TO THE FEDERAL AVIATION ADMINISTRATION: Work with stakeholders that service the Alaska aviation industry to implement a safety-focused working group to review, prioritize, and integrate Alaska's aviation safety needs into the FAA's safety enhancement process.
Safety Issue and Context
The National Transportation Safety Board (NTSB) is providing the following information to urge the Federal Aviation Administration (FAA) to act on the safety recommendation issued in this report. This recommendation is derived from discussions during our September 2019 Most Wanted List Roundtable: Alaska Part 135 Flight Operations – Charting a Safer Course. Information supporting this recommendation is discussed below.
Because the NTSB continues to investigate the same types of accidents involving Title 14 Code of Federal Regulations (CFR) Part 135 flight operations in Alaska, we convened, in September 2019, a panel of Part 135 operators, safety experts, and government officials to discuss what can be done to address Part 135 safety issues in the state.2 Although the roundtable focused on Part 135 operations, some of the proposals discussed, such as improved pilot training (particularly concerning CFIT avoidance) and consistently managing weather risks, are applicable to all operations in Alaska, which has a higher overall aviation accident rate than the rest of the United States.
Specifically, for the period from 2008 to 2017, the total accident rate in Alaska was 2.35 times higher than for the rest of the United States; the fatal accident rate in the state was 1.34 times higher.
Response History
March 3, 2025 · NTSB Correspondence · FAA
On January 8, 2025, former FAA Administrator Michael G. Whitaker informed us that the agency is continuing the work described in its previous letter regarding Safety Recommendation A-20-11. We look forward to receiving your next update.
January 8, 2025 · Recipient Response · FAA
-From Michael G. Whitaker, Administrator: The Federal Aviation Administration (FAA) Alaskan Regional Office (AAL) continues to address Safety Recommendation A-20-11 by leading the Don Young Alaska Aviation Safety Initiative (DYAASI, formerly the FAA Alaska Aviation Safety Initiative). Given the congressionally mandated name change in Fiscal Year (FY) 2024, DYAASI and FAASI terminology both refer to the same safety initiative and may be referred to interchangeably as “The Initiative” throughout FY24. The DYAASI information is available at: https://www.faa.gov/alaska.
The DYAASI Tiger Team produced two documents in 2024: the FY23 FAASI Report and the FY24 FAASI Roadmap. The FY23 FAASI Report gave a fiscal year-end update on all of the FAASI recommendations, and the FY24 FAASI Roadmap set the path forward in addressing aviation safety matters throughout Alaska. Additionally, the DYAASI Tiger Team added two recommendations in FY24: Air Traffic Controller staffing and optimization and Modernize Flight Service.
The Tiger Team continues to make significant progress on their recommendations, including the following:
Continue installation and transfer of Airport Improvement Program (AIP) funded AWOS.
o Seven of the eight AWOS units within DYAASI are completed and transferred to the FAA. Installation of the unit at Crooked Creek has been delayed due to area flooding. It was severely damaged, and the State of Alaska is working to restore the facility.
Examine the root cause of Service A outages, associated impacts, and identify mitigations.
o The FAA Alaskan Regional Administrator formed the Telco Solutions in Alaska Work Group (TSAWG), which has formulated a multi-year plan to address known infrastructure problems at 77 weather station sites throughout the region. Key sites at Emmonak and Arctic Village have been brought back online using the innovative solutions. In FY25 and FY26, we plan to address an additional19 and 56 sites respectively contingent on funding through DYAASI.
Consider necessary changes to FAA Joint Order 7900.5, Surface Weather Observing, and FAA Order 7930.2, Notices to Air Missions (NOTAM) regarding long-line weather information outages.
o FAA has conducted proactive stakeholder outreach and internal training plans to ensure correct reporting of weather communication outages. The internal training included mandatory briefing updates for Air Traffic Control and Flight Service facilities as well as FAA Technical Operations and National Weather Service (NWS) Operations centers.
