Preparing U.S. Airport Infrastructure for Weather Events (2026)
Chapter: Panel Discussions
Panel Discussions
Panel 1
Case Study: Hurricane Helene’s Impact on Airport Infrastructure
Travis Bryan, Boca Raton Airport Authority, Moderator
Jason Schronce, North Carolina Department of Transportation
Lexie Farmer, Asheville Regional Airport
Richard A. (Ricky) Rushing III, Savannah/Hilton Head International Airport
Hurricane Helene, which took place late in September 2024, disrupted operations and caused damage to many airports across the southeast United States. Hurricane Helene made landfall in the Florida panhandle as a Category 4 hurricane on September 27. It moved north through Georgia and toward western South Carolina and North Carolina and eastern Tennessee as a tropical storm the same day. The storm brought catastrophic inland flooding, landslides, tornados, and hurricane-force wind gusts to the southern Appalachian region. Hurricane Helene was responsible for at least 250 fatalities in the United States.2 Its impact showed the vulnerability of airport infrastructure to acute events. This panel explored the operational challenges and lessons learned from Hurricane Helene, while providing reflections to enhance emergency response planning for future catastrophic weather events. It also explored the role of the airport in the event of regional weather events and disruptions.
Travis Bryan served as moderator for the panel and introduced the panelists. He began with a question for Lexie Farmer, asking, “How robust was Asheville’s hurricane plan before Hurricane Helene?”
Farmer replied that although Asheville Regional Airport (AVL) did have a general emergency response plan in place before Hurricane Helene, the airport—which is in Fletcher, North Carolina—did not have a hurricane response plan because of its location in the mountains. Farmer then explained that even though AVL had extra fuel and used generators for lighting during Hurricane Helene, the airport was not prepared for the destruction that occurred during the hurricane. She noted that after the hurricane, there was flooding all around the airport, and almost all utility services were disrupted, including electricity, cell-phone service, landlines, internet, and potable water,
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2 Hagen, A., J. P. Cangialosi, M. Chenard, L. Alaka, and S. Delgado. 2025. Hurricane Helene: 24–27 September, 2024. Tropical Cyclone Report. National Hurricane Center. https://www.nhc.noaa.gov/data/tcr/AL092024_Helene.pdf.
making it impossible for airlines to operate. Farmer added that AVL was used not only by people seeking shelter, but also by military personnel conducting search-and-rescue operations.
Farmer indicated that although AVL was unprepared for the hurricane, it has learned many lessons and explained that airport staff are developing an after-action report to help other airports learn from the challenges and prepare for weather impacts. Farmer reiterated that her team was learning “on the fly” and “relying on partners as lifelines.” She explained that the situation the hurricane caused was very difficult for airport staff, who were also dealing with personal loss and recovery from the event. She said AVL typically serves approximately 2 million passengers annually with 85 staff. After the hurricane, many airport employees who were on-site during the storm were stranded at the airport due to widespread flooding, and other employees who were not on-site were unable to leave their homes and report to work. Farmer stressed that the event caused psychological impacts for those who endured it, and that preparation for weather events must include consideration of human factors and recovery in addition to infrastructure.
Jason Schronce explained that North Carolina is a block grant state. The North Carolina Department of Transportation (NCDOT) does not own any airports but does provide funding and support to most general aviation airports throughout the state. Commercial airports work directly with FAA. Schronce explained that during a typical disaster, NCDOT provides emergency-response services in coordination with the military, FAA, and other groups (see Figure 1). He said that during Hurricane Helene, NCDOT experienced $5 billion in infrastructure damage across the state (see Figure 2),
Figure 1. Emergency management vehicles deployed at AVL for Hurricane Helene.
Figure 2. Aerial view of damage caused by Hurricane Helene in North Carolina.
but less than $1 million of the damage was to airports, which indicated that airports were resilient and became the lifeline for the state.
Schronce explained that the NCDOT unmanned aircraft systems team operated drones to take images of the damage and assess hurricane impacts, which involved close coordination of drone teams. Airports became lifelines, serving as hubs for transporting supplies with an influx of pilots, volunteers, and community-based organizations providing support. Hangars were turned into donation distribution centers. Schronce indicated that because of the influx of operations, there was operational chaos, and new tools were put in place to manage operations at minimally staffed general aviation airports. NCDOT provided staff augmentation for airports where staff were overworked and developed a website that was used to share information with pilots, including flight corridors to maintain a safe airspace.
Ricky Rushing represented the Southeast Airports Disaster Operation Group (SEADOG) on the panel.3 He explained that weather events consistently occur at airports, and airports may require additional help to recover from them. This is where SEADOG comes in, to provide support. He said SEADOG represents “friends helping friends in a time of need.” SEADOG’s typical hurricane response process includes scheduling a meeting 96–120 hours from projected hurricane landfall. SEADOG notifies
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3 “SEADOG is an informal collection of airports who have come together to provide operational assistance to other airports hit by natural disasters, such as hurricanes, tornadoes or floods.” Source: Southeast Airports Disaster Operations Group. “About SEADOG.” https://seadogops.com/.
everyone who registered on the SEADOG website to receive SEADOG alerts via email and mobile devices.4 SEADOG reaches out to airports in the cone of uncertainty. Rushing explained that as the hurricane landfall cone narrows, SEADOG develops a plan for communications. They collect Starlink and satellite phone numbers from airport emergency personnel to ensure communications channels exist during and following an event. The group stays in communication to discuss impacts throughout the event and follows up on facilities and human resources needed to support recovery. Rushing stated that after Hurricane Helene, AVL needed support from SEADOG, including equipment and relief staff.
