACO) by "A person or team who co-ordinates the involvement of multiple aircraft SAR operations in support of the SAR mission co-ordinator and on-scene co-ordinator"

 

- Insert the new line as follows:

 

"Mass Rescue Operation (MRO) - search and rescue services characterized by the need for immediate response to large numbers of persons in distress, such that the capabilities normally available to search and rescue authorities are inadequate"

 

3. Chapter 4

 

- Insert new paragraph 4.8 as follows:

 

"4.8 Radio call signs for aircraft involved in a search and rescue operation

 

4.8.1 A prefix call sign makes the task/function of a specific aircraft easier to be understood by other aircraft and participating units in the same area.

 

4.8.2 The prefix call sign can also give the aircraft priority in some situations.

 

4.8.3 The State authority responsible for air regulation shall ensure that use of prefix call sign will conform with other national air regulation practice.

 

4.8.4 During search and rescue missions and exercises it is recommended that the following prefix call signs be used before the ordinary radio call sign or as a specific mission call sign.

 

"RESCUE"                            for all airborne units involved in a rescue

                     mission

 

"AIR CO-ORDINATOR"   for the aircraft co-ordinator (ACO)

 

"SAREX"              for all airborne units involved in

                     international/national exercises"

 

4. Chapter 6

 

- Insert new paragraph 6.5 as follows:

 

"6.5 Mass Rescue Operations

 

6.5.1 A mass rescue operation (MRO) is one that involves a need for immediate assistance to large numbers of persons in distress such that capabilities normally available to SAR authorities are inadequate.

 

6.5.2 MROs are required less frequently than typical rescue efforts, but have high potential consequences. Flooding, earthquakes, terrorism, and large passenger aircraft or ship disasters are examples of scenarios that may involve the need for MROs. Extensive preparations and resources are required to conduct MROs successfully.

 

6.5.3 Such incidents might involve hundreds or thousands of persons in distress in remote and hostile environments. A large passenger ship collision, for example, could call for rescue of thousands of passengers and crew in poor weather and sea conditions, with many of the survivors having little ability to help themselves. Preparedness to mount a large and rapid response would be critical to preventing large-scale loss of lives.

 

6.5.4 MRO plans and exercises are challenging and relatively complex. Effective arrangements for use of national and often international resources beyond those normally used for SAR are essential. Preparations require substantial commitments and partnerships among SAR authorities, regulatory authorities, transportation companies, sources of military and commercial assistance and others.

 

6.5.5 MROs often need to be carried out and co-ordinated within a broader emergency response context that may involve hazards mitigation, damage control and salvage operations, pollution control, complex traffic management, large-scale logistics, medical and coroner functions, accident-incident investigation, and intense public and political attention, etc. Efforts must often start immediately at an intense level and be sustainable for days or weeks.

 

6.5.6 SAR authorities should co-ordinate MRO plans with companies that operate aircraft and ships designed to carry large numbers of persons. Such companies should share in preparations to prevent MROs and to help ensure success if they become necessary.

 

6.5.7 What the media reports may matter more than what SAR services do for shaping of public opinion about MROs. There should be no unwarranted delays in providing information to the media. Information must be readily available, and freely exchanged among emergency service providers and shipping, airline or other primary companies involved.

 

6.5.8 Since opportunities to handle actual incidents involving mass rescues are rare and challenging, exercising MRO plans is particularly important."

 

SECTION 2.
PROPOSED AMENDMENTS TO THE IAMSAR MANUAL – VOLUME II

 

1. Abbreviations and Acronyms

 

- Insert the new lines as follows:

 

"MRO   .................. Mass rescue operation

 

NATO   .................. North Atlantic Treaty Organization

 

SUBSAR .................. Submarine search and rescue"

 

2. Glossary

 

- Replace the present definition of Aircraft co-ordinator (ACO) by "A person or team who co-ordinates the involvement of multiple aircraft SAR operations in support of the SAR mission co-ordinator and on-scene co-ordinator"

 

- Insert the new line as follows:

 

"Mass Rescue Operation (MRO) - search and rescue services characterized by the need for immediate response to large numbers of persons in distress, such that the capabilities normally available to search and rescue authorities are inadequate"

 

3. Chapter 1

 

- Insert a new paragraph 1.8.11 as follows, and renumber the remaining paragraphs in section 1.8:

 

"1.8.11 Additional information on planning and conducting exercises is provided in Chapter 6 with regard to mass rescue operations."

 

- Insert a new sentence following the first sentence of 1.10.5 as follows:

 

"... many nationalities. Such an incident may result in the need for mass rescue operations (MROs), which are discussed in Chapter 6. In this case, ..."

 

- Insert an additional paragraph 1.10.8 as follows:

 

"1.10.8 Additional information on planning and public and media relations is provided in Chapter 6 with regard to mass rescue operations."

 

- Insert an additional paragraph 1.12.2 as follows:

 

"1.12.2 Additional information on incident management on ICS is provided in Chapter 6 with regard to mass rescue operations."

