Federal Aviation Administration
Efforts to Hire, Staff, and Train Air Traffic Controllers Are Generally on Track, but Challenges Remain Gao ID: GAO-08-908T June 11, 2008Each day, the Federal Aviation Administration (FAA) controls the take-offs, landings, and flights of over 50,000 aircraft. To accomplish this mission safely and efficiently, FAA must have a sufficient number of adequately trained air traffic controllers working at its air traffic control facilities. Over the next decade, FAA will need to hire and train nearly 17,000 controllers to replace over 15,000 current controllers, most of whom will be retiring. This massive hiring effort will occur as FAA begins to implement the next generation air transportation system (NextGen), which will integrate new technologies and procedures into air traffic operations and fundamentally change the role of air traffic controllers from controlling individual aircraft to managing air traffic flow. Hence, FAA will need to train experienced controllers to use the new technologies at the same time that it hires and trains new controllers to operate both the current and the new technologies. This testimony addresses FAA's progress and challenges in hiring, staffing, and training air traffic controllers in the current air traffic control system and in preparing them for NextGen. It is based on prior GAO work, updated with reviews of FAA documents and interviews with FAA officials, controller union representatives, and other stakeholders.
To prepare for the projected departure of over 15,000 air traffic controllers between 2008 and 2017, FAA began significantly increasing the number of new hires in fiscal years 2006 and 2007, when it hired 1,116 and 1,815 controllers, respectively. By contrast, in fiscal years 2002 through 2005, it had hired an average of 467 controllers per year. Retirements are taking place sooner than FAA expected. As a result, FAA has had to adjust its hiring targets upward--from 1,420 in fiscal year 2008 to 1,877, for example. While FAA has met its hiring targets so far and is on track to meet its target for fiscal year 2008, it has had to expand its applicant pool, in large part because fewer military controllers have sought civilian employment since the Department of Defense began to offer reenlistment bonuses of up to $60,000. As FAA brings new controllers on board, it faces the challenge of ensuring that its control facilities are adequately staffed to meet their unique traffic demands. In 2007, FAA established staffing ranges for each facility based on facility-specific information, such as air traffic operations, productivity trends, expected retirements, and number of controller trainees. However, FAA's staffing is not aligned with the new ranges at about half of its facilities. While overstaffing will provide trained replacements as retirements occur, understaffing has potential safety and efficiency implications. As the proportion of new hires increases over time, FAA will face further challenges in balancing the numbers of trainees and fully certified controllers at each facility. Furthermore, with fewer fully certified controllers and greater on-the-job training demands, controllers may work more overtime hours. Overtime can lead to fatigue, and many controllers routinely work overtime, raising safety concerns. Both GAO and the National Transportation Safety Board have found that controllers' work schedules can contribute to fatigue and have made recommendations to mitigate it. FAA is taking steps to address these recommendations. In the training area, FAA faces the dual challenge of certifying its new hires to operate today's air traffic control system as quickly as possible and of preparing to train both experienced controllers and new hires to operate NextGen technologies. Through training improvements, scheduling efficiencies, and greater use of simulators, FAA has, it says, reduced the amount of time controllers remain in trainee status; however, attrition among controllers in developmental training is increasing. It will be important for FAA to monitor the attrition and ensure that performance problems are addressed as early as possible to avoid unnecessary costs. Preparations for NextGen training are still in the early stages--as FAA observes, it is difficult to develop training for systems that have not yet been defined. However, GAO's work has shown that further research is needed to determine what training will be required to support the transition to NextGen--a transition that will involve changes in the roles and responsibilities of air traffic controllers as well as changes in technologies.
GAO-08-908T, Federal Aviation Administration: Efforts to Hire, Staff, and Train Air Traffic Controllers Are Generally on Track, but Challenges Remain
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Testimony:
Before the Subcommittee on Aviation, Committee on Transportation and
Infrastructure, House of Representatives:
United States Government Accountability Office:
GAO:
For Release on Delivery:
Expected at 2:00 p.m. EDT:
Wednesday, June 11, 2008:
Federal Aviation Administration:
Efforts to Hire, Staff, and Train Air Traffic Controllers Are Generally
on Track, but Challenges Remain:
Statement of Gerald L. Dillingham, Ph.D.