Farmer added that through SEADOG, more than 80 volunteers from other airports came to help AVL. Farmer recalled that at first, she did not think that the airport needed help but then realized support was needed because many of the airport’s critical systems were down, and staffing resources were constrained. Farmer emphasized that SEADOG sent 20 people on the first day of recovery to bring basic supplies and food for staff. They were also able to do an assessment of damage and determine what was needed for recovery.
Farmer indicated that it is important for airports to have a disaster recovery plan. She said general aviation traffic at AVL typically includes about 300 flights per day. During Hurricane Helene recovery, the general aviation traffic increased to 1,000 flights per day. Additionally, she explained that the air traffic control (ATC) tower went down. Without an ATC tower, the fixed-base operator and general aviation ramp were gridlocked. There were large numbers of civilian and military aircraft bringing supplies, which required a safety plan. Based on the high amount of traffic, AVL had to issue a notice to close the airport to general aviation aircraft temporarily for safety purposes so that a plan could be put in place.
Schronce added that shortly after the hurricane, NCDOT and the AVL team developed a map of the airport with a plan for emergency operations to prevent an accident. NCDOT and other general aviation airports helped to manage the general aviation traffic and donations. The stakeholders coordinated how to get donations off airport property and out to warehouses for distribution. In June 2025, NCDOT published an after-action report5 related to general aviation airport Hurricane Helene emergency response and a guidebook that included best practices, checklists, and strategies to help general aviation airports prepare for future events.6
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4 Southeast Airports Disaster Operations Group. https://seadogops.com/.
5 NCDOT Division of Aviation. 2025. Hurricane Helene After-Action Report: Western North Carolina General Aviation Airports. https://connect.ncdot.gov/municipalities/State-Airport-Aid/Documents/Helene%20After%20Action%20Airports.pdf.
6 NCDOT Division of Aviation. 2025. Tactical Guidelines for Airport Operations During Disaster Response. https://connect.ncdot.gov/municipalities/State-Airport-Aid/Documents/Tactical%20Guidelines.pdf.
Farmer explained that the airport needed to understand its true ground capacity. Farmer’s team worked with the fixed-based operator to coordinate and create a slot allocation to manage traffic. The airport worked with the Federal Emergency Management Agency (FEMA) to create a call-in line to get a slot for donation drop-off.
Bryan asked if the region experienced any issues following the initial impacts.
Schronce replied that the greatest accomplishment was having no injuries or collisions at airports during the hurricane and during the recovery efforts, even with congestion at the airports.
Rushing added that SEADOG helped to manage jet fuel needs across the state and region. He said the supplier was unable to provide jet fuel for 5 days because of power outages and flooding.
Schronce explained that there was also an issue with fueling due to the worker strike at the Port of Wilmington that occurred during the event. He said NCDOT helped coordinate fuel deliveries, develop plans to split loads for drop-off at multiple airports, and ensure the correct fuels were going into the correct aircraft.
Farmer explained that the AVL staff initially had no access to digital files, including standard operating procedures and employee contact lists. The hurricane hit at 5:00 a.m. Eastern Standard Time on Friday morning, and the airport could not account for staff until Monday evening because it lacked access to digital files. She indicated that it was a lesson learned to have paper copies of certain information that would be needed during an emergency.
Rushing indicated that Starlink represents a cost-effective resource for communications during emergency response, and plans can be cancelled and restarted as needed. He explained that satellite phones are for voice only, but Starlink has Wi-Fi access, which could potentially provide access to documents stored in a cloud account when servers are down.
Schronce added that there were also general communication access constraints. He provided an example that phone calls would last only 20 seconds. He said multiple airports in the region are untowered. The National Guard brought in mobile ATC towers to serve areas without towers and manage operations. He advised working with the National Guard in advance for an emergency plan.
Bryan noted that there seems to be a pattern in Florida in which typical afternoon storms are becoming major events. He provided the example of Fort Lauderdale–Hollywood International Airport flooding due to a weather event dropping 28 inches of rainfall in 28 hours. He said the flooding caused cascading impacts, including limiting fuel inventory because of flooding at Port Everglades, a major fuel depot for Florida.
Farmer suggested that airport operations teams need to ensure that they have the airlines’ information, including local representatives and the integrated operations centers. Additionally, airlines need to plan for potential lack of fuel and potable water. Farmer explained that after Hurricane Helene, the AVL had no potable water for 7 weeks, causing problems for airlines, concessions, and other airport operations. The volume of water rushing down the mountains took out all infrastructure, including cell towers and cell-tower generators. At the airport, a new diesel generator tank had just been filled, and the fuel was able to be used in the existing terminal generators.
Rushing explained that SEADOG manages behind-the-scenes work, including coordination with FAA, certification inspectors, the FEMA regional air operations group, and state departments of transportation (DOTs). SEADOG supported the Fort Lauderdale–Hollywood International Airport after the flood by sending sweepers, dump trucks, and other equipment. SEADOG works with state DOTs to expedite waivers and permits for oversized trucks to provide cross-state coordination and brings not only relief supplies but also comfort supplies such as food and snacks.
Schronce suggested that the takeaway message from Hurricane Helene is that airports are amazing hubs for various emergency response components. Airport facilities can be used in a variety of ways. The public in North Carolina now sees general aviation airports as a lifeline for supplies. Schronce emphasized that effective emergency response requires a network that extends beyond local contacts.