Develop Standards for Analyzed Weather Information
o At the request of the DYAASI Tiger Team, the American Society for Testing and Materials (ASTM) approved the adoption of Performance Based Weather Standards regarding analyzed weather information.
Seek Funding for Additional VWOS
o FAA Air Traffic Organization (ATO) has received funding in FY25 and FY26 to conduct an investment analysis seeking authorization and funding to implement additional VWOS systems. Funding for future VWOS deployment is dependent on the approval of this investment analysis.
Modify Operations Specifications
o FAA Flight Standards has drafted Operations Specification language. Authorization framework will continue to be formalized for the use of VWOS as an Analyzed Weather source for aircraft operators in accordance with mitigations identified by the safety risk management process.
2.1: Evaluate Operator Authorization Requirements – Evaluate and clarify aircraft operator authorization and eligibility requirements for commercial aircraft operations under Instrument Flight Rules (IFR).
Update the policy and guidance related to equipment requirements for commercial operators when using GPS for navigation.
o The Alaska GPS Navigation Policy Group submitted document change proposals on GPS-only navigation. Advisory Circular (AC) 91-70D Oceanic and Remote Continental Airspace Operations is pending publication and associated authorization templates, and inspector guidance will be available concurrently.
The current AC 91-70C is available at the following website: https://drs.faa.gov/browse/excelExternalWindow/DRSDOCID185741549420231 017195219.0001
2.2: Establish and Chart Communications Gaps on Published Routes – Evaluate potential policy change permitting communication gaps on routes where communication capability is the determining factor for the minimum enroute altitude.
Five route segment candidates were identified by the Tiger Team and shared with industry stakeholders to receive feedback.
o Discussions with the FAA’s Air Traffic Organization are ongoing regarding regulatory compliance requirements for IFR communication along those routes.
2.3: GPS Backup Resiliency – Develop strategies to address GPS backup resiliency in Alaska.
The GPS resiliency team has analyzed available data and identified areas that may need instrument approach modifications to finalize the GPS Resiliency Plan for the Alaskan Region.
o The final GPS resiliency plan will be coordinated with military and civil users and revised when appropriate. It is expected to be published by the end of FY25.
4.1: Education and Outreach of ADS-B Out Equipage – Continue education and outreach related to the benefits of ADS-B Out equipage in Alaska.
The FAA AAL continued and expanded several safety programs to maximize stakeholder outreach. The FAA’s Aviation Safety (AVS) held discussions with stakeholders during numerous events regarding the benefits of ADS-B Out equipage.
o The safety program events included: part 135 Air Tour Operators meetings, part 141/61 Flight Training events, Public Safety Briefs/Safety Standdown, part 135 Operators meetings, Alaska Professional Guide meetings, Runway Safety meetings, and Bethel Stakeholder’s Group meetings.
4.2: ADS-B Services – Continue to deploy ADS-B services for non-implemented service volumes in a manner that will provide coverage along major air routes in Alaska.
Construction of the Ground-Based Transmitter installations continued in FY24.
o Multiple construction and installation milestones were met, and the final installations will occur throughout the FY25 time frame.
5.1: Safety Outreach Collaboration – Maximize participation in and integration of safety programs already underway and seek to optimize opportunities for program integration.
Expanded Participation in Existing Programs
o The FAA AAL attended Alaskan Region Runway Safety Action Team meetings throughout the region in FY24. We conducted six co-sponsored FAA Alaska Industry Council meetings with external stakeholders. The FAA AAL also ensured that information regarding the transport of hazardous materials throughout Alaska is available to the public linked to the DYAASI webpage. The Alaska Dangerous Goods Resources was created to be a continually growing and improving safety communication resource.
The Alaska Dangerous Goods Resources information is available at the following website: https://www.faa.gov/hazmat/resources/alaska
Increase External Stakeholder Collaboration
o The FAA’s AAL Administrator attended and encouraged external stakeholder participation in multiple existing FAA safety programs including the Bethel Stakeholders Group, the FAA Alaska Industry Council, and the Soldotna Area Common Traffic Advisory Frequency Work Group.
