Safety Recommendation A-17-026

The FAA is integrating specified elements from Safety Recommendations A-17-21, -22, and -26 into the Enterprise Information Display System (E-IDS) design.

As discussed, we understand that you are working to re-establish the SWIM Submit PIREP Service, which would allow authorized PIREP sources to submit PIREPs directly to the FAA instead of relying on third parties. We also note that the FAA conducted a PIREP proof-of-concept study, which successfully demonstrated a potential solution for modernizing the current PIREP system. Specifically, the study used the very high frequency (VHF) radio voice communication system, which is found in most aircraft today, to capture, query, and transcribe weather information automatically submitted by pilots in flight and without talking to an air traffic controller or a flight service specialist.

We understand that you believe a future study could investigate the use of Automatic Dependent Surveillance-Broadcast data to autofill information, such as position, altitude, and type of aircraft, to potentially minimize or eliminate the potential of human error in the PIREP submission and dissemination process.

We believe the activities that the FAA described are responsive to this recommendation. We encourage you to initiate the next phase of the PIREP research and look forward to reviewing your findings. In the meantime, pending our receipt of that information and the completion of the recommended action, Safety Recommendation A-17-26 is classified OPEN-- ACCEPTABLE RESPONSE.

-From Michael G. Whitaker, Administrator: The FAA is working to re-establish the SWIM Submit PIREP Service to allow authorized PIREP sources to submit PIREPs directly to the FAA instead of relying on third parties, such as the Aviation Weather Center (AWC) or Leidos Flight Service, to then relay PIREPs to the FAA. This action is expected to be completed by July 2025, with the E-IDS system being the first National Airspace System (NAS) internal user.

The FAA also conducted a PIREP Smart Solicitation proof-of-concept evaluation, leveraging a MITRE-developed technology, including a PIREP Airspace of Interest (PAI) algorithm, an Electronic Flight Bag (EFB) PIREP application, and a satellite network to be used by Alaskan General Aviation pilot participants. A PAI is a polygon representing a volume of airspace that contains observed or forecasted weather conditions that meet FAA PIREP solicitation criteria in FAA Order JO 7110.65, Air Traffic Control.

The PIREP application running in the EFB receives the PAI over a low-cost satellite messaging network, and when it detects the aircraft has entered the PAI, the application will prompt the pilot to submit a PIREP. The pilot then enters only the weather-related fields and submits the PIREP over the satellite network, which is processed and sent to the AWC or Leidos Flight Services, who will forward the PIREP to the FAA for NAS-wide distribution. This evaluation was completed in Fiscal Year 2024 and the results are currently being analyzed.

Additionally, the PIREP proof-of-concept study successfully demonstrated the application of already-existing, as well as state-of-the-art, off-the-shelf technologies as one potential way to modernize the current PIREP system. More specifically, while using the Very High Frequency (VHF) radio voice communication system found in most aircraft today, the study explored a system that captured, queried, and transcribed weather information submitted by in-flight pilots automatically without talking to an air traffic controller or a flight service specialist.

Data were collected within two geographic areas in Oklahoma and Alaska, where discrete VHF radio frequencies were assigned for the length of the study. Close to 5,500 PIREP submissions and retrievals were collected over the course of the study through voice recognition technology and were stored and processed using cloud computing. In flight, the PIREPs were disseminated via VHF radio, and web and mobile apps were used on the ground.

The results from this proof-of-concept study suggest that significant benefits could be derived from conducting additional research to identify and assess the impact of further automating those error-prone elements. For example, a future study could investigate utilizing Automatic Dependent Surveillance-Broadcast data to autofill information, such as position, altitude, and type of aircraft; allowing the pilot to a) focus on reporting weather observations, and b) report in a more efficient and effective manner.

We are not aware of any E-IDS capability that would allow PIREPs collected by Part 121 operators and Enhanced Weather Information System (EWINS) providers to be shared with others in the NAS, including ATC, pilots, and meteorologists. Therefore, we do not believe E-IDS is an acceptable solution to this recommendation.

We are aware of an FAA program that may address this recommendation, but was not discussed in your letter. In a 2020 presentation, the FAA discussed a ”Submit PIREP” web service that would allow external users to electronically submit PIREPs directly to the FAA's Weather Message Switching Center Replacement System. The 2020 presentation also noted that this service is not directly available via the Internet because external clients must be connected to an FAA NAS Enterprise Security Gateway, and that no clients were then using the submit PIREP service.

The 2020 presentation noted that plans for 2021–2023 included providing a simpler process for external users and a common interface for external users to submit and retrieve PIREPs. In addition, we believe that some of the revisions to FAA technical standards orders regarding weather capabilities in automatic dependent surveillance-broadcast systems may also address an electronic PIREP submission capability.