The session then transitioned to a Q&A period with the audience.
Question 1: How much lead time and what kind of early warning message does an airport receive?
Rushing replied that hurricane season begins on June 1. SEADOG begins gearing up in advance of the season. When a hurricane develops, SEADOG begins outreach to member airports within the cone of uncertainty up to 120 hours in advance of expected landfall.
Schronce added that the state begins to shift supplies and prepare within 48 hours before the storm. NCDOT’s flood warning sensors begin to flash hours into the event.7 State sheriffs are informed and help to evacuate people in impacted areas.
Question 2: Was the level of flooding and damage expected?
Farmer replied that the airport was not ready for the level of damage experienced. She noted that in the case of Hurricane Helene, the airport experienced 10 inches of rain
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7 NCDOT. 2024. Flood Warning System. https://www.ncdot.gov/initiatives-policies/Transportation/flood-warning-system/Pages/default.aspx.
before the hurricane hit. Areas flooded that have never historically experienced flooding, which led to unpredictable and catastrophic infrastructure failure. Stakeholders need to prepare in advance for emergency procedures.
Question 3: Please share if there was any successful mitigation planning that could be used by other airports.
Schronce replied that flood sensors on rivers and streams throughout the state were very helpful. NCDOT pre-positioned equipment for response but, even with preparation, were not prepared for how extreme the flooding was.
Question 4: How should airports consider funding and planning for weather events? It is difficult to justify spending to prepare for severe weather events with high risk but low probability.
Farmer replied that the AVL board approved funding for satellite phones, which are an affordable option since the airport will not be charged for them until they need to be activated. Once activated, they will cost $12,000; however, it is good to be prepared and have them in case they are needed. She suggested setting aside funding for satellite phones and obtaining hot spots from multiple carriers in case different service providers go down. During the Hurricane Helene recovery, there were not enough radios for communications. The airport assessed the lighting system and ordered parts required for fixes but still had not received the parts as of May 2025. Farmer suggested ordering backup parts for high-impact infrastructure because some parts may have up to a 16-week lead time. She also suggested obtaining backup parts for generators to enable airfield lighting systems to remain operable.
Rushing noted that many airports have conducted airfield lighting upgrades to light-emitting diode (LED) lights, but LED lights might stop working. He suggested stockpiling old lights to use as backup. He also noted that capacitors for regulators have a long lead time, so it is ideal to have backups.
Question 5: Acknowledging that severe weather systems often merge to develop more intense storms, how can we consider regional partnerships to prepare for them?
Rushing shared that 270 airports across the country are members of SEADOG. There is also an organization called the Western Airports Disaster Operations Group (WESTDOG) that has a different structure.8 SEADOG is purely voluntary, and responders have no expectation of reimbursement; the organization creates mission numbers so that volunteers can submit information for FEMA reimbursement. SEADOG works with other organizations (e.g., airports, FAA, and industry associations) and
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8 WESTDOG. 2012. Appendix B WESTDOG Manual. In ACRP Report 73: Airport-to-Airport Mutual Aid Programs. Transportation Research Board of the National Academies, Washington, DC, 2012. https://nap.nationalacademies.org/read/22754/chapter/15.
shares resources on their website,9 including the recent Airport Disaster Recovery Planning Guide, which was developed by aviation emergency-management professionals.10
Farmer noted that airlines and private airlines can provide support.
Question 6: What was learned from issues related to the inability to land helicopters delivering supplies?
Farmer replied that helicopter drops were critical for communities that were cut off from services and utilities. Supplies were dropped via parachutes and sling cable operations.
Schronce added that NCDOT determined available landing sites for helicopters, including high-school football fields. The most important lesson was communicating and sharing real-time information with the community. NCDOT started blue-screen updates with information about recovery to share accurate information and answered questions from the community via social media websites.
Panel 2
Opportunities for Stakeholder Coordination and Partnerships
Meredith Pringle, Converge Strategies LLC, Moderator
Airports interface with many stakeholders and partners in preparing and responding to weather events. This session featured lessons learned related to stakeholder management and consensus building.
Meredith Pringle served as moderator for the panel and introduced the panelists. She impressed the importance of data sharing across stakeholders when developing and planning for resilience and recovery response.
Hollie Schmidt introduced the Jacobs team’s work at Tyndall Air Force Base (AFB) to rebuild infrastructure after Category 5 Hurricane Michael hit the AFB in 2018. She
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9 SEADOG. n.d. Southeast Airports Disaster Operations Group. https://seadogops.com/resources-tools/.
10 Denver International Airport. 2025. Airport Disaster Recovery Planning Guide. Emergency Management. https://seadogops.com/wp-content/uploads/2025/02/Airport-Disaster-Recovery-Planing-Guide.pdf.
explained that the team used predictive modeling to design and build more resilient and sustainable projects that meet new design standards, including top wind-speed and flood-elevation requirements. Exceeding the minimum requirements of local code, the Jacobs team developed design and technical guidelines for built and natural aspects of the project. The team coordinated with the Army Corps of Engineers’ Engineering With Nature program11 on the design and mapped the stressors and acute shocks.
