Reducing and Managing Disruptive and Unruly Behavior in Airports: A Guide (2025)
Chapter: Front Matter
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| ACRP Research Report 280 |
Airport Cooperative Research Program Sponsored by the Federal Aviation Administration |
Reducing and Managing Disruptive
and Unruly Behavior in Airports
A GUIDE
ACRP OVERSIGHT COMMITTEE*
CHAIR
Marianne Csaky
LanzaJet
VICE CHAIR
Cathryn Stephens
Eugene Airport
MEMBERS
Clara Bennett
Boca Raton Airport Authority
Melissa Cooper
Kansas City Aviation Department
Darryl Daniels
Jacobsen Daniels Associates
Wayne Heibeck
Federal Aviation Administration
Kimberly A. Kenville
University of North Dakota
Lance Lyttle
Seattle-Tacoma International Airport
Chad Makovsky
City of Phoenix (AZ)
Ramon Ricondo
Ricondo and Associates, Inc.
Atif Saeed
Philadelphia International Airport
Jesus H. Saenz, Jr.
San Antonio Airport System
EX OFFICIO MEMBERS
Justin Barkowski
American Association of Airport Executives
[Vacant]
U.S. Environmental Protection Agency
Laura Rinaldi McKee
Airlines for America
Christopher J. Oswald
Airports Council International–North America
Gregory Pecoraro
National Association of State Aviation Officials
T.J. Schulz
Airport Consultants Council
Victoria Sheehan
Transportation Research Board
SECRETARY
Monique R. Evans
Transportation Research Board
TRANSPORTATION RESEARCH BOARD 2025 EXECUTIVE COMMITTEE*
OFFICERS
CHAIR: Leslie S. Richards, Professor of Practice, University of Pennsylvania, Philadelphia
VICE CHAIR: Joel M. Jundt, Secretary of Transportation, South Dakota Department of Transportation, Pierre
EXECUTIVE DIRECTOR: Victoria Sheehan, Transportation Research Board, Washington, DC
MEMBERS
James F. Albaugh, President and CEO, The Boeing Company (retired), Scottsdale, AZ
Carlos M. Braceras, Executive Director, Utah Department of Transportation, Salt Lake City
Douglas C. Ceva, Vice President, Customer Lead Solutions, Prologis, Inc., Jupiter, FL
Nancy Daubenberger, Commissioner of Transportation, Minnesota Department of Transportation, St. Paul
Marie Therese Dominguez, Commissioner, New York State Department of Transportation, Albany
Garrett Eucalitto, Commissioner, Connecticut Department of Transportation, Newington
Andrew Fremier, Executive Director, Metropolitan Transportation Commission, San Francisco, CA
Martha Grabowski, Professor Emerita, Information Systems, Le Moyne College, Madden College of Business & Economics, Cazenovia, NY
Randell Iwasaki, President and CEO, Iwasaki Consulting Services, Walnut Creek, CA
Carol A. Lewis, Professor, Transportation Studies, Texas Southern University, Houston
Hani S. Mahmassani, W.A. Patterson Distinguished Chair in Transportation; Director, Transportation Center, Northwestern University, Evanston, IL
Scott C. Marler, Director, Iowa Department of Transportation, Ames
Ricardo Martinez, Adjunct Professor of Emergency Medicine, Emory University School of Medicine, Decatur, GA
Russell McMurry, Commissioner, Georgia Department of Transportation, Atlanta
Craig E. Philip, Research Professor and Director, VECTOR, Department of Civil and Environmental Engineering, Vanderbilt University, Nashville, TN
Steward T.A. Pickett, Distinguished Senior Scientist, Cary Institute of Ecosystem Studies, Millbrook, NY
Susan A. Shaheen, Professor and Co-Director, Transportation Sustainability Research Center, University of California, Berkeley
Marc Williams, Executive Director, Texas Department of Transportation, Austin
EX OFFICIO MEMBERS
Michael R. Berube, Deputy Assistant Secretary for Sustainable Transportation, U.S. Department of Energy, Washington, DC
Steven G. Bradbury, Deputy Secretary, U.S. Department of Transportation, Washington, DC
Steven Cliff, Executive Officer, California Air Resources Board, Sacramento
LeRoy Gishi, Chief, Division of Transportation, Bureau of Indian Affairs, U.S. Department of the Interior, Germantown, MD
Firas Ibrahim, Director, Office of Research, Development, and Technology, Office of the Assistant Secretary for Research and Technology (OST-R), Washington, DC