We believe these programs may address this recommendation, but that E-IDS, which you did discuss, is not an acceptable solution to this recommendation. Pending our review of a plan to address Safety Recommendation A-17-26, it remains classified OPEN-- UNACCEPTABLE RESPONSE.

-From Kathryn B. Thomson, Deputy Administrator: The Federal Aviation Administration (FAA) continues to implement the Enterprise Information Display System (E-IDS), which is an enterprise-level platform. As previously stated, the FAA will deploy the E-IDS to over 500 facilities across all Air Traffic Control domains, which will substantially improve entry speed and reduce entry errors by providing a modern, customizable, and graphic user interface with automation-assisted entry and form validation. The E-IDS will enable air traffic controllers to easily, consistently, and accurately submit PIREP information, and the E-IDS will disseminate requested PIREP information to the controller.

The E-IDS will be the FAA’s comprehensive, coordinated, efficient, flexible, and scalable PIREP system.

The E-IDS implementation program will continue software development and start system integration testing near the end of Calendar Year (CY) 2023, with initial operating capability on schedule for CY 2024. The FAA developed an evolving strategic plan and roadmap for PIREP modernization that addresses FAA-wide goals for overall E-IDS improvement. The current timeframes and their respective focuses are as follows:

• Near-Term (FY21-FY24): Make it easier for all users, especially air traffic controllers, to submit an accurate and timely PIREP into the NAS via E-IDS. The FAA will initially deploy the E-IDS to non-oceanic Air Route Traffic Control Centers.

• Mid-Term (FY25-FY29): Rationalize and optimize disparate PIREP processes and begin leveraging automated capabilities.

The FAA also initiated an operational proof of concept system study to explore the concept of submitting and retrieving PIREPs over very high-frequency radio on a dedicated frequency and without having to talk to an air traffic controller or flight service specialist. Over 280 pilots participated in the two study areas, and the FAA collected over 3,000 PIREPs. The two study areas are within a radius of approximately 50 nautical miles from Will Rogers World Airport (OKC), Oklahoma City, Oklahoma, and Nenana Municipal Airport (ENN), Nenana, Alaska. This effort could support an additional means to submit and retrieve PIREPs.

I will keep the Board informed of our progress on Safety Recommendations A-17-21, -22, and -26 and anticipate providing an update by August 31, 2024.

In our April 2017 special investigation report, we discussed that service interruptions and the lack of widespread access to FAA systems for submitting PIREPS had resulted in operators having limited options for submitting PIREPs for public distribution. We issued this recommendation based on our conclusion that an effective automated PIREP-submission and data-collection tool, reliably available and capable of accepting data from all pilots, operators, and other users who meet the registration criteria and want to participate, would improve the quantity of PIREPs available to support flight safety for all users in the NAS.

Currently, Part 121 operators and their FAA approved Enhanced Weather Information System (EWINS) providers collect PIREPs; however, in most cases, they only provide PIREPs to other pilots of that carrier and do not submit them for public release. As a result, ATC, other pilots and dispatchers, and metrologists cannot access this information. Because the E-IDS will not include the capabilities to encourage submission of PIREPs by Part 121 carriers and their EWINS providers, we do not believe it is responsive to this recommendation. Pending our review of a plan to address this recommendation, Safety Recommendation A-17-26 is classified OPEN-- UNACCEPTABLE RESPONSE.

-From Billy Nolen, Acting Administrator: The Federal Aviation Administration (FAA) informed the Board in its last letter that the Operational Needs Assessment (ONA) was submitted to the Air Traffic Organization’s (ATO) Operational Concepts, Validation, and Requirements (CVR) Group. The CVR Group completed its comprehensive analysis and determined that the requirements outlined in the ONA were already included in the future Enterprise Information Display System (E-IDS) capabilities.

The FAA’s E-IDS is an enterprise-level platform to be deployed to over 500 facilities across all Air Traffic Control domains. This automation support tool will be located at operational control positions and will provide aeronautical information critical to ensuring the safe and expeditious movement of aircraft throughout the National Airspace System. With E-IDS, terminal and en route operational personnel will be able to enter PIREPs at their positions, allowing immediate availability of this information for access by other positions.

The E-IDS will substantially improve entry speed and reduce entry errors by providing a modern, customizable, and graphic-user interface with automation-assisted entry and form validation. The E-IDS program was approved for a Final Investment Decision in June 2020. In December 2020, the E-IDS program office completed the system requirements review and is expected to complete the preliminary design review by the summer of 2022. We expect the initial operating capability of the E-IDS in Calendar Year 2024.

From the Aviation Safety Research Report, NTSB/SS-21/01, “Preventing Turbulence-Related Injuries in Air Carrier Operations Conducted Under Title 14 Code of Federal Regulations Part 121” published on September 7, 2021: 4.1.1 PIREPs In its 2017 PIREP special investigation report, the NTSB identified shortcomings with PIREP submission and dissemination (NTSB 2017). Several safety issues identified in that report remain unresolved. For example, it is common for Part 121 air carrier pilots to solicit and report ride conditions when communicating with ATC, but this information often does not become a PIREP that is disseminated into the NAS.