 

4. Chapter 2

 

- Insert new paragraph 2.32 as follows:

 

"2.32 Radio call signs for aircraft involved in a search and rescue operation

 

2.32.1 A prefix call sign makes the task/function of a specific aircraft easier to be understood by other aircraft and participating units in the same area.

 

2.32.2 The prefix call sign can also give the aircraft priority in some situations.

 

2.32.3 State authority responsible for air regulation shall arrange that use of prefix call sign will coincide with other national air regulations.

 

2.32.4 During search and rescue missions and exercises it is recommended that the following prefix call signs be used before the ordinary radio call sign or as a specific mission call sign.

 

"RESCUE"           for all airborne units involved in a rescue mission

 

"AIR CO-ORDINATOR" for the aircraft co-ordinator (ACO)

 

"SAREX"            for all airborne units involved in

                   international/national exercises"

 

5. Chapter 6

 

- Delete present section 6.14 and insert the following new sections as 6.14 and 6.15 and renumber sections 6.15, 6.16, 6.17 and 6.18.

 

"6.14 Underwater search and rescue

 

6.14.1 Many different underwater operations occur within SRRs, such as diving operations or the operation of military or civilian submarines. When accidents occur, survivors may be either on the surface or entrapped in a submarine resting on the seabed. Military submarines trapped under the surface may use international distress signals or specific military pyrotechnics, dye markers or beacons. In addition, submarines may pump out fuel, lubricating oil or release air bubbles to indicate their position.

 

6.14.2 Submarine SAR, (SUBSAR), is a highly specialized and time-critical activity reliant on specific capabilities and training. Medical care requirements for survivors of a submarine accident may also be specialized.

 

6.14.3 Military submarine-operating States have developed standard SUBSAR procedures, capabilities and training, generally under sponsorship of the North Atlantic Treaty Organization (NATO) for the recovery and care of submarine accidents. RCCs may request support of these resources should the need arise. Relevant information may be obtained from the NATO International Submarine Escape and Rescue Liaison Office.

 

6.14.4 RCCs should be aware if specialized navy or commercial recovery or treatment facilities (such as the ones with decompression chambers) exist within or near their SRRs and arrange in advance for their use at any time on a 24-hour basis. Similarly, RCCs should liaise with the military to determine mutual assistance that could be provided in the event of military submarine accidents.

 

6.14.5 Most SAR personnel are poorly prepared to understand or handle medical problems peculiar to underwater activities, such as decompression sickness, air embolism, and nitrogen narcosis. However, they should be trained to recognize the symptoms and know how to obtain competent medical advice. They should also be trained in handling and transporting victims of such problems without worsening their situations. If possible to aid in the treatment of the victim, SAR personnel should obtain information such as time underwater, depth, time at the surface, time of the onset of symptoms, and the symptoms currently being experienced.

 

6.14.6 Medical advice should be sought before air transport of submarine accident victims."

 

"6.15 Mass Rescue Operations

 

MRO Overview

 

6.15.1 A mass rescue operation (MRO) is one that involves a need for immediate assistance to large numbers of persons in distress such that capabilities normally available to SAR authorities are inadequate.

 

6.15.2 MROs are relatively rare low-probability high-consequence events compared to normal SAR operations, but major incidents leading to the need for MROs have not been infrequent on a world-wide basis, and can occur anywhere at any time. The nature of such operations may be poorly understood due to limited chances to gain experience with major incidents involving MROs.

 

6.15.3 Flooding, earthquakes, terrorism, casualties in the offshore oil industry and accidents involving releases of hazardous materials are examples which, because of their magnitude, may require the application of the same resources as required for mass maritime or aeronautical rescue operations.

 

6.15.4 The sequence of priority in major multi-mission incidents must be lifesaving first, generally followed by environmental protection, and then protection of property. Moral and legal obligations and public and political expectations require preparedness to carry out MROs safely and effectively should they become necessary. Since the need for MROs is relatively rare, it is difficult to gain practical experience to help deal with them. Types of potential MRO scenarios vary, but there are certain general principles that can be followed based on lessons of history.

 

6.15.5 Effective response to such major incidents requires immediate, well-planned and closely co-ordinated large-scale actions and use of resources from multiple organizations. The following are typical MRO demands:

 

- intense and sustained high priority lifesaving efforts may need to be carried out at the same time and place as major efforts to save the environment and property;

 

- huge amounts of information need to be readily available at the right times and places to support the response efforts and meet the needs of the media, public and families of the persons in distress, which may number in the hundreds or thousands;

 

- many means of communications need to be available and interlinked amongst organizations at various levels to handle huge amounts of information reliably for the duration of the response;

 

- a surge in the numbers of competent staffing in all key organizations must be made available immediately and be sustainable for up to weeks at a time;

 

- equipment and logistics demands jump to unprecedented levels; and

 

- successful MROs depend on the advance provision of flexible and all-level contingency plans. Intense integrated planning and operational efforts must also be carried out in real time throughout actual rescue efforts.

 

6.15.6 All involved in the overall multi-agency, multi-jurisdiction, multi-mission and possibly international response to major incidents must clearly understand who is in charge, the respective roles of all involved, and how to interact with each other. SAR authorities may be responsible for all or part of the MRO functions, and must be able to co-ordinate their efforts seamlessly with other responders under the overall direction of another authority within or outside their agency.