Steve Nagy serves as director of operations for Portland International Airport (PDX) and two general aviation airports that are also owned by the Port of Portland. He explained that from an infrastructure-owner perspective, the Port of Portland has faced many challenges and risks. PDX is situated adjacent to the Columbia River, which has levees for flood control. The airport experiences various weather challenges and stressors, including heat, wildfires, and drought. Nagy reported that the Port of Portland is planning for seismic resiliency, which is a challenge throughout the Pacific Northwest region. He explained that based on the historical geology of the region, scientists anticipate that the region can expect a 9.0 Cascadia earthquake with anywhere from 200 to 900 years between large events. Nagy added that there is evidence that a tsunami hit Japan in the 1700s, so the region expects an intense earthquake sometime soon.
To prepare for this event, Nagy noted the Port of Portland began planning for resilience in 2010 and developed partnerships with FEMA and other stakeholders. He added that the State of Oregon developed a statewide resiliency plan in 2013,12 and the Port of Portland developed a Seismic Risk Assessment Study in 2015.13 Additionally, the Port of Portland’s team visited Sendai, Japan, which experienced a 9.1 earthquake, to learn about runway resilience methods.14 The team learned that runways in Sendai are built on piling sent down to bedrock to withstand seismic events.
Nagy shared that PDX developed a resilience plan to ensure critical infrastructure could withstand a seismic event. As the first phase of PDX’s new main terminal is almost complete, six gates within the concourse were designed to be resilient to a seismic event. The $3 billion investment in terminal facilities is anticipated to be completed in 2026 and will upgrade seismic resilience to withstand a magnitude 9.0 earthquake.
Nagy noted that a seismically resilient runway, which has been estimated to cost $400 million, is the next step in PDX’s resilience planning. Nagy explained that funding this
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11 Engineering With Nature. https://ewn.erdc.dren.mil/.
12 Oregan Seismic Safety Policy Advisory Commission (OSSPAC). 2013. The Oregon Resilience Plan: Reducing Risk and Improving Recovery for the Next Cascadia Earthquake and Tsunami. OSSPAC. https://www.oregon.gov/oem/documents/00_orp_table_of_contents.pdf.
13 Port of Portland. 2015. Seismic Risk Assessment Study. https://cdn.portofportland.com/pdfs/Executive_Summary_Port_Seismic.pdf.
14 The Tohoku Earthquake and Tsunami event occurred on March 11, 2011. Source: https://www.ncei.noaa.gov/news/day-2011-japan-earthquake-and-tsunami.
infrastructure will require collaboration with federal, state, and local partners. The airport would serve as a critical resource during recovery from an intense earthquake. He explained that the airport’s runway sits on dredge fill material adjacent to the river, and liquefaction of the ground is expected during a seismic event. Additionally, the airport is located within a floodplain, so the bedrock is too deep to drill into. Therefore, the airport partnered with Oregon State University to study design considerations for the runway, conduct testing, and research runway impacts. Nagy emphasized that public and private partnerships are key when considering interdependencies and infrastructure at a regional level.
Jason Bird is a resilience practitioner specializing in natural hazard mitigation and coastal resilience implementation planning with experience working at multiple airports. He explained that the United Nations’ ARISE, the Private Sector Alliance for Disaster Resilient Societies, is a public–private partnership (PPP) network for information sharing that also provides frameworks for assessing organizational risk.15 Bird stated that PPPs are key to working together on regional approaches to resilience to address shocks and align on challenges related to governance and supply chains during recovery. He noted that the U.S. Department of Defense (U.S. DoD) Military Installation Readiness Review (MIRR) program, supported by the Office of Local Defense Community Cooperation (OLDCC), provides community grant funding to enhance the reliability of U.S. DoD missions and enhance robustness of private infrastructure through a regional approach.16 He explained how the program brings together many partners, including local leaders, military, regional planning councils, and community groups to enhance service reliability and safety of critical infrastructure. Key partners include housing coalitions and groups that must consider affordable housing for military installations and disaster-response organizations.
Pringle noted the common thread emphasizing regional resilience. She then asked Nagy how Portland has proactively worked with other partners to prepare for severe weather events.
Nagy reiterated the importance of engaging at the state level for emergency and disaster preparedness. The Portland region has been planning for a Cascadia seismic event for the last 15 years, including state and county coordination and preparedness efforts. PDX seeks to improve the resiliency of their utilities; toward that effort, PDX is developing a community solar partnership for the airport. He explained the Port of Portland layers resilience into capital planning and regional planning and seeks partnerships with academia, including Oregon State University. Furthermore, the
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15 UN Office of Disaster Risk Reduction. n.d. ARISE. https://www.ariseglobalnetwork.org/explore/about.
16 As of July 2025, the OLDCC refers to the MIRR as the “Installation Readiness program.” Resources and recent studies are available on the OLDCC “Installation Readiness” website available at https://oldcc.gov/our-programs/installation-readiness.
University’s Cascadia Lifelines Program17 helps regional and local stakeholders prioritize investments.
Pringle asked the panel how assessments and modeling are used to inform decision-making. She asked panelists to elaborate on how risks are identified to justify funding for mitigation and resilience efforts.
Schmidt discussed how it is critical to justify investment for high-damage and low-probability events. She stated that it requires conversations on organizational risk and post-disaster preparedness. Economic assessments and risk-avoidance studies can be used to help justify investments. After an emergency or major event, there is often more tolerance to invest in resilience. She provided her work at Tyndall AFB as an example of coastal resilience projects that represented a partnership between 30 different organizations in the region. She said the team recognized the importance of coastal islands for ecosystem services and flood mitigation and secured $20 million in funding to support nature-based solutions for flooding resilience. She shared that it is critical for stakeholders to identify common goals for resilience that benefit multiple parties.