6.1: Air Traffic Controller staffing and optimization – Develop strategies to improve and optimize Air Traffic Controller staffing in Alaska.
The FAA AAL formed the Palmer ATC Collaborative Task Force (PACT) Working Group to pursue innovative solutions to ATC staffing and recruitment challenges both within Alaska and across the National Airspace S
July 31, 2024 · NTSB Correspondence · FAA
We note that the FAA Alaska Aviation Safety Initiative’s (FAASI’s) Tiger Team, which consists of FAA leadership and various FAA organizations, is continuing work to implement the eight remaining recommendations from the FAASI’s 2021 final report. You reported that the team has made significant progress in response to four of those recommendations; most notably, Alaskan operators are now allowed to broaden their use of Global Positioning System (GPS) navigation systems with a simplified backup. In addition, we note that the team has identified five existing T-routes that could have significantly lower minimum altitudes by employing collaborative communication solutions.
You also reported that the team is developing a plan to provide Alaska with GPS resiliency and has been actively engaged with Alaskan operators to promote a more robust safety culture. Finally, we note that, on February 29, 2024, the FAA published the Fiscal Year 2023 FAASI Final Report, which includes additional information about the team’s activities.
We continue to believe the FAASI’s ongoing work to improve aviation safety in Alaska is responsive to this recommendation. Pending completion of the recommended action, Safety Recommendation A-20-11 remains classified OPEN-- ACCEPTABLE RESPONSE.
Please update us at ExecutiveSecretariat@ntsb.gov on your progress toward addressing Safety Recommendation A-20-11, and do not submit both an electronic and a hard copy of the same response.
January 9, 2024 · Recipient Response · FAA
-From Michael G. Whitaker, Administrator: The Federal Aviation Administration’s (FAA) Alaskan Regional Office continues to address Safety Recommendation A-20-11 through the FAA Alaska Aviation Safety Initiative (FAASI) and the FAASI Tiger Team. As mentioned in our previous letter, the FAASI Tiger Team completed 3 of the 11 FAASI recommendations, successfully integrating them into normal FAA business planning, processes, and long-term tracking. The FAASI Tiger Team continues to work on the remaining eight FAASI recommendations, and has accomplished significant progress on the following four recommendations:
• 2.1: Evaluate Operator Authorization Requirements – Alaskan operators are now allowed to broaden their use of Global Positioning System (GPS) navigation systems with a simplified backup.
• 2.2: Establish and Chart Communications Gaps on Published Routes – Five existing T-routes have been identified that could have significantly lower minimum altitudes by employing collaborative communication solutions.
• 2.3: GPS Backup Resiliency – The GPS resiliency plan in Alaska will likely differ from that of within the lower 48 given Alaska’s geographical and infrastructure challenges. Retention of ground-based navaids will likely be more significant throughout the state than elsewhere.
• 5.1: Safety Outreach Collaboration – The FAA significantly engaged Alaskan operators on multiple fronts to promote a more robust safety culture.
The 2023 FAASI Roadmap guided the FAASI Tiger Team, and the forthcoming FY23 FAASI Final Report will detail the team’s progress for the year. These documents are or will be available by February 2024 on the FAASI website: https://www.faa.gov/alaska.
I will keep the Board informed of the FAA’s progress on Safety Recommendation A-20-11 and anticipate providing an update by January 31, 2025.
September 18, 2023 · NTSB Correspondence · FAA
We note that, as part of the FAA Alaska Aviation Safety Initiative (FAASI), you formed the FAASI Tiger Team, which consists of FAA leadership and various FAA organizations and is working to implement the 11 recommendations that were included in the FAASI’s 2021 final report. You reported that, in 2022, the FAASI Tiger Team initiated work on all 11 FAASI recommendations, and that significant progress has been made in response to 3 of those recommendations. Specifically, eight Automated Weather Observing System units have been installed; all planned
T-Route replacement airways have completed the design and environmental phases and 33 of the 54 T-Routes have been published; and the Carter and Naqsralugiaq Passes have been added to visual flight rule charts, and the Holmes Pass has been deleted from the Fairbanks sectional chart. Finally, we note that, on February 17, 2023, the FAA published the “FAASI Fiscal Year 2023 Roadmap,” which details the FAASI Tiger Team’s plans for addressing the remaining FAASI recommendations.