 

6.15.7 The broader response environment may involve activities such as:

 

- hazards mitigation;

 

- damage control and salvage operations;

 

- pollution control;

 

- complex traffic management;

 

- large-scale logistics efforts;

 

- medical and coroner functions;

 

- accident-incident investigation; and

 

- intense public and political attention.

 

6.15.8 MRO plans need to be part of and compatible with overall response plans for major incidents. Plans must typically allow for command, control and communications structures that can accommodate simultaneous air, sea and land operations.

 

6.15.9 The consequences of poor preparations for MROs in terms of loss of life and other adverse results may be disastrous. Major incidents may involve hundreds or thousands of persons in distress in remote and hostile environments. A large passenger ship collision, a downed aircraft, or a terrorist incident could, for example, call for the immediate rescue of large numbers of passengers and crew in poor environmental conditions, with many of the survivors having little ability to help themselves.

 

6.15.10 Preparedness to mount an extraordinarily large and rapid response is critical to preventing large-scale loss of lives. Such preparedness often depends on strong and visionary leadership and unusual levels of co-operation to achieve.

 

6.15.11 There will often be resistance to paying the high price in terms of time, effort and funding that preparedness for major incidents entails, particularly as they are rare events. The required levels of co-operation, co-ordination, planning, resources and exercises required for preparedness are challenging and do not happen without the requisite commitment of SAR authorities, regulatory authorities, transportation companies, sources of military and commercial assistance and others.

 

6.15.12 MRO planning, preparations and exercises are essential since opportunities to handle actual incidents involving mass rescues are rare. Therefore the exercising of MRO plans is particularly important.

 

6.15.13 Appendix C provides guidance on MRO exercise planning.

 

General guidance for MROs

 

6.15.14 For a situation involving large numbers or persons in distress, on-scene responsibilities for the safety of passengers and crew will be shared by the OSC and the craft’s pilot-in-command or master, with the pilot or master assuming as much of this responsibility as possible before or after the aircraft or ship is abandoned.

 

6.15.15 Pilots and masters are responsible for manoeuvring the aircraft or ship as feasible and appropriate and also have overall responsibility for safety, medical care, communications, fire and damage control, maintaining order and providing general direction.

 

6.15.16 Unless a ship appears to be in imminent danger of sinking, it is usually advisable for passengers and crew to remain on board as long as it is safe to do so.

 

6.15.17 In the case of a downed aircraft, whether passengers would be safer on board should be assessed for each situation. Usually they should promptly evacuate the aircraft at sea. On land, this decision must take into account the conditions of the aircraft and the environment, expected time to rescue survivors or repair the aircraft, and whether required passenger care can be best provided inside the aircraft.

 

6.15.18 The OSC will normally be designated by an SMC. An OSC may be able to handle certain communications on scene and with appropriate remote authorities to help free the pilot or master to retain the integrity of his or her craft. However, these persons are themselves in need of assistance, and anything the OSC can do to help them should be considered, bearing in mind that the OSC’s main duty is co-ordinating SAR facilities and rescue efforts under the SMC’s general direction.

 

6.15.19 Unnecessary communications with the master of a ship or pilot in command of an aircraft in distress must be minimized, and this should be taken into account in advance planning.

 

6.15.20 Exchanges of information during joint planning by use of SAR Plans of Co-operation for passenger ships and other means will reduce the need to ask the pilot or master for this information one or more times during a crisis. Persons or organizations that want this information should be directed to a source ashore or on the ground that is prepared to handle many potential requests.

 

6.15.21 High priority should be given to tracking and accounting for all persons on board and all lifeboats and rafts, and efforts to keep them together will help in this regard. Availability of accurate manifests and accounting is critical.

 

6.15.22 The need to relocate survival craft and check for persons in them can waste valuable resources. One option is to sink survival craft once the persons in them have been rescued; however, the potential that other survivors may find and need the craft should be considered.

 

6.15.23 Navy ships and large passenger ships are often better equipped than other vessels for retrieving people who have abandoned a ship or aircraft; use of any such ships should be considered. Ship reporting systems for SAR may help identify commercial ships available to assist.

 

6.15.24 Helicopter capabilities should be used if available, especially for retrieval of weak or immobile survivors. Lifeboat crews should be trained in helicopter hoist operations. Lowering a rescue person from the helicopter to assist survivors may be viable.

 

6.15.25 Ship companies should be encouraged to equip large passenger ships and possibly other types of vessels with helicopter landing areas, clearly marked hoist-winch areas, and onboard helicopters to facilitate more direct transfers of numerous persons.

 

6.15.26 If a ship with a large freeboard cannot safely retrieve survivors from the water or survival craft, it may be possible to first retrieve them onto small vessels, and then transfer them to progressively larger ones.

 

6.15.27 Depending on the circumstances, it may be safer to tow survival craft to shore without removing the occupants at sea. Lifeboats could be designed to support passengers for longer periods of time, and to be able to reach shore on their own from