Industry, FAA Debate Ways To Deal With Incursions

Though most of Wednesday's clamor in the halls of Congress had to do with baseball, Roger Clemens, and steroids, another debate raged before the House Subcommittee on Aviation -- what could be done to stem what seems to be a growing tide of runway incursions at the nation's airports.

Committee members heard from a variety of industry officials regarding the problem. Below are excerpts from written testimony given by Hank Krakowski, Chief Operating Officer of the Air Traffic Organization of the FAA, before the subcommittee:

"At the Federal Aviation Administration, safety is our first priority. I am pleased to report that 2007 was the safest year yet for aviation in our Nation’s history. We work around the clock to continually improve safety. We look at all areas to improve safety, including airports and markings, operational procedures, and equipment. In recent years, the FAA has formally incorporated this culture of safety into our strategic plan, called the Flight Plan, and we have devoted millions of dollars in research and procuring technology to aid our controllers and pilots in moving America safely. We place such a high priority on runway safety that this is part of the performance plan for the Air Traffic Organization, and we hold our employees accountable for improvement. We have also reached out to the National Airspace System stakeholders, from controllers to pilots to airport managers to airlines to partner with us to improve runway safety.

"...An aggressive and effective FAA runway safety program has reduced the number of serious runway incursions by 55 percent since 2001. In Fiscal Year 2007, we saw a 25 percent reduction in serious runway incursions from 2006. There were 24 serious runway incursions — that’s Category A and B incursions — during 61 million aircraft operations, a significant reduction from the 31 incursions in FY 2006, and the 53 incursions in FY 2001. But while we have made improvements with the most serious of the runway incursions, overall runway incursions increased in FY 2007 to 370, up from 330 in FY 2006. Only 8 of the 24 serious incursions involved a commercial airline flight, and none of these 370 incursions resulted in a collision. While most of these incursions are Category C and D incidents, which pose little or no risk to the public, the increase in incursions and the fact that serious incursions are still occurring, prompted the Administrator to issue a “Call to Action” on runway safety.

"... Our nation’s busiest airports have runway surveillance technology installed that improves controller situational awareness on the airport movement area. The FAA has spent over $404 million to date to acquire and deploy the next generation of ground surveillance technology, known as Airport Surface Detection Equipment — Model X or ASDE-X for short. Eleven towers in the system have ASDE-X installed, and we have accelerated our installation schedule by one year — the target completion date for the last system is now September 2010. The FAA will commit more than $806 million over a 30-year period on equipment, installation, operations and maintenance of the 35 ASDE-X systems.

"... Twenty of the busiest airports in America were identified for targeted Runway Safety Action Team visits based on a combination of a history of runway incursions, wrong runway events, and wrong runway risk factors. The Runway Safety Action Team visits involved service analysis meetings with air traffic control, both management and controllers, safety inspectors from FAA and the airports, and airport managers and operators. Just through the interaction and discussion among these groups, action plans to mitigate identified risks were finalized. These meetings identified over 100 short term fixes that could be accomplished within 60 days, including new or improved signage, improved marking, driver training, and other actions. This proves that a “common sense” approach to curbing runway incursions exists. Not all measures to improve runway safety will involve fielding expensive equipment and new systems. Quick and relatively inexpensive solutions include improving airfield markings, adding targeted training for controllers and aircrews, and fine-tuning air traffic procedures. Incorporating the lessons learned through the meetings with the initial 20 airports, FAA has identified a second tier of 22 airports we will be expanding this program to cover next.

"...FAA has also continued to make progress in improving Runway Safety Areas (RSAs). RSAs enhance safety in the event of an undershoot, overrun, or excursion from the side of the runway. In FY 2000, FAA started an ambitious program to accelerate RSA improvements for commercial service runways that do not meet standards. The FAA developed a long-term completion plan that will ensure that all practicable improvements are completed by 2015.

"Finally, the FAA is seeking input from NATCA on revamping policies for issuing taxi clearances. We are also working with NATCA to implement a voluntary reporting system for air traffic controllers similar to the Aviation Safety Action Program (ASAP) with airlines, pilots, airport operators, and the FAA. In my role at United, I was responsible for four ASAP programs for pilots, dispatchers, mechanics, and flight attendants. Because of this work, I am convinced that information from a voluntary reporting system will help us to spot trends and prevent future runway incursions.

"The FAA is committed to designing an end-to-end system that seeks to eliminate runway incursions while accommodating human error. The FAA plans on creating a standing Runway Council Working Group to look at the data and address root causes, and continue to involve all who play a part in runway safety. We all have a role in the solution. Every reported runway incursion will be taken seriously, investigated thoroughly, and analyzed to determine the causal factors. The FAA continues to seek ways to improve awareness, training, and technologies and we look forward to our collaboration with airlines, airports, air traffic control and pilot unions, and aerospace manufacturers to curb runway incursions. We appreciate the Committee’s interest in safety, and welcome your counsel and assistance in our efforts to reduce runway incursions and improve safety in our nation’s aviation system."

AOPA's Boyer Says FAA Needs Dedicated Runway Safety Director

Phil Boyer, president of the Aircraft Owners and Pilots Association, noted the FAA incorrectly attributes 72 percent of all runway incursions from FY2003 through FY2006 to involving general aviation aircraft -- when AOPA's numbers state only 44 percent of all incursions in that time were pilot deviations involving GA planes, and a whopping 92 percent of those cases were classified as less severe, Category C and D incursions.