We are encouraged by the FAASI’s work thus far to identify Alaska’s aviation safety needs, develop a plan to address those needs, and prioritize their implementation. Pending completion of the recommended action, Safety Recommendation A-20-11 remains classified OPEN-- ACCEPTABLE RESPONSE.
January 19, 2023 · Recipient Response · FAA
-From Billy Nolen, Acting Administrator: The Federal Aviation Administration’s (FAA) Alaskan Regional Office continues to address this safety recommendation through the FAA Alaska Aviation Safety Initiative (FAASI), which is available at: https://www.faa.gov/alaska. The FAASI Tiger Team was formed as part of the FAASI, consists of various FAA organizations, includes FAA leadership, and meets regularly.
In 2022, the FAASI Tiger Team published two documents—the 2022 FAASI Roadmap and the Fiscal Year (FY) 2022 FAASI Progress Report. The FAASI Roadmap sets the path forward for the FAASI Tiger Team activities, and the FAASI Progress Report provides a mid-FY update on the handling and status of ongoing FAASI recommendations.
The 2022 FAASI Roadmap is available at the following website: https://www.faa.gov/alaska/faasi-roadmap
Based on the 2022 FAASI Roadmap, FAASI Tiger Team work activities were initiated on all 11 FAASI recommendations, and 3 were successfully completed by the end of FY 2022. The three completed FAASI recommendations are as follows:
1. Recommendation 1.1: Automated Weather Observing System (AWOS): The installation of eight AWOS units is complete. Work continues on reviewing and addressing the reliability of weather dissemination and maintaining continuity in the challenging Alaska environment.
2. Recommendation 2.4: T-Route Development: The design and environmental phases for all planned T-Route replacement airways have been completed, and 33 of 54 T-Routes have been published, with the remaining 21 due to be published by February 28, 2023.
3. Recommendation 3.1: Mountain Pass Working Group Initiative: The Alaskan Mountain Pass Working Group continues to meet on a semi-annual basis. Both the Carter and Naqsralugiaq Passes were added to visual flight rule charts effective March 24, 2022. Also, and with collaboration from aviation industry stakeholders, the Holmes Pass was deleted from the Fairbanks sectional chart effective May 19, 2022. The Aeronautical Information Manual will also include complimentary updated pilot guidance for mountain flying and the Global Positioning System in the future.
The FY 2022 FAASI Progress Report is available at the following website: https://www.faa.gov/alaska/fy22-progress-report
The FAA’s Alaskan Regional Office will continue to oversee and collaborate with the FAASI Tiger Team on the remaining eight FAASI recommendations through 2023 and beyond. The Tiger Team will publish its FY 2022 closeout report and the 2023 FAASI Roadmap in a single document by February 28, 2023.
I will keep the Board informed of Safety Recommendation A-20-11 and anticipate providing an update by December 31, 2023.
July 26, 2022 · NTSB Correspondence · FAA
You reported that the FAA Alaska Aviation Safety Initiative (FAASI), which was established by a cross-agency working group led by the FAA’s regional administrator in Alaska, conducted a comprehensive review of recent, ongoing, and planned FAA safety-of-flight efforts and initiatives throughout Alaska. We note that, on September 30, 2021, the FAASI published its fiscal year 2021 final report, which recommends improvements that focus on Alaska’s weather reporting, navigation strategy development, aeronautical charting, surveillance, and safety outreach. We also note that you are developing a strategy for implementing the FAASI’s recommendations.
Pending completion of the recommended action, Safety Recommendation A-20-11 remains classified OPEN-- ACCEPTABLE RESPONSE.