Director, Physical Infrastructure Issues:
GAO-08-908T:
GAO Highlights:
Highlights of GAO-08-908T, a testimony to the Subcommittee on Aviation,
Committee on Transportation and Infrastructure, House of
Representatives.
Why GAO Did This Study:
Each day, the Federal Aviation Administration (FAA) controls the take-
offs, landings, and flights of over 50,000 aircraft. To accomplish this
mission safely and efficiently, FAA must have a sufficient number of
adequately trained air traffic controllers working at its air traffic
control facilities. Over the next decade, FAA will need to hire and
train nearly 17,000 controllers to replace over 15,000 current
controllers, most of whom will be retiring. This massive hiring effort
will occur as FAA begins to implement the next generation air
transportation system (NextGen), which will integrate new technologies
and procedures into air traffic operations and fundamentally change the
role of air traffic controllers from controlling individual aircraft to
managing air traffic flow. Hence, FAA will need to train experienced
controllers to use the new technologies at the same time that it hires
and trains new controllers to operate both the current and the new
technologies.
This testimony addresses FAA‘s progress and challenges in hiring,
staffing, and training air traffic controllers in the current air
traffic control system and in preparing them for NextGen. It is based
on prior GAO work, updated with reviews of FAA documents and interviews
with FAA officials, controller union representatives, and other
stakeholders.
What GAO Found:
To prepare for the projected departure of over 15,000 air traffic
controllers between 2008 and 2017, FAA began significantly increasing
the number of new hires in fiscal years 2006 and 2007, when it hired
1,116 and 1,815 controllers, respectively. By contrast, in fiscal years
2002 through 2005, it had hired an average of 467 controllers per year.
Retirements are taking place sooner than FAA expected. As a result, FAA
has had to adjust its hiring targets upward”from 1,420 in fiscal year
2008 to 1,877, for example. While FAA has met its hiring targets so far
and is on track to meet its target for fiscal year 2008, it has had to
expand its applicant pool, in large part because fewer military
controllers have sought civilian employment since the Department of
Defense began to offer reenlistment bonuses of up to $60,000.
As FAA brings new controllers on board, it faces the challenge of
ensuring that its control facilities are adequately staffed to meet
their unique traffic demands. In 2007, FAA established staffing ranges
for each facility based on facility-specific information, such as air
traffic operations, productivity trends, expected retirements, and
number of controller trainees. However, FAA‘s staffing is not aligned
with the new ranges at about half of its facilities. While overstaffing
will provide trained replacements as retirements occur, understaffing
has potential safety and efficiency implications. As the proportion of
new hires increases over time, FAA will face further challenges in
balancing the numbers of trainees and fully certified controllers at
each facility. Furthermore, with fewer fully certified controllers and
greater on-the-job training demands, controllers may work more overtime
hours. Overtime can lead to fatigue, and many controllers routinely
work overtime, raising safety concerns. Both GAO and the National
Transportation Safety Board have found that controllers‘ work schedules
can contribute to fatigue and have made recommendations to mitigate it.
FAA is taking steps to address these recommendations.
In the training area, FAA faces the dual challenge of certifying its
new hires to operate today‘s air traffic control system as quickly as
possible and of preparing to train both experienced controllers and new
hires to operate NextGen technologies. Through training improvements,
scheduling efficiencies, and greater use of simulators, FAA has, it
says, reduced the amount of time controllers remain in trainee status;
however, attrition among controllers in developmental training is
increasing. It will be important for FAA to monitor the attrition and
ensure that performance problems are addressed as early as possible to
avoid unnecessary costs. Preparations for NextGen training are still in
the early stages”as FAA observes, it is difficult to develop training
for systems that have not yet been defined. However, GAO‘s work has
shown that further research is needed to determine what training will
be required to support the transition to NextGen”a transition that will
involve changes in the roles and responsibilities of air traffic
controllers as well as changes in technologies.
To view the full product, including the scope and methodology, click on
[hyperlink, http://www.gao.gov/cgi-bin/getrpt?GAO-08-908T]. For more
information, contact Gerald L. Dillingham at (202) 512-2834 or
dillinghamg@gao.gov.
[End of section]
Mr. Chairman and Members of the Subcommittee:
Thank you for the opportunity to testify today on air traffic
controller staffing. The Federal Aviation Administration (FAA) is
responsible for managing the national airspace system and ensuring the
safe and efficient movement of air traffic. Each day, FAA controls the
take-offs, landings, and flights of over 50,000 aircraft. To accomplish
this mission, FAA must have a sufficient number of adequately trained
air traffic controllers working at its air traffic control facilities.