"Clearly, we have a problem. And, the “we” refers to the airlines, general aviation, the FAA, the air traffic controllers, the airports -- every member of the aviation community. The number of reported incursions may be low when compared to the total number of operations conducted each year, but the potential for a catastrophic accident, makes runway safety an area of special concern for the aviation community. The potential for a runway incursion will exist as long as aircraft are operated. Unfortunately, there is no quick fix or easy solution. But one thing is apparent, what has been done and what is being done is not good enough.

"The November 2007 Government Accountability Office (GAO) Aviation Runway and Ramp Safety report states “FAA’s Office of Runway Safety has not carried out its leadership role.” While runway safety is a shared responsibility, the AOPA Air Safety Foundation believes the FAA must once again make it a national priority and a first step would be to have the Director of the Office of Runway Safety reporting directly to the Administrator.

"A cursory look at history shows that during times of inadequate leadership from the FAA, the number of runway incursions increases. In 1990, an all-time high of 281 runway incursions occurred and the National Transportation Safety Board (NTSB) added the prevention of runway incursions to its Most Wanted Safety list. Under FAA leadership and coordination, progress was made and 1993 marked a low with 186 incursions. However, we quickly saw FAA’s focus and resources shift to other priorities and the result was a dramatic increase in runway incursions through the mid-90s.

"Back as a top priority, in 1999, the FAA announced a new runway safety initiative, created a new program office, reestablished runway incursion action teams, held regional workshops, and created new pilot programs. A great deal of time, energy and resources was devoted to runway safety. Runway safety was an industry government partnership, and the AOPA Air Safety Foundation worked very closely with the FAA’s Office of Runway Safety on training, outreach, and education. It was a cooperative and effective campaign. Progress was being made but unfortunately FAA’s attention was once again diverted and existing partnerships dissolved.

"As the GAO report noted, the FAA's Office of Runway Safety has not updated the national runway safety plan since 2002 despite policy that it be upgraded every two to three years. During this time the office was without a permanent director for two years and its staff was reduced by almost half. With the FAA forecasting an increase in the number of operations over the next decade, the AOPA Air Safety Foundation believes the FAA needs to once again make runway safety a national priority. Long-term, sustainable improvements in runway safety require constant, consistent and continual FAA leadership."

ACI-NA Stresses Need For AIP Funding

Greg Prinicipato, President of Airports Council International–North America’s (ACI-NA), emphasized that airports have taken an aggressive stance to address the issue of runway incursions -- but those facilities need all the help they can get, specifically through the currently-stalled Airport Improvement Program.

"Following ACI-NA’s participation in the Call to Action meeting with the Federal Aviation Administration (FAA) last August, 72 of the 75 targeted large and medium airports have completed upgrades for improved centerline painting and markings on their taxiways and the four others are voluntarily accelerating the June 30, 2008, deadline set by FAA."

According to Principato's testimony, 28 small airports have already voluntarily upgraded their markings, 173 airports plan to upgrade by June 2008, and an additional 50 airports plan to complete the work by the end of 2008. Another 29 airports have committed to enhancing their markings in 2009, while 28 airports have expressed interest but have not yet provided a target completion date

"As you may know, many smaller airports work with private contractors for painting and, given the fact that no Airport Improvement Program (AIP) grants are being approved or distributed, some airports are unable to contract for these services at this time."

"As a new FAA reauthorization bill has not yet been passed by Congress, contract authority for the AIP program expired on September 30, 2007. Congress, in a series of continuing resolutions, provided temporary AIP contract authority, but only through December 31, 2007.

"Without contract authority, FAA has not issued any new AIP grants, limiting the ability of small and large airports to complete safety and capacity projects."

NATCA's Forrey Says FAA Needs To Listen To Controllers' Suggestions

Patrick Forrey, president of the National Air Traffic Controllers Association, started off his remarks to the committee with a familiar argument -- that there are fewer controllers watching planes to prevent incidents, due to a hostile work environment created by the FAA:

"No one here today is more responsible for the safety of the runways at America’s airports than controllers and pilots. NATCA has been trying to direct attention to the decreasing safety margins in our skies and on our runways for years. We are no longer alone. In the past few months, a host of independent federal watchdogs have joined the chorus in raising concerns about aviation safety.

"...In November, the GAO issued a report that warned of “a high risk of a catastrophic runway collision” occurring in the United States. In December, the Transportation Department’s Inspector General launched an investigation on the role that workplace conditions played in several close calls at FAA facilities in Illinois. And the NTSB recently added runways incursions and incidents caused by air traffic controller fatigue to their 2008 list of Most Wanted Aviation Safety Improvements.

"...Today there are 1,500 fewer fully-certified controllers than there were on 9/11 -- leaving fewer eyes to watch more planes, and the result is increased controller fatigue. If the FAA were to return to the bargaining table where the parties left off and negotiate in good faith with NATCA, the effort would make staying in the FAA more attractive to both newly-hired controllers and those eligible for retirement."

Forrey then offered additional suggestions, including greater cooperation between controllers and the FAA in implementing new ways to curb safety issues:

"...NATCA recommends that the FAA work in collaboration with the Union in the development and deployment of new technology. Under the liaison program, the FAA and NATCA worked side-by-side in the creation of new technologies. ASDE-X, an effective surface surveillance system, is a product of that collaboration. NATCA recommends the deployment of this technology at all airports throughout the country with mid- to high-traffic density.

"NATCA further recommends that the liaison program, dismantled by the FAA in 2003, be reinstituted.

"...Because runway incursions often occurs when the layout of taxiways force aircraft to cross a runway in route to a second runway or gate, NATCA recommends that End-Around Taxiways be constructed and utilized at all airports where such construction is possible.

"...NATCA stands by ready, willing and able to offer real solutions. We can only hope that the FAA is really listening."

FMI: www.faa.gov, www.aopa.org, www.aci-na.org, www.natca.org