Bird cited a recent study from the U.S. Chamber of Commerce that found $1 invested pre-disaster saves $13 post-disaster.18 He recognized that the funding challenge remains, but “incremental adaptation is key.” He emphasized how important it is for organizations to understand their vulnerabilities and risks and determine their critical infrastructure so they can prioritize hardening these based on resources available. Bird described how it is critical to prevent disasters through preparedness and how planning for the future reduces maintenance costs and increases lifespans. He offered, “Planning for tomorrow today—that’s the only way.”
Peter Schultz shared that he worked on an ACRP project on weather resilience, titled ACRP Research Report 188: Using Existing Airport Management Systems to Manage Climate Risk.19 The report focuses on incorporating consideration of severe weather risk into existing management systems at airports. He suggested that within airport capital planning, changes in design standards need to be considered to recognize and mitigate against future risks and incorporate emerging best practices. Enterprise risk management can be used to identify a link between a hazard, mitigate risk to the extent possible, and monitor performance over time. Schultz emphasized that as hazards and risks evolve, so should planning to mitigate them. He shared that it is possible to set
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17 Oregon State University. 2025. Cascadia Lifelines Program. https://cascadia.engineering.oregonstate.edu/.
18 U.S. Chamber of Commerce. 2024. The Preparedness Payoff: The Economic Benefits of Investing in Climate Resilience. https://www.uschamber.com/security/the-preparedness-payoff-the-economic-benefits-of-investing-in-climate-resilience.
19 ICF; Gresham, Smith & Partners; and Faith Group LLC. 2018. ACRP Research Report 188: Using Existing Airport Management Systems to Manage Climate Risk. Transportation Research Board, Washington, DC. https://doi.org/10.17226/25327.
forth key performance indicators for responding to severe weather events in the face of increasing storm frequency. Airports can test systems to prepare for the larger events and continually improve over time. However, emergency management is not limited to the airport site but also involves working with partners and utility service providers who are working off-site for response efforts. He referred to ACRP Research Report 188 as a resource the industry can use to work with their leadership and obtain support to plan for severe weather and response. The report also includes a Quick Start Guide20 and a template for communicating with airport executives.21
Nagy offered how PDX airport has coordinated with their airline stakeholders to design certain terminal facilities to withstand seismic events to allow the airport to serve as a hub for the region for emergency response. He explained how the ongoing terminal reconstruction project at PDX was designed to serve the airport for the next 30 years, so it was important to the airport to ensure it could withstand a future earthquake. The Port of Portland analyzed the costs and determined that for approximately 10 percent additional cost, the facilities could be built to withstand seismic events. The project utilizes ground-source heating and cooling to improve energy efficiency.22 PDX seeks to build a seismically resilient runway to serve as a regional asset. Nagy reported that the runway is 7,500 feet, and the Port of Portland is seeking to partner with regional and federal stakeholders, including FEMA, FAA, and U.S. DoD, to fund the runway resilience project. Additionally, the Port of Portland partnered with the National Institute of Buildings on a cost–benefit analysis to quantify the value of a seismically resilient runway and justify investment. The study showed $7.5 million in cost-avoidance benefits, including allowing businesses in the region to remain operational, since rebuilding a runway could take multiple years. Additionally, the runway would provide the ability for medical transport of injured people out of the region when local hospitals run out of capacity. The Port of Portland also engaged Portland State University on an economics and equity study to determine how Port workers will be impacted.23 Nagy emphasized how keeping the airport operational will keep people employed throughout a disaster event so that their jobs are not lost.
Schmidt discussed the benefits of developing a partnership and stakeholder coalition between a port or airport and the larger region and community when planning for severe weather and disaster response, including identifying federal partners. She noted that the airport serves as an economic engine and a hub for disaster response to benefit the
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20 https://onlinepubs.trb.org/onlinepubs/acrp/acrp_rpt_188_quickstart.pdf.
21 https://onlinepubs.trb.org/onlinepubs/acrp/acrp_rpt_188_template.pdf.
22 PDX. 2023. PDX is doubling our energy efficiency. Here’s how. PDX. November 8, 2023. https://www.pdxnext.com/Stories/Details/sustainability-and-energy-efficiency.
23 Naseh, M., A. Golub, and M. Oschwald. 2022. Portland Resilient Runway Equity Study. Port of Portland and Portland State University.
community. Airports can map their stakeholders to find common goals and identify funding opportunities.
Facilitated Large-Group Check-In Discussions
The panel wrapped up, and participants transitioned to a facilitated breakout group discussion with other attendees at their tables to discuss takeaways from the panel and any questions for the panelists. Pringle then facilitated report-sharing from each table that involved a representative from each table summarizing their small group’s discussion.
The representative from the first table shared that their group discussed whether there is a need to create templates for design standards based on hazards and events. They also discussed whether the economic analyses were successful in obtaining investments from the airlines into more resilient airport facilities. The representative presented these two topics to the panel members for feedback.
Nagy noted that FAA runway design standards dictate design; therefore, the airport must coordinate with the FAA regional administrator to ensure buy-in on any modifications to standards for resilience. Nagy also mentioned there is potential Airport Improvement Program (AIP) funding for resilience projects. For infrastructure projects that benefit the whole region, such as a resilient runway, Nagy suggested the airport look for regional funding opportunities. For infrastructure projects that improve passenger capacity, he suggested the airport look for airline partnerships. Nagy concluded that airports should tailor their funding proposal to each specific partner to determine what resonates with them and aligns with their shared goals.