Over the next decade, FAA will need to hire and train nearly 17,000
controllers to replace over 15,000 current controllers who are expected
to retire from or leave the agency.[Footnote 1] As FAA brings these new
employees on board, it will be important for the agency to manage the
process carefully and expeditiously and to maintain the highest levels
of safety in the national air space system. Furthermore, FAA will be
dealing with this massive hiring need at the same time that it
transforms the current air traffic control system into the next
generation air transportation system (NextGen), which will integrate
new technologies and procedures into air traffic operations and
fundamentally change the role of air traffic controllers from
controlling individual aircraft to largely managing air traffic flow.
Hence, FAA will need to train existing controllers to use the new
technologies at the same time that it hires and trains new controllers
to operate both the existing and the new technologies.
My testimony today focuses on FAA's progress and challenges in hiring,
staffing, and training air traffic controllers in the current air
traffic control system as well as preparing them for NextGen. This
statement is based on prior GAO studies and work we conducted in May
and June 2008, including reviews of FAA's annual controller workforce
plans and other key documents; discussions with senior FAA officials
and representatives of FAA's controllers union--the National Air
Traffic Controllers Association (NATCA)--and aviation industry groups;
and updates of the results of prior GAO studies. We conducted all of
our work in accordance with generally accepted government auditing
standards. Those standards require that we plan and perform the audit
to obtain sufficient, appropriate evidence to provide a reasonable
basis for our findings and conclusions based on our audit objectives.
We believe that the evidence obtained provides a reasonable basis for
our findings and conclusions based on our audit objectives.
FAA Is Making Progress in Hiring Air Traffic Controllers, but New Hires
May Have Less Experience Than in Prior Years:
During the coming decade, FAA will be challenged to continue hiring
thousands of air traffic controllers to replace those who will retire
and leave for other reasons. In March 2008, FAA projected that between
2008 and 2017, it will lose a total of 15,483 controllers through
retirement and other reasons, and our analysis of FAA data indicates
that about 63 percent of the current controller workforce will become
eligible for retirement by 2017. However, FAA's data indicate that more
controllers are retiring sooner than FAA anticipated. As table 1 shows,
the percentage of controllers retiring within 2 years of eligibility
has increased from about 33 percent in 2005 to 42 percent in 2007. For
fiscal year 2006, FAA estimated that 467 controllers would retire, but
583 actually retired--about 25 percent more than planned. For fiscal
year 2007, FAA anticipated 700 controller retirements, while 828
controllers actually retired--an 18 percent increase over anticipated
retirements.
Table 1: Years beyond Earliest Retirement Eligibility in Which
Retirement Occurred, 2005 through 2007:
0-1: [Empty].
Number of years beyond earliest retirement eligibility: 0-1;
Percentage of controllers retiring: 2005 retirements[A]: 23.4%;
Percentage of controllers retiring: 2006 retirements[B]: 24%;
Percentage of controllers retiring: 2007 retirements[C]: 28.9%.
Number of years beyond earliest retirement eligibility: 1-2;
Percentage of controllers retiring: 2005 retirements[A]: 9.3%;
Percentage of controllers retiring: 2006 retirements[B]: 11%;
Percentage of controllers retiring: 2007 retirements[C]: 12.7%.
Number of years beyond earliest retirement eligibility: Total;
Percentage of controllers retiring: 2005 retirements[A]: 32.7%;
Percentage of controllers retiring: 2006 retirements[B]: 35%;
Percentage of controllers retiring: 2007 retirements[C]: 41.6%.
Source: GAO analysis of FAA data.
[A] Based on 2005 data.
[B] Average annual percentage based on 2005 and 2006 data.
[C] Based on 2007 data.