Jason Kelly, Deputy Commanding General for Civil Works and Emergency Operations, U.S. Army Corps of Engineers, Washington, DC
Sandra Knight, President, WaterWonks, LLC, Washington, DC
Ben Kochman, Acting Administrator, Pipeline and Hazardous Materials Safety Administration, Washington, DC
Zahra “Niloo” Parvinashtiani, Engineer, Mobility Consultant Solutions, Iteris Inc., Fairfax, VA, and Chair, TRB Young Members Coordinating Council
Chris Rocheleau, Acting Administrator, Federal Aviation Administration, Washington, DC
Gloria Shepherd, Acting Deputy Administrator, Federal Highway Administration, Washington, DC
Karl Simon, Director, Transportation and Climate Division, U.S. Environmental Protection Agency, Washington, DC
Paul P. Skoutelas, President and CEO, American Public Transportation Association, Washington, DC
Jim Tymon, Executive Director, American Association of State Highway and Transportation Officials, Washington, DC
___________________
* Membership as of May 2025.
* Membership as of May 2025.
AIRPORT COOPERATIVE RESEARCH PROGRAM
ACRP RESEARCH REPORT 280
Reducing and Managing Disruptive
and Unruly Behavior in Airports
A GUIDE
Scott Houston
THE CHERTOFF GROUP
Washington, DC
Michael Everson
ALEAN
Cottage Grove, MN
Michele Freadman
M. FREADMAN CONSULTING, LLC
Attleboro, MA
Jessica Gafford
TRANSSOLUTIONS
Fort Worth, TX
Toshia Shavies Marshall
Conyers, GA
Kate Moore
BEST
Peabody, MA
Danielle Pires
Somerville, MA
Valerie Walker
AFA-CWA
Phoenix, AZ
Subscriber Categories
Aviation • Passenger Transportation • Terminals and Facilities
Research sponsored by the Federal Aviation Administration
AIRPORT COOPERATIVE RESEARCH PROGRAM
Airports are vital national resources. They serve a key role in transportation of people and goods and in regional, national, and international commerce. They are where the nation’s aviation system connects with other modes of transportation and where federal responsibility for managing and regulating air traffic operations intersects with the role of state and local governments that own and operate most airports. Research is necessary to solve common operating problems, to adapt appropriate new technologies from other industries, and to introduce innovations into the airport industry. The Airport Cooperative Research Program (ACRP) serves as one of the principal means by which the airport industry can develop innovative near-term solutions to meet demands placed on it.
The need for ACRP was identified in TRB Special Report 272: Airport Research Needs: Cooperative Solutions in 2003, based on a study sponsored by the Federal Aviation Administration (FAA). ACRP carries out applied research on problems that are shared by airport operating agencies and not being adequately addressed by existing federal research programs. ACRP is modeled after the successful National Cooperative Highway Research Program (NCHRP) and Transit Cooperative Research Program (TCRP). ACRP undertakes research and other technical activities in various airport subject areas, including design, construction, legal, maintenance, operations, safety, policy, planning, human resources, and administration. ACRP provides a forum where airport operators can cooperatively address common operational problems.
ACRP was authorized in December 2003 as part of the Vision 100—Century of Aviation Reauthorization Act. The primary participants in the ACRP are (1) an independent governing board, the ACRP Oversight Committee (AOC), appointed by the Secretary of the U.S. Department of Transportation with representation from airport operating agencies, other stakeholders, and relevant industry organizations such as the Airports Council International-North America (ACI-NA), the American Association of Airport Executives (AAAE), the National Association of State Aviation Officials (NASAO), Airlines for America (A4A), and the Airport Consultants Council (ACC) as vital links to the airport community; (2) TRB as program manager and secretariat for the governing board; and (3) the FAA as program sponsor. In October 2005, the FAA executed a contract with the National Academy of Sciences formally initiating the program.
