NTSB · Safety Recommendation
Safety Recommendation A-83-038
Recommendation
THE NTSB RECOMMENDS THAT THE FEDERAL AVIATION ADMINISTRATION: INSTITUTE AIR TRAFFIC CONTROL DIRECTIVES AND PROCEDURES TO REQUIRE, WHEN THE ASSIGNED FIRST-LINE SUPERVISOR IS OCCUPIED WORKING A CONTROL POSITION, THAT THERE IS APPROPRIATE AND ADEQUATE DIRECT SUPERVISION TO ENSURE THE DETECTION AND REPORTING OF ALL CONTROLLER ERRORS OR DEVIATIONS, THE DETECTION AND MONITORING OF FATIGUE AND/OR STRESS, AND THE CONTROL OF EACH CONTROLLER'S WORKLOAD. (Supersedes Safety Recommendation A-81-147)
Safety Issue and Context
THE NATIONAL TRANSPORTATION SAFETY BOARD HAS COMPLETED ITS FOLLOWUP INVESTIGATION OF THE NATION'S AIR TRAFFIC CONTROL (ATC) SYSTEM. THE INVESTIGATION, WHICH WAS INITIATED ON SEPTEMBER 20, 1982, EXAMINED THE OPERATION OF THE ATC SYSTEM FROM AUGUST 3, 1981, TO DECEMBER 31, 1982. THE INVESTIGATION INCLUDED THE SURVEY OF 51 ATC FACILITIES, DURING WHICH ABOUT 350 CONTROLLERS AND OTHER ATC FACILITY STAFF AND MANAGERS WERE INTERVIEWED. THE BOARD'S INVESTIGATORS OBSERVED THE OPERATION OF THE ATC SYSTEM FROM WITHIN THE FACILITIES, WHILE RIDING IN THE COCKPITS OF COMMERCIAL AIRLINERS, AND WHILE FLYING GENERAL AVIATION AIRCRAFT WITHIN THE SYSTEM.
QUESTIONNAIRES REGARDING THE ATC SYSTEM AND STRESS AND FATIGUE WERE SENT TO RANDOMLY SELECTED CONTROLLERS WHO WORKED AT THE FACILITIES SURVEYED. ADDITIONALLY, QUESTIONAIRES WERE SENT TO SCHEDULED AIRLINE USERS OF THE ATC SYSTEM AND WERE DISTRIBTED TO PILOTS OF NONSCHEDULE AIRCRAFT SOLICITING THEIR VIEWS ON THE EFFICIENCY AND SAFETY OF THE ATC SYSTEM. THE BOARD'S INVESTIGATORS ALSO VISITED 20 FLIGHT SERVICE STATIONS (FSS) WHERE THE MANAGERS AND SPECIALISTS WERE INTERVIEWED.
Response History
January 26, 1989 · NTSB Correspondence · FAA
Safety Recommendation A-83-38 concerns the institution of ATC directives and procedures to require, when the assigned first-line supervisor is occupied working a control position, that there is appropriate and adequate direct supervision to ensure the detection and reporting of all controller errors or deviations, the detection and monitoring of fatigue and/or stress, and the control of each controller's workload. We note that two separate issues are addressed.
The first is "...appropriate... direct supervision to ensure the detection and reporting of all controller errors or deviations, the detection and monitoring of fatigue and/or stress, and the control of each controller's workload." The changes to FAA Handbook 7210.3H, Facility Operations and Administration, paragraph 241, address the chain of command for watch supervision. However, the changes are inadequate in that the "controller-in-charge" who is acting as watch supervisor may also be assigned "specialist duties in addition to those associated with watch supervision," with no limits on either function. Additionally, the change may lead
to confusion by giving the one person up to three titles (controller-in-charge, watch supervisor, and area supervisor). It also raises questions, such as "How do the individual specialists know who is the acting supervisor at any given time, especially with the first-line supervisor able to occupy or vacate a control position at any time?" and "How does the next person in the chain of command know when he or she is the acting supervisor?" The changes to paragraph 241 make it clear to all ATC specialists what the chain of command is, but do not make clear how the chain operates.
The second issue of this safety recommendation is "...adequate direct supervision...". The statement "...to the extent practicable, avoid scheduling supervisors for non-operational duties during periods of known heavy traffic" which has been added to the FAA Handbook (para. 242) does not address whether adequate supervision exists, as required by the safety recommendation. This is further diluted by having a "controller-in-charge" who may have full operational duties as both a supervisor and controller, at the same time.
Based on the above comments and on the lack of timeliness, the Safety Board has classified Safety Recommendation A-83-38 as