[End of table]
To replace these controllers, FAA started making significant increases
in controller hiring in fiscal years 2006 and 2007, when it hired 1,116
and 1,815 controllers, respectively. (By comparison, during fiscal
years 2002 through 2005, FAA hired an average of 467 controllers each
year.) FAA plans to hire about 16,980 new controllers during fiscal
years 2008 through 2017. FAA anticipates hiring 1,877 controllers in
fiscal year 2008, which would bring the total number of air traffic
controllers to 15,130. Figure 1 shows the estimated numbers of losses
and planned hires for fiscal years 2008 through 2017. FAA projects the
total number of controllers will gradually increase from 15,130 in
fiscal year 2008 to 16,371 in fiscal year 2017.[Footnote 2]
Figure 1: FAA's Projected Air Traffic Controller Losses and Hiring,
Fiscal Years 2008-2017:
[See PDF for image]
This figure is a vertical bar graph depicting the following data:
Fiscal year: 2008;
Planned hires, number of controllers: 1,877;
Estimated losses, number of controllers: 1,621.
Fiscal year: 2009;
Planned hires, number of controllers: 1,914;
Estimated losses, number of controllers: 1,608.
Fiscal year: 2010;
Planned hires, number of controllers: 1,871;
Estimated losses, number of controllers: 1,599.
Fiscal year: 2011;
Planned hires, number of controllers: 1,840;
Estimated losses, number of controllers: 1,648.
Fiscal year: 2012;
Planned hires, number of controllers: 1,764;
Estimated losses, number of controllers: 1,665.
Fiscal year: 2013;
Planned hires, number of controllers: 1,733;
Estimated losses, number of controllers: 1,624.
Fiscal year: 2014;
Planned hires, number of controllers: 1,616;
Estimated losses, number of controllers: 1,562.
Fiscal year: 2015;
Planned hires, number of controllers: 1,498;
Estimated losses, number of controllers: 1,460.
Fiscal year: 2016;
Planned hires, number of controllers: 1,458;
Estimated losses, number of controllers: 1,394.
Fiscal year: 2017;
Planned hires, number of controllers: 1,409;
Estimated losses, number of controllers: 1,302.
Source: FAA.
[End of figure]
FAA incorporates each year's retirement numbers into its plans for
future years and has increased its hiring to compensate for the larger-
than-expected numbers of retirements. For example, the 1,877
controllers that FAA plans to hire in fiscal year 2008 represent a 28
percent increase over the 1,420 hires for 2008 that the agency planned
for a year ago. According to FAA data, the agency is on track to meet
its hiring target for fiscal year 2008. As of May 30, 2008, it had
hired 1,290 controllers--about 62 percent of the planned hires. FAA
recognizes that some of these increases in retirements may be
attributable to recent labor disputes and disagreements over the
contract that went into effect in 2006.
To keep on track with hiring controllers, in 2007 FAA expanded its
applicant pool to include the general public. Previously, FAA had
generally limited its hiring to individuals with prior FAA or
Department of Defense (DOD) air traffic control experience and
graduates of FAA's Air Traffic Collegiate Training Initiative (AT-CTI)
program. The agency began looking farther afield, FAA officials said,
because fewer military controllers have been seeking civilian
employment since DOD established incentives to retain its controllers.
For example, in 2007, the Air Force began offering reenlistment bonuses
of up to $60,000 for military air traffic controllers, and the Marine
Corps offers reenlistment bonuses of up to $40,000. By comparison, FAA
offers recruitment incentives of up to $20,000 for air traffic
controllers with experience and retention incentives of up to $24,000
for controllers who have submitted papers indicating that they plan to
retire. To further expand its hiring pool, in October 2007, FAA added
nine new colleges and universities to AT-CTI, bringing the total number
of schools to 23. Students who have successfully completed aviation-
related programs of study from these schools are an increasing source
of FAA hires. The number of AT-CTI graduates hired as controllers
increased from 195 in fiscal year 2005 to 1,019 in fiscal year 2007, or
56 percent of hires.
Hiring a Large Number of Controllers Presents a Staffing Challenge for
FAA:
As FAA brings new controllers on board, it faces the challenge of
ensuring that its control facilities are adequately staffed to meet
their unique traffic demands. In 2007, the agency established staffing
ranges for each facility that considered facility-specific information,
such as air traffic operations, productivity trends, expected
retirements, and the number of controllers in training. These new
ranges are an improvement over FAA's historical approach, which was to
compute the number of controllers needed systemwide and negotiate the
distribution of these totals to the facility level. In 2007, we found
that FAA's staffing was not aligned with the new ranges at 104
facilities--about one-third of FAA's 314 facilities. At that time, 93
facilities were overstaffed and 11 were understaffed.[Footnote 3] Our
review of updated staffing ranges and on-board levels contained in
FAA's 2008 controller workforce plan indicates that staffing is not
aligned at 45 percent of the facilities. As of April 2008, 145
facilities are overstaffed and 12 are understaffed. According to FAA,
the agency is purposefully overstaffing facilities with new hires so
that they are trained and ready to replace retiring controllers over
the next few years. However, the understaffing at some facilities has
potential safety and efficiency implications.