Schmidt offered that standards are difficult to develop because risk is very location-specific and varies from airport to airport. She suggested that airports start with predictive modeling and then develop performance standards. Schmidt illustrated that airports could develop standards for flood elevation and maximum wind speeds that exceed minimum code requirements and include these within technical guidelines and requests for proposals for development. Additionally, airports can map specific events to achieve effective and appropriate standards.
Bird provided the Port Authority of New York and New Jersey (PANYNJ) standards for resilience as an example.24 He reiterated that although there are unique nuances for airports, airports can partner with their local cities, counties, and other groups working on resilience beyond the airport industry to tap into existing knowledge sources,
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24 PANYNJ. 2025. Climate Resilience. https://www.panynj.gov/port-authority/en/about/Environmental-Initiatives/climate-resilience.html.
especially on a local or regional level. Bird noted that taking a regional approach to resilience standards and actions can be powerful to move efforts forward.
Nagy added that the Port of Portland continues to apply resilience lessons learned from the aviation line of business to other Port of Portland assets and lines of business.
The representative from the second table discussed the potential challenge of obtaining internal stakeholder buy-in on exceeding design standards, and the representative asked for the panel’s feedback on how to overcome these obstacles and encourage innovation. The table representative also asked for panel feedback on lessons learned from U.S. DoD exercises for MIRR. The table discussed how to prioritize and allocate limited funding if an airport owner manages multiple airports.
Schultz replied that there is guidance available on internal engagement in Chapter 3, “Build Support,” of ACRP Research Report 188: Using Existing Airport Management Systems to Manage Climate Risk.25 He explained that he is not aware of a best-practices document from MIRR, but there is an opportunity for the U.S. DoD OLDCC to collect best practices to document the value of exercises. Schultz noted that live exercises are very effective in the military and could be used at airports to practice emergency response.
Schmidt referenced a podcast that includes a discussion of the importance of engaging with others to share ideas, identifying solutions, and getting out of your comfort zone.26
Nagy noted that, “It all starts with purpose.” Resilience planning involves bringing many internal and external partners to the discussion. The Port of Portland created a resilience program within the organization showing commitment from the top down to prioritize these considerations.
Bird added, “It all starts with leadership.” He noted that it is critical to inform and develop leaders as champions for resilience, and it is beneficial to show impacts to revenue streams, including regional impacts to businesses and commerce. He also illustrated the importance of planning for incremental adaptation to build resilience over time through smaller investments. Bird suggested this approach to review asset management, change design standards, impact capital investment, and consider new metrics, recognizing that new systems and processes require people and resources
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25 ICF; Gresham, Smith & Partners; and Faith Group LLC. 2018. ACRP Research Report 188: Using Existing Airport Management Systems to Manage Climate Risk. Transportation Research Board, Washington, DC. https://doi.org/10.17226/25327.
26 Schmidt, H. J., and P. Thies. 2023. From Ambition to Action: Bridging the Gap with Sustainability. Plan Beyond, episode 84. Podcast audio. Jacobs. https://www.jacobs.com/sites/default/files/2023-12/86_Sustainability_Bridging_the_Gap.pdf.
to manage them. He then proposed enhancing systems that currently exist to add additional capabilities.
Pringle posed a check-in question to attendees, “What is one thing you heard this morning that you can apply to your work?” Feedback from the audience included the following points:
- The statistics from Wescott’s keynote address are applicable to airport planning.
- SEADOG can be a useful resource for airports.
- Airports should consider the modifications to FAA standards identified for Naples Airport for taxiway edge lighting due to flooding.
- It is critical for airports to prepare now for severe storms that are anticipated by 2032.
- Airports should consider not only infrastructure resilience but also human impacts and how to support staff and community following a weather event while ensuring the airport remains operational, including feeding and potentially housing staff if they cannot get to their homes.
- Airports should prepare for psychological impacts on employees and provide resources following the event, including mental health support services.
- Recovery following an event is not isolated to the airport; it is often communitywide, which increases the cost of rebuilding.
- The workload to recover from an event is higher than the normal pace of operations, and staff may be overworked. Airports should consider how to integrate staff who volunteer their support during recovery, even if they do not typically support emergency response or public safety. Mental health resources are very important as well.
- Tyndall AFB and its community were decimated. There was a human toll in recovering both the air base and the homes. The workload to recover versus the workload to maintain normal operations is very different. A lot of manpower was needed, and a decision structure was needed to make decisions on recovery. Pringle quoted: “Be prepared to respond.” Contracts, relationships, networks, and internal resources are needed in recovery, and a plan needs to be in place. Also, the cost of recovery is high when the whole region is rebuilding because resources are in high demand, and contractors will charge a premium.
Panel 3
Funding Pathways for Infrastructure Projects
Melinda Z. Pagliarello, Airports Council International–North America, Moderator
Patty Clark, Project Gestalt, Patty Clark Aviation Advisors
Danelle Peterson, Port of Portland
TJ Schulz, Airport Consultants Council
This session covered recent information related to procuring federal funding for airport infrastructure projects. The panel highlighted how airports should justify funding for airport resilience projects to prepare for severe weather.
Melinda Z. Pagliarello opened the discussion as the moderator and noted that there were some panel changes within the past 2 weeks due to the evolving administration changes and other staffing changes. She introduced herself and asked the panelists to introduce themselves. Pagliarello stressed that airport leaders should get familiar with the most recent FAA Grant Assurances, published in April 2025, which impact discretionary grant funding.27 She opened the panel to obtain feedback from the panelists on the recent changes.