ACRP benefits from the cooperation and participation of airport professionals, air carriers, shippers, state and local government officials, equipment and service suppliers, other airport users, and research organizations. Each of these participants has different interests and responsibilities, and each is an integral part of this cooperative research effort.
Research problem statements for ACRP are solicited periodically but may be submitted to TRB by anyone at any time. It is the responsibility of the AOC to formulate the research program by identifying the highest priority projects and defining funding levels and expected products.
Once selected, each ACRP project is assigned to an expert panel appointed by TRB. Panels include experienced practitioners and research specialists; heavy emphasis is placed on including airport professionals, the intended users of the research products. The panels prepare project statements (requests for proposals), select contractors, and provide technical guidance and counsel throughout the life of the project. The process for developing research problem statements and selecting research agencies has been used by TRB in managing cooperative research programs since 1962. As in other TRB activities, ACRP project panels serve voluntarily without compensation.
Primary emphasis is placed on disseminating ACRP results to the intended users of the research: airport operating agencies, service providers, and academic institutions. ACRP produces a series of research reports for use by airport operators, local agencies, the FAA, and other interested parties; industry associations may arrange for workshops, training aids, field visits, webinars, and other activities to ensure that results are implemented by airport industry practitioners.
ACRP RESEARCH REPORT 280
Project 07-20
ISSN 2572-3731 (Print)
ISSN 2572-374X (Online)
ISBN 978-0-309-99376-0
Library of Congress Control Number 2025942140
© 2025 by the National Academy of Sciences. National Academies of Sciences, Engineering, and Medicine and the graphical logo are trademarks of the National Academy of Sciences. All rights reserved.
COPYRIGHT INFORMATION
Authors herein are responsible for the originality and accuracy of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein.
The National Academy of Sciences (NAS) grants permission to reproduce written material in this publication for classroom and non-commercial purposes subject to the rights of any third parties and appropriate attribution. Permission is given with the understanding that none of the material will be used to imply NAS, TRB, AASHTO, APTA, FAA, FHWA, FTA, GHSA, or NHTSA endorsement of a particular product, method, or practice. For other uses of the written material, users must request permission from the National Academies Press.
NOTICE
The research report was reviewed by the technical panel and accepted for publication according to procedures established and overseen by the Transportation Research Board and approved by the National Academies of Sciences, Engineering, and Medicine.
Any opinions, findings, and conclusions or recommendations expressed or implied in this document are those of the researchers who performed the research and are not necessarily those of the Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; or the program sponsors.
The Transportation Research Board does not develop, issue, or publish standards or specifications. The Transportation Research Board manages applied research projects which provide the scientific foundation that may be used by Transportation Research Board sponsors, industry associations, or other organizations as the basis for revised practices, procedures, or specifications.
The Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; and the sponsors of the Airport Cooperative Research Program do not endorse products or manufacturers. Trade or manufacturers’ names or logos appear herein solely because they are considered essential to the object of the report.
Published research reports of the
AIRPORT COOPERATIVE RESEARCH PROGRAM
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The National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, nongovernmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president.
The National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. Tsu-Jae Liu is president.
The National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president.
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Learn more about the National Academies of Sciences, Engineering, and Medicine at www.nationalacademies.org.
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Learn more about the Transportation Research Board at www.TRB.org.
COOPERATIVE RESEARCH PROGRAMS
CRP STAFF FOR ACRP RESEARCH REPORT 280
Monique R. Evans, Director, Cooperative Research Programs
Waseem Dekelbab, Deputy Director, Cooperative Research Programs
Marci A. Greenberger, Manager, Airport Cooperative Research Program
Joseph D. Navarrete, Senior Program Officer
Stephanie L. Campbell-Chamberlain, Senior Program Assistant
Natalie Barnes, Director of Publications
Heather DiAngelis, Associate Director of Publications
Claire Aelion-Moss, Editor
ACRP PROJECT 07-20 PANEL
Field of Design
Amiel C. Porta, San Diego County Regional Airport Authority, San Diego, CA (Chair)
Samantha Flores, Corgan Associates, Inc., Dallas, TX
Susan Hansen Smith, Seattle–Tacoma International Airport, Seattle, WA
Melissa J. Madden, Association of Flight Attendants-CWA, Chicago, IL
Michael J. Ornat, St. Joseph County Airport Authority, South Bend, IN
Erinn Denise Tucker, University of Maryland Eastern Shore, Princess Anne, MD
David Weed, FAA Liaison
Christopher R. Bidwell, Airports Council International–North America Liaison
AUTHOR ACKNOWLEDGMENTS
The research presented in this report was performed under ACRP Project 07-20 by the TransSolutions Research Team. Scott Houston from The Chertoff Group served as principal investigator. The other authors of this report are Michael Everson of the Airport Law Enforcement Agencies Network (ALEAN); Michele Freadman of M. Freadman Consulting, LLC; Jessica Gafford of TransSolutions; emergency management professional Toshia Shavies Marshall; Kate Moore of Boston Emergency Services Team (BEST); crisis response specialist Danielle Pires; and Valerie Walker of the Association of Flight Attendants-Communication Workers of America (AFA-CWA).