Within the next several years, the balance of experienced and newly
hired controllers will shift dramatically, adding a layer of complexity
to FAA's determination of proper controller staffing levels for its air
traffic control facilities. Although the projected number of new hires
each year represents a relatively small proportion of the total
controller workforce--about 12 percent per year--in a few years, the
cumulative effect of hiring at that rate on the experience level of the
workforce can be large. According to FAA, about one quarter of the
controller workforce had less than 5 years of experience at the end of
fiscal year 2007. Our analysis of FAA's hiring and retirement
projections indicates that by 2011, up to 59 percent of the controller
workforce will have less than 5 years of experience and by 2016 that
percentage will remain over 50 percent. With such a high percentage of
newly hired controllers, fewer experienced controllers will be
available to provide on-the-job instruction to trainees and more time
may be needed to train and certify newly hired controllers, according
to FAA. In addition, newly certified controllers may be less efficient
than experienced controllers in handling the large volume of traffic
that occurs at large and congested airports. However, the current and
forecasted decline in air traffic that is being attributed to the
rising cost of aviation fuel, the subsequent rise in costs to
passengers, and the nation's general economic condition may provide a
window of opportunity for hiring new controllers and providing
experience in a less congested environment.
Managing air traffic safely and effectively while training new
controllers will require balancing the numbers of trainees and fully
certified controllers at each facility. Fully certified controllers
have completed their training and are qualified to control traffic at
all positions at their assigned location, and those who are fully
certified for at least 6 months can become on-the-job instructors for
new controllers. Our analysis of staffing at the 50 busiest airports
showed that the percentage of fully certified controllers at each
facility ranged from 56 percent to 94 percent. (See app. I.) The
facilities with the lowest percentage of fully certified controllers
include William P. Hobby Airport (Houston) (56 percent fully certified
controllers), LaGuardia Airport (61 percent), Dallas-Ft. Worth Airport
(62 percent), and Cleveland Hopkins Airport and Tampa Airport (both 63
percent). Facilities with the highest percentage of fully certified
controllers include St. Louis Airport (94 percent), San Francisco
Airport (93 percent), Portland Airport and Logan Airport (both 92
percent), and Minneapolis/St. Paul Airport(90 percent).
FAA recognizes the importance of balancing the numbers of trainees and
fully certified controllers. Historically, trainees have accounted for
less than 35 percent of the controller workforce, but the agency is
working to determine target ranges for the number of trainees that
individual facilities can accommodate. These ranges are likely to
depend on factors such as the size and workload of the facility. The
speedy development and verification of these data will help to ensure
that facilities have a sufficient number of fully certified controllers
to instruct trainees and to safely and efficiently manage air traffic.
For transparency, it will be important for FAA to include such data in
its annual controller workforce plan.
To the extent that retirement rates and the proportion of trainees at
individual facilities leads to greater use of overtime, the potential
for fatigue can increase, raising safety concerns. We previously
reported [Footnote 4] that air traffic controllers at some of the
nation's busiest airports were regularly working 6-day weeks because of
staffing shortages, raising questions about the extent to which this
situation may cause fatigue. In November 2007, we identified controller
fatigue as an issue affecting runway safety and recommended that FAA
develop a mitigation plan for addressing controller overtime by
adopting strategies to attract controllers to facilities with high
volumes of air traffic and high rates of controller overtime. In
response to our recommendation, FAA has established a working group to
develop a mitigation plan and identify recruitment and retention tools.
FAA has already taken positive steps toward implementing the mitigation
plan by offering pay and relocation incentives of up to $25,000 to
controllers who volunteer to relocate to facilities that are short-
staffed. FAA's initial offerings have had generally positive results;
volunteers accepted FAA's relocation offer for 11 locations but 1
location had no volunteers. It remains to be seen whether future
planned offerings will be successful in achieving the needed staffing
levels.