Danelle Peterson shared that she has worked on resilience planning for the Port of Portland for the past 2 years. On April 21, 2025, the Port of Portland revoked its Social Equity Policy to meet FAA Grant Assurances. The Port of Portland relies on federal funding to maintain navigation channels and the airport, which requires them to follow the federal requirements.
TJ Schulz discussed the updated FAA Grant Assurances and uncertainty related to FAA discretionary grants. Schulz noted that project framing is critical to align with FAA requirements. He stated that under the 2023 AIP, $250 million in supplemental AIP funding went directly to airport resiliency, sustainable aviation fuel, and emissions reduction projects. The 2024 FAA Reauthorization Bill requires airports to consider impacts of hazardous weather events and resilience. It also requires a coastal airport assessment on the resiliency of coastal airports. Ideally, FAA will begin to fund these types of projects. Executive Orders clearly state that they apply unless a statute applies, which would include the FAA Reauthorization Bill.
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27 FAA. 2025. Grant Assurances (Obligations). U.S. DOT. https://www.faa.gov/airports/aip/grant_assurances.
Patty Clark shared her experience from her former role at the PANYNJ when administrations changed politically and how it impacted work at the Port. She suggested that it is often helpful to reframe the need for projects to align with leadership priorities. She offered that creative storytelling can be a useful tool.
Pagliarello shifted the conversation to focus on cost avoidance.
Schulz suggested reframing project purposes to align with current FAA priorities. He proposed highlighting preparedness, efficiency, infrastructure protection, reducing costs of service interruptions, economic benefit, and cost savings.
Peterson reiterated the importance of identifying anticipated cost savings and aligning project objectives with larger goals of the organization. She suggested considering the co-benefits of projects and offered the example of how much runway closures cost and how air-quality impacts can be quantified.
Clark provided an example of a costly runway closure for a runway rehabilitation project at John F. Kennedy International Airport. She shared that her team was able to work with airlines and FAA on an analysis that showed the benefit of rebuilding the runway by using concrete and raising it by 13 inches to improve resilience. This would protect the runway against flooding and avoid costs associated with shutting down the runway. During Hurricane Sandy, the raised runway was protected. PANYNJ adopted standards for critical infrastructure to improve resilience.
Schulz added that insurance providers are also looking to identify risks. Schulz suggested that airports should consider the extent to which infrastructure designers identify risks and mitigation measures for resiliency to weather events.
Peterson discussed how she works internally with the Port of Portland’s risk department to operationalize tools that the Port actively uses. She ranks risks and assesses asset failure and the potential costs. She suggested developing a consolidated resilience plan, including identifying internal and external partnerships, and resources that various departments need after a weather event occurs. Peterson noted that it is important to assess regional risk, understand local data, develop partnerships, and plan to mitigate impacts.
Schulz offered that asset management systems allow an organization to map its assets as a first step in inventorying current infrastructure. He emphasized that it is difficult to prioritize repairs following a weather event if the inventory of existing infrastructure is not up to date.
Clark discussed utilizing resilience analytics to inform funding. She pointed out the need for data and cost–benefit analyses to justify investments in resilience. She outlined that there are different levels of recovery after a weather event depending on the
stakeholders who are involved. Reopening a runway represents one level of recovery, but returning all facilities and operations to normal often takes additional time and resources. She noted that success depends on the metrics being used to evaluate and return to normal operations. Clark is on a research team, the Center for Air Transportation Resilience, working to address resilience in aviation.28
Pagliarello continued the conversation on airport insurance and the shift for rating agencies to consider climate impacts in the rating process.
Schulz discussed the climate risk matrix, the bond market, and the significance of airports quantifying the cost of loss of operations. He noted the importance of a safety management system for airports. Schulz posed the question, “How can climate considerations be included within existing systems to help prioritize potential impacts?”
Peterson stated that insurance is used as a last tool to mitigate residual risk. Planning, preparation, and mitigation projects help the airport receive a better insurance rate.
Clark noted that PANYNJ has an agency-level risk department. She added that maintenance funding is always a challenge to obtain.
The session then transitioned to a Q&A period with the audience.
Question 1: An attendee commented that they have observed strained capacity for infrastructure maintenance as a challenge at the airport where they are employed. As capital improvement projects are completed, maintenance needs grow. Airport facilities teams must respond to everyday challenges while planning for regular maintenance of new infrastructure. The attendee noted they have observed burnout on the maintenance team. Should airports consider contracting for maintenance of new infrastructure?
Schulz referenced ACRP Research Report 273: Quantifying the Impacts of Delayed Maintenance of Airport Assets as a resource for attendees.29 This resource provides information on developing an asset management plan.
Peterson suggested adding redundancy to existing systems to improve resilience.
Question 2: In terms of resilience planning, what metrics can be used to measure system recovery?
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28 UC Berkeley. 2025. Center for Air Transportation Resilience. https://catres.berkeley.edu/.
29 Shrestha, P., S. Murrell, B. Aho, W. R. Williams, D. Ward, and G. Gad. 2024. ACRP Research Report 273: Quantifying the Impacts of Delayed Maintenance of Airport Assets: A Guide. Transportation Research Board, Washington, DC. https://doi.org/10.17226/27960.