In interviews with Part 121 air carrier stakeholders, pilots stated that, although they often informally discussed ride conditions with ATC and found such exchanges to be valuable, it was rare to explicitly submit formal PIREPs to ATC, and they almost never submitted PIREPs for smooth ride conditions. In interviews with ATC stakeholders, controllers stated that they rarely entered reports of smooth ride conditions or light turbulence as PIREPs, and pilots stated that they had no expectation that ATC would enter these informal ride condition reports as PIREPs.

In an analysis of voice communications from pilots to ATC, the MITRE Corporation estimated that 10 million transmissions occurred in 2018 that contained weather information of value to the NAS, but less than 900,000 PIREPs were submitted that year (Kopald 2020). The majority of these communications were reports of smooth ride conditions or light chop. However, as noted in the NTSB’s 2017 PIREP special investigation report, even PIREPs of smooth ride conditions are valuable in determining where turbulence is not present.

Not sharing all relevant weather information can lead to safety-of-flight issues not only because other pilots do not have the information, but also because weather forecasters and researchers do not receive it either and, therefore, cannot effectively update existing turbulence products and algorithms or develop new ones. In addition, as mentioned in interviews with FAA Air Traffic Control System Command Center personnel, the insufficient submission of turbulence PIREPs could lead to issues with the safe routing of aircraft through the NAS.

We are pleased to learn that your ATO’s Operational Concepts, Validation, and Requirements Group is currently reviewing an operational needs assessment, which addresses the need for improved automation of PIREP collection, entry, and dissemination. We believe that this is a necessary first step to addressing these recommendations. Pending future updates, and completion of the recommended actions, Safety Recommendations A-17-21, -22, and -26 remain classified OPEN--ACCEPTABLE RESPONSE.

-From Steve Dickson, Administrator: This is our final response to Safety Recommendations A-17-16, -20, -27, and -28. This is our follow-on response to Safety Recommendations A-17-21 through-24, and -26, and supplements all previous responses.

An Operational Needs Assessment (ONA) was the outcome of a cross organizational workgroup. The ONA addresses the need for improved automation of PIREP; collection, entry, and dissemination. The ONA was submitted to the ATO's Operational Concepts, Validation, and Requirements (CVR) Group, which will perform a more comprehensive analysis to determine the feasibility of adopting the ONA recommendations (in the context of other systems and capabilities within the NAS). The ONA also addresses the need for improved automation of PIREP collection, entry, dissemination, and it cites ideas such as those contained in Safety Recommendations A-17-21, -22, and -26.

The CVR Group will perform a more comprehensive analysis to determine the feasibility of adopting these recommendations in the context of other systems and capabilities within the NAS.

I believe the FAA has effectively addressed Safety Recommendations A-17-16, -20, -27, and -28, and I consider our actions complete. I will keep the Board informed of our progress on Safety Recommendations A-17-21 through-24, and -26, and anticipate providing an update by July 2020.

We note that you are establishing a team of subject matter experts from across your Air Traffic Organization (ATO), including representatives from the Air Traffic Services, System Operations, Safety and Technical Training, and Mission Support Service units, to analyze these recommendations and determine the feasibility of adopting them. Pending our review of your completed assessment and specific plans for addressing each of these recommendations, Safety Recommendations A-17-21 through -23 and -26 through -28 are classified OPEN--ACCEPTABLE RESPONSE.

-From Michael P. Huerta, Administrator: The FAA is establishing a team of subject matter experts from across our ATO. including representatives from the Air Traffic Services. System Operations, Safety and Technical Training, and Mission Support Service Units, that will analyze these recommendations determine the feasibility of adopting them.

I will keep the Board informed of the FAA 's progress on recommendations A-17-21 through -23 and A-17-26 through -28 and provide an update by July 2018.

On March 29, 2017, the National Transportation Safety Board (NTSB) adopted its special investigation report titled “Improving Pilot Weather Report Submission and Dissemination to Benefit Safety in the National Airspace System.”1 Additional information about related incidents and accidents and the resulting recommendations may be found in the special investigation report, which can be accessed at our website, http://www.ntsb.gov, under report number NTSB/SIR-17/02.

In this special investigation report, we issued 19 new recommendations, including one to the Aircraft Owners and Pilots Association Air Safety Institute; one to the Aviation Accreditation Board International, the National Association of Flight Instructors, and the Society of Aviation and Flight Educators (each, respectively); two to the National Weather Service (NWS); one to the National Air Traffic Controllers Association (NATCA); one to the Cargo Airline Association; and the following 13 recommendations to the Federal Aviation Administration.