In addition, the National Transportation Safety Board (NTSB) has cited
controller work schedules as contributing to fatigue and raising safety
concerns. Since 1990, NTSB has placed efforts to address fatigue on its
list of "most wanted" transportation safety improvements, citing safety
concerns about the effects of fatigue on air traffic controllers and
other persons performing critical functions in the aviation industry.
NTSB noted in 2007 that about 61 percent of controllers work rapidly
rotating 8-hour shifts[Footnote 5] with progressively earlier start
times (see fig. 2), and about 40 percent of the controllers in this
group (about 25 percent of all controllers) are assigned at least one
midnight shift per week. Many controllers in this latter group work
what is commonly referred to as a "2-2-1" schedule, which consists of
two afternoon shifts, followed by two day shifts, followed by one
midnight shift. For controllers, this schedule provides a longer
weekend, eliminates the need to work more than one midnight shift in a
single week, and allows a long recovery period after that one midnight
shift. However, NTSB found that the schedule is problematic because it
typically includes short rest periods of just 8 or 9 hours between
shifts, allows minimal time for sleep when other necessary daily
activities are taken into account, and may include rest periods during
daytime hours when quality sleep may be difficult to obtain.
Figure 2: Example of "2-2-1" Rotation Schedule:
[See PDF for image]
This figure is an illustration of an example of "2-2-1" rotation
schedule, as follows:
Work day 1, 3-11 PM:
15 hours off duty, 8 hours on duty, 1 hour off duty;
Work day 2: 2-10 PM:
14 hours off duty (total 15 consecutive hours), 8 hours on duty, 2
hours off duty.
Work day 3: 7 AM - 3 PM:
7 hours off duty (total 9 consecutive hours), 8 hours on duty, 9 hours
off duty.
Work day 4: 6 AM - 2 PM:
6 hours off duty (total 15 consecutive hours), 8 hours on duty, 8 hours
off duty.
Work day 5: 10 PM - 6 AM:
8 hours on duty, 81 hours off duty (includes Off day 6, Off day 7
through 3 PM on Work Day 1).
Source: GAO analysis.
[End of figure]
NTSB has recommended that FAA mitigate air traffic controller fatigue
by working with NATCA to revise controller work-scheduling policies and
practices so controllers will have enough sleep and to modify shift
rotations to minimize sleep disruptions for controllers. The
recommendation was jointly addressed to NATCA because NTSB found that
the contract between NATCA and FAA stipulated certain scheduling
practices, such as shift swapping, that had not been evaluated for
their effect on controller fatigue. In addition, NTSB recommended that
FAA develop a fatigue awareness and countermeasures training program
for controllers and for the personnel involved in scheduling their
work. In supporting its recommendation, NTSB cited four instances from
2001 through 2006 when tired controllers made errors while performing
their duties that resulted in serious runway incursions.[Footnote 6] In
each case, NTSB linked controller fatigue to the work schedule. NTSB
said that FAA regulations and policies do not adequately consider the
potential effect of work scheduling on fatigue and performance.
[Footnote 7]
To address NTSB's recommendations, FAA plans to develop and implement a
fatigue awareness and countermeasures training program. The agency also
plans to convene a working group that includes NATCA to develop shift
rotation and scheduling guidelines. However, NATCA and FAA disagree on
the level of cooperation that is taking place between them on this
initiative. It is critical that FAA and NATCA work together on this
issue to mitigate the potential effects of fatigue on controller
performance and aviation safety.
Training Program Has Expedited Certification of New Controllers, but
Potential Hurdles Could Affect Further Progress in Training for New
Controllers and Training for NextGen:
Quickly training the newly hired controllers will be critical to FAA's
ability to expeditiously replace the retiring controllers. FAA trains
controllers in stages, starting with classroom training at its academy
in Oklahoma City. Upon graduation from the academy, controllers are
assigned to an air traffic control facility as "developmental"
controllers, where they receive on-the-job training for specific air
traffic control positions. Fully certified controllers conduct this
training by observing and instructing the trainee. Controllers receive
certification for each position as they progress through the training
program.