Andrew Bermond from Santa Barbara Airport offered that for FAA ATC, recovery may occur when runways and airspace are open and safe. For airlines, recovery may occur when passengers are no longer delayed and their staff can return home. The closing of an emergency operations center (EOC) is not necessarily an indicator that an airport has returned to normal. There are many activities to get back to normal operations. ACRP Research Report 189: Design Considerations for Airport EOCs provides guidance for EOC design and resources related to establishing and enhancing EOCs.30
Sandy Hertz, chair of National Cooperative Highway Research Program (NCHRP) Project 23-32, “Transportation Asset Risk and Resilience,” discussed communication related to response and recovery after weather events. She emphasized the importance of quantifying how long it takes for the airport to return to its normal operations, which also depends on the type of incident. There are many interdependencies with other systems, including utilities and airlines. Hertz noted that airports cannot be responsible for other components of the system, so they should consider performance measures that are fully within the airport owner’s control.
Clark suggested triaging investing decisions. She noted that resilience studies can be done to identify a laundry list of projects to mitigate weather impacts. This list can be referenced if funding becomes available and projects have been studied and are ready to be implemented.
Pagliarello inquired whether any participants had feedback on funding opportunities or recovery needs for small hub airports.
Rushing noted that there are different lenses from which to view recovery. He provided an example of a terminal evacuation due to a bomb threat. He noted that the security checkpoint reopened to commercial passengers within a few hours. The airport was operational, but airlines were not recovered because of the delays caused by the evacuation, and passengers were affected. Rushing suggested that airports develop metrics to define “fully operational versus full recovery.”
Hertz offered that if an airport has documentation of plans and standard practices, these components can be packaged into a resilience portfolio. This may include a continuity of operations plan. She has observed that certain rating agencies have required evidence of climate resilience practices to inform bond rating and to obtain
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30 Benaman, H. 2018. ACRP Research Report 189: Design Considerations for Airport EOCs. Transportation Research Board, Washington, DC. https://doi.org/10.17226/25280.
funding for improvements. ACRP Synthesis 78: Continuity of Operations Planning for Small Airports provides resources related to business continuity planning practices at airports of different types and sizes.31
Question 3: A participant asked the panel how they would allocate funding for resilience work across the airport system in terms of ranking risk and investments across the system.
Clark suggested calculating the return on investment and identifying meaningful benefits. She also emphasized that it is beneficial to fund projects that meet multiple FAA objectives.
Question 4: A participant inquired about financing and delivery mechanisms for resilience projects.
Schulz noted that FAA is very comfortable with design–bid–build delivery methods. He shared that there is an opportunity to utilize alternative delivery methods for disaster response. Urgent infrastructure needs can compel alternative delivery methods for expediency. He noted that FAA is updating its guidance on project delivery methods and that aviation trade associations, including the Airports Consultant Council and Airports Council International–North America, have resources for sharing information on construction strategies.
Question 5: Considering the existing political climate, if emergency response was delegated to the states instead of FEMA, how would that impact airports?
Clark noted that FEMA is an honest broker that comes in and manages disaster response for people who are scared and vulnerable. It is her personal opinion that FEMA is needed in a time of disaster.
Peterson added that she believes that it would be difficult for states to respond to a disaster when they are experiencing a disaster—that is why FEMA is needed. It is her personal opinion that without FEMA there would be a huge gap in disaster recovery resources, and there might be a lack of sense of security during recovery.
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31 Varma, A., S. Germolus, and D. Beaver. 2016. ACRP Synthesis 78: Continuity of Operations Planning for Small Airports. Transportation Research Board, Washington, DC. https://doi.org/10.17226/23675. Recent guidance and resources are also provided in ACRP Research Report 268: Integrating Crisis Management and Business Continuity at Airports: A Practical Guide (P. Van Horne, A. Saulcy, G. Lee, P. Villegas, A. Armstrong, B. Giles-Jones, K. Scott, D. DiMaria, W. MacMillan, S. Warner-Bean, R. Agnew, and C. Coverdell), Transportation Research Board, Washington, DC, 2024. https://doi.org/10.17226/27915.
Schulz explained that airports often serve as a haven and provide a sense of security following weather events, as they may have power and other resources available. He provided examples of the New Orleans, Puerto Rico, and Asheville airports serving as a beacon of hope for their communities.
Farmer added that AVL was significantly impacted financially with profits greatly reduced during recovery from Hurricane Helene. Staff were paid overtime, and the airport provided additional hazard pay for doing dangerous work. They also paid for hotel rooms for staff who supported recovery. Farmer noted that during recovery from Hurricane Helene, FEMA response was critical, but for the airport, the Prior Permission Request lines were critical for managing federal and mutual aid assistance that was being flown into the region to ensure safe operations.32
Pagliarello noted that AVL was also managing an ongoing terminal modernization project when Hurricane Helene impacted the airport.
Farmer acknowledged that construction is moving forward post-recovery, including the ATC tower and terminal projects. The ATC project was delayed, but no damage was done to the facility or the terminal. As of May 2025, the airport remained on track to open the new terminal in June 2025. Farmer noted that the region built a strong leisure market during the COVID-19 pandemic, and the local economy will recover with time.
Pagliarello acknowledged the interconnectedness of all these aspects and encouraged the participants to continue to brainstorm possible problem statements. She suggested identifying a minimum level of service in a set timeframe to identify the need for funding.
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32 North Carolina Department of Transportation. n.d. Helene: Pilots & Aviation Partners Coordination. https://connect.ncdot.gov/municipalities/State-Airport-Aid/Pages/Helene.aspx.