FOREWORD
By Joseph D. Navarrete
Staff Officer
Transportation Research Board
ACRP Research Report 280 presents a practical guide for reducing and responding to incidents of disruptive, threatening, and violent behavior in an airport setting. The guide examines the topic holistically and offers a structured approach to understanding root causes, prevention and mitigation strategies, coordinated response, and postincident analysis. The guide and supporting research products will be of interest to a wide array of industry practitioners who want to better understand the issue and develop a comprehensive response using proven measures and mitigation techniques.
The number of incidents involving disruptive, threatening, and violent behavior in commercial airports has increased in recent years. However, much of the focus has been on addressing behavior in flight, leaving airport operators with limited guidelines tailored to the airport environment. Research was needed to identify contributing factors to unruly behavior, review existing processes and practices, and develop guidelines to help airport operators prevent, reduce, and manage such incidents more effectively.
The research, led by TransSolutions, was conducted under ACRP Project 07-20, “Reducing and Managing Disruptive and Unruly Behavior in Airports.” The research began with an in-depth literature review to identify strategies, methods, tools, and technologies used to help reduce and respond to disruptive and unruly incidents. This was followed by interviews with airports and key stakeholders, including airlines, federal agencies, law enforcement, and mental health professionals. Findings from the literature and interviews informed the development of the guide and complementary products.
The guide is organized into four main sections: an overview of the issue and contributing factors; recommendations for prevention and mitigation, including training, awareness campaigns, and facility improvements; guidelines for responding to and intervening in unruly incidents; and a framework for analyzing incidents and ensuring accountability. The guide emphasizes stakeholder coordination and highlights the importance of data collection, staff training, and tailored operational strategies. Each section offers real-world examples, challenges, and planning considerations for tailoring strategies to the airport environment.
The guide includes a summary case example of Massport’s crisis response team, which connects law enforcement with community services at all Massport properties, including Boston Logan International Airport.
To support practical application, an unruly incident tabletop guide (Appendix A) offers an exercise example based on an actual airport incident. The exercise is editable to reflect an airport’s particular operating environment. An unruly passenger incident form template is also provided (Appendix B). Appendices A and B can be found on the National Academies Press website (nap.nationalacademies.org) by searching for ACRP Research Report 280: Reducing and Managing Disruptive and Unruly Behavior in Airports: A Guide.
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CONTENTS
Chapter 2 Prevent and Mitigate Unruly Incidents
2.2 Updating or Adopting Programs, Policies, and Procedures
2.3 Facility Design and Services
2.4 Improvements to Common Design Features and Services
2.5 Uncommon Design Features and Services
Chapter 3 Respond to and Intervene in Unruly Incidents
3.1 Communicating with Stakeholders
3.2 Determining an Appropriate Response
Chapter 4 Analyze and Prosecute Unruly Incidents
4.2 Identifying Root Causes of Unruly Incidents and Behavior
4.3 Relevant Regulations, Laws, and Standards
4.4 Postincident Follow-Up and Prosecution
Appendix A Unruly Incident Tabletop Guide
Appendix B Unruly Passenger Incident Form Example
Appendix C Boston-Logan International Airport’s CRT
Appendix D 49 U.S. Code § 46501 Definitions
Appendix E Relevant Sections from H.R.3935, FAA Reauthorization Act of 2024
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