According to FAA's 2008 controller workforce plan, the agency has been
making progress in reducing the amount of time controllers remain in
trainee status, which includes time spent at the academy and in a
developmental role. In fiscal year 2005, it took 3 to 4 years to train
an air traffic controller. In fiscal year 2007, it took about 1.9 years
at terminal facilities and about 3.1 years at en route facilities,
according to FAA's 2008 controller workforce plan.[Footnote 8] The
agency attributes this reduction in training time to improved training
and scheduling processes and increased use of simulators. However, as
of May 2008, about 2,700 controllers were in trainee status, and it is
too early to tell how the length of their training will be affected by
factors discussed previously in this statement, such as the decreasing
proportion of fully certified controllers available to provide on-the-
job training.
Figure 3: Air Traffic Controller:
[See PDF for image]
Photograph of an Air Traffic Controller at work.
[End of figure]
While trainees appear to be moving through the training program faster,
attrition among developmental controllers is increasing, from about 6
percent of new hires in fiscal year 2006 to about 9 percent in fiscal
year 2007. According to FAA's projections, developmental attrition will
rise to 14 percent in fiscal year 2008. As of May 2008, the attrition
rate for the year for developmental controllers was about 7 percent.
FAA has incorporated this information into its hiring forecasts, but a
high attrition rate has budgetary implications for FAA--FAA projects
that the average cost of a developmental controller will be $78,095 in
fiscal year 2008. It will be important for FAA to monitor the attrition
rate, track the reasons for attrition, and release poor performers as
soon as possible to avoid unnecessary costs.
To achieve further efficiencies in training controllers, FAA has
initiated a contracting effort--called the Air Traffic Control Optimum
Training Solution (ATCOTS). ATCOTS would consolidate two existing
contracts--one with the University of Oklahoma, which provides
controller training at FAA's training academy in Oklahoma City, and the
other with Washington Consulting Group (WCG), which provides controller
training throughout the country at air traffic control facilities. FAA
plans to award the contract in June 2008 and have it implemented by the
end of fiscal year 2008. According to FAA, the consolidated contract
will allow for more consistent training and potential improvements and
efficiencies in the training. During the first year of the 10-year
contract, FAA's training program is to remain unchanged. After the
first year, the contractor may suggest changes to increase the
efficiency of the training program. These changes would require FAA's
approval, according to FAA officials. FAA's transition plans for the
ATCOTS contract allow for 3-month extensions of the University of
Oklahoma contract and 1-month extensions of the WCG contract to cover
any gaps between the end of the current contracts and the start of
ATCOTS.
FAA employees and other stakeholders have raised concerns about ATCOTS.
According to FAA employees at the training academy, FAA has not
addressed how current academy employees would be used under ATCOTS or
determined what cost and time efficiencies could be achieved through
the contract. An industry stakeholder maintained that ATCOTS will not
provide a sufficient change from the current training and said it was
not clear how the program would meet FAA's training needs over the next
10 years, especially any unique needs arising from FAA's implementation
of NextGen. In addition, because of concern that FAA has not
sufficiently examined the costs and benefits of ATCOTS, a provision in
FAA's fiscal year 2008 appropriation legislation[Footnote 9] prohibits
FAA from using any money in fiscal year 2008 for ATCOTS to displace,
reassign, reduce the salary of, or take any other action that would
result in a reduction in force for employees at FAA's academy or a
discontinuation of the academy as the primary training facility for
controllers. According to FAA, ATCOTS will not affect FAA personnel at
the academy in any of these ways. FAA also does not anticipate much
change in the contractor personnel at the academy, since the agency
anticipates they would be retained by the ATCOTS awardee. With the
current training contracts scheduled to expire in July and September
2008, the contract extensions that FAA has in place will be important
in case the ATCOTS contract is delayed. If ATCOTS is delayed or cannot
meet its objectives, FAA's workforce plan may not be achievable.
Both New and Experienced Controllers Will Need Training for NextGen,
and Further Human Factors Research Is Needed to Support the Transition:
Further work is needed to develop training for both new hires and fully
certified controllers to deal with the paradigm shift that will come
with NextGen. That paradigm shift calls for an increased reliance on
automation and changed roles for both air traffic controllers and
pilots under NextGen. In a more automated environment, controllers will
be less responsible for controlling air traffic--that is, for directing
specific aircraft movements--and more responsible for managing air
traffic--that is, for monitoring conditions as pilots control their
aircraft to maintain safe separation and perform other tasks now
performed by controllers. Human factors[Footnote 10] will be an
important aspect of training air traffic controllers to handle both the
old and the new equipment as the new systems are gradually brought
online. Our past work has shown that when human factors are not
adequately addressed, delays and cost overruns have occurred in
implementing new air traffic control technology.[Footnote 11]
While some industry stakeholders told us it was too early to begin
training for NextGen systems that are not close to coming online,
others said that it was time to begin developing the training to
prepare FAA personnel and others for the paradigm shift that will be
required to implement NextGen. Furthermore, a change of this magnitude
and complexity will require adequate lead time. For example, one
stakeholder noted that the educational community needs to be engaged
now so that it can design training and be prepared to teach future air
traffic controllers and pilots.