December 22, 2021 · Recipient Response · FAA
-From Steve Dickson, Administrator: As previously mentioned, the Federal Aviation Administration’s (FAA) Alaskan Region Regional Administrator’s Office created a cross-agency working group of FAA experts and Alaska-specific aviation stakeholders to focus on safety issues particular to Alaska. The working group established the FAA Alaska Aviation Safety Initiative (FAASI) that conducted a comprehensive review of recent, ongoing, and planned FAA safety-of-flight efforts and initiatives throughout Alaska; these efforts and initiatives are described in the FAASI Interim Report dated April 23, 2021.
The FAASI Interim Report was made available to the public and a virtual briefing was held on May 6, 2021, to discuss the findings in the interim report.
Following the May 2021 virtual briefing, the FAA Alaskan Region held additional stakeholder meetings to receive feedback vital to the FAA’s Alaska aviation safety fact-finding efforts. The information collected during these meetings was incorporated into the FAASI Fiscal Year 2021 Final Report, dated September 30, 2021. The FAASI is a long-term collaborative effort between the FAA and Alaskan aviation stakeholders. The FAASI Final Report includes 11 recommendations to improve aviation safety in Alaska, focused on the following five topic areas:
4. Surveillance (Automatic Dependent Surveillance-Broadcast); and
5. Safety Outreach. The FAASI Final Report may be found here: https://www.faa.gov/sites/faa.gov/files/2021- 10/FAA%20Alaska%20Safety%20Initiative%20Report%20-%20final.pdf
I have reviewed the recommendations and committed FAA resources to develop strategies to implement the recommendations. The first part of the FAASI implementation calls for the working group to develop a roadmap for both near- and mid-term implementations. The roadmap will be developed by February 15, 2022, and will be shared with the Alaskan aviation stakeholders. Throughout the remainder of 2022, and going forward, the FAA will utilize the roadmap to implement each recommendation.
Reducing fatal and serious injury accidents throughout Alaska and increasing system efficiency remain the focus of the FAASI. The FAA will continue stakeholder engagement concentrated on the needs of the National Airspace System (NAS) and specifically the Alaskan aviation community. Measurable progress will remain an integral part of the FAASI, both in terms of achieving meaningful improvements and solidifying stakeholder confidence. This process will achieve meaningful results to improve the safety of the NAS within Alaska.
I anticipate providing an update to this safety recommendation response by January 31, 2023.
September 10, 2021 · NTSB Correspondence · FAA
We note that, on October 8, 2020, your regional office in Alaska hosted a summit about aviation safety in the state that included safety experts, government officials, and Alaskan Part 135 commercial operators. We also note that you have asked the FAA’s regional administrator in Alaska to lead a cross-agency working group that will review your existing safety efforts in the state and determine how these efforts could be improved to better address Alaska’s aviation safety needs. We look forward to reviewing the working group’s recommended improvements. In the meantime, pending completion of the recommended action, Safety Recommendation A-20-11 remains classified OPEN-- ACCEPTABLE RESPONSE.
Please update us at ExecutiveSecretariat@ntsb.gov on your progress toward implementing this recommendation, and do not submit both an electronic and a hard copy of the same response.
January 19, 2021 · Recipient Response · FAA
-From Steve Dickson, Administrator: The Federal Aviation Administration’s (FAA) Alaskan Region Regional Office convened an Alaska Aviation Safety Summit on October 8, 2020, attended by aviation safety experts, government officials, and Alaskan part 135 commercial operators, to discuss the many distinctive aviation safety issues of flying in Alaska. The summit focused on the unique issues Alaskan pilots and operators face in the inherently challenging aviation environment in Alaska.
Based upon concerns raised during the summit, along with the National Transportation Safety Board’s report, Revise Processes to Implement Safety Enhancements for Alaska Aviation Operations, I have directed the FAA Alaskan Region Regional Administrator to complete the following two actions:
1. Lead a cross-agency working group of FAA experts to focus on safety issues particular to Alaska, by conducting an inventory of recent, ongoing, and planned FAA efforts in Alaska, then synthesize a plan for facilitating further discussion with the aviation community in Alaska; and
2. With the working group’s information, fully engage with a representative group of stakeholders, consisting of members of the aviation community within Alaska and the agency, to determine how those efforts can be reviewed, prioritized, and integrated responsibly in order to have a substantial, positive, and rapid impact on aviation safety in Alaska.
The Alaskan Region Regional Administrator will engage with these working group activities by meeting regularly with the Alaskan stakeholders, monitoring the progress of the agreed upon safety initiatives, and coordinating the input across the FAA to ensure all Alaskan aviation safety needs continue to be reviewed, prioritized, and implemented. The working group is scheduled to complete their initial assessment by summer 2021.
I anticipate providing an update to this safety recommendation response by December 31, 2021.
August 21, 2020 · NTSB Correspondence · FAA
We note that you intend to take the recommended action, and that you are determining how to most effectively implement a safety-focused working group in Alaska. Pending our review of your plan and completion of the recommended action, Safety Recommendation A-20-11 is classified OPEN--ACCEPTABLE RESPONSE.
Please update us at ExecutiveSecretariat@ntsb.gov on your progress toward implementing this recommendation, and do not submit both an electronic and a hard copy of the same response.
May 1, 2020 · Recipient Response · FAA
-From Steve Dickson, Administrator: The Federal Aviation Administration (FAA) is well aware of the critical role that aviation plays in Alaska. We recognize the unique safety challenges posed by the Alaskan aviation environment, and regularly work with aviation stakeholders in Alaska to address these challenges. The FAA requests time to consider what will be involved in addressing this recommendation. This will help us determine the most effective way to go about forming a working group with stakeholders in the state of Alaska to improve aviation safety.
I will keep the Board informed of the FAA’s progress on this safety recommendation and anticipate providing a response by November 30, 2020.
February 20, 2020 · NTSB Correspondence · FAA
The attached letter from the NTSB Chairman provides information about the NTSB’s February 13, 2020, report Revise Processes to Implement Safety Enhancements for Alaska Aviation Operations, NTSB/ASR 20 02. The details of this accident investigation and the resulting safety recommendations may be found in the attached report, which can also be accessed at http://www.ntsb.gov.
The NTSB is vitally interested in these recommendations because they are designed to prevent accidents and save lives. We would appreciate a response within 90 days of the date of this letter, detailing the actions you have taken or intend to take to implement these recommendations. When replying, please refer to the safety recommendations by number (for example, A-20-11). We encourage you to submit your response to ExecutiveSecretariat@ntsb.gov. If your reply exceeds 20 megabytes, including attachments, please e mail us at the same address for instructions on how to send larger documents. Please do not submit both an electronic copy and a hard copy of the same response.
This letter provides information about the National Transportation Safety Board’s (NTSB) February 13, 2020, report, Revise Processes to Implement Safety Enhancements for Alaska Aviation Operations, NTSB/ASR 20 02. Supporting discussion and the resulting safety recommendation may be found in the attached report, which can also be accessed at http://www.ntsb.gov.
As a result of the roundtable, we identified the following safety issue:
• Lack of progress in implementing safety enhancements for Alaska aviation operations.
Accordingly, the NTSB makes the following safety recommendation to the Federal Aviation Administration:
Work with stakeholders that service the Alaska aviation industry to implement a safety-focused working group to review, prioritize, and integrate Alaska's aviation safety needs into the FAA's safety enhancement process.
The NTSB is vitally interested in these recommendations because they are designed to prevent accidents and save lives. We would appreciate a response within 90 days of the date of this letter, detailing the actions you have taken or intend to take to implement these recommendations. When replying, please refer to the safety recommendations by number (Safety Recommendation A-20-11). We encourage you to submit your response to ExecutiveSecretariat@ntsb.gov. If your reply, including attachments, exceeds 20 megabytes, please e mail us at the same address for instructions. Please do not submit both an electronic copy and a hard copy of the same response.