In response to these issues, FAA told us that it is difficult to
develop training for systems that are not yet fully defined. However,
according to FAA, it is in the early stages of talking to the
educational community. Also, the simulation laboratories currently used
to train controllers can be modified to reflect changes as NextGen
technologies are deployed, according to FAA. In addition, in fiscal
year 2008, FAA began a strategic analysis to determine how the
controller's job will be expected to change as a result of NextGen. In
fiscal year 2009, FAA expects that this effort will include an
identification of changes to training for the existing workforce and
for new controllers. It will be important for FAA to complete this
effort expeditiously, because NextGen technologies and procedures are
already being implemented. Furthermore, it remains to be seen how this
effort will be affected by the lack of human factors research needed to
support it.
In prior work, we have identified human factors research as a critical
research need for NextGen.[Footnote 12] The changes in roles and
responsibilities for air traffic controllers that will be central to
NextGen technology raise significant human factors issues for the
safety and efficiency of the national airspace system. According to
FAA, verbal communication is a human factors area that requires further
research and development. Currently, air traffic controllers primarily
rely on verbal communication to direct aircraft. Because NextGen will
rely on automated communications, controllers will require training in
both understanding and operating in an automated communication
environment. The research to support such training has not been
conducted, according to FAA. In addition, several stakeholders that we
interviewed expressed concern that NextGen plans do not adequately
address human factors research. Although the National Aeronautics and
Space Administration (NASA) has historically been a primary resource
for human factors and other aeronautical research and development, its
ability to provide human factors research for NextGen will be limited
because it recently lost a significant proportion of its human factors
staff, according to a NASA official. Understanding what skills air
traffic controllers will need will help FAA develop an appropriate
training curriculum for them.
In conclusion, a safe and efficient national airspace system is an
essential part of the nation's critical infrastructure. It is a key
element for domestic mobility and participation in the global economy.
The steps and initiatives that have been initiated by FAA's Air Traffic
Organization management team to ensure that there is an adequate and
competent air traffic controller workforce show progress and are
commendable. Going forward, it is imperative that both FAA management
and the bargaining unit find ways to improve their ability to work
together to ensure that the steps and initiatives are sustained,
monitored, and periodically revised to ensure progress for years to
come.
Mr. Chairman, this concludes my prepared statement. I would be pleased
to respond to any questions from you or other members of the
Subcommittee.
GAO Contact and Staff Acknowledgments:
For further information on this testimony, please contact Dr. Gerald L.
Dillingham at (202) 512-2834 or dillinghamg@gao.gov. Individuals making
key contributions to this testimony include Teresa Spisak, Kevin Egan,
Bess Eisenstadt, Bert Japikse, Taylor Reeves, and Richard Scott.
[End of section]
Appendix I: Additional Information on Controller Staffing:
Table:
Facility name: Lambert-St. Louis International Airport;
Number of fully certified controllers: 29;
Number of controllers: 31;
Percentage of fully certified controllers: 94.
Facility name: San Francisco International Airport;
Number of fully certified controllers: 27;
Number of controllers: 29;
Percentage of fully certified controllers: 93.
Facility name: General Edward Lawrence Logan International Airport;
Number of fully certified controllers: 36;
Number of controllers: 39;
Percentage of fully certified controllers: 92.
Facility name: Portland International Airport;
Number of fully certified controllers: 22;
Number of controllers: 24;
Percentage of fully certified controllers: 92.
Facility name: Minneapolis/St. Paul International Airport;
Number of fully certified controllers: 38;
Number of controllers: 42;
Percentage of fully certified controllers: 90.
Facility name: San Diego International Airport - Lindbergh Field;
Number of fully certified controllers: 17;
Number of controllers: 19;
Percentage of fully certified controllers: 89.
Facility name: Baltimore-Washington International Airport;
Number of fully certified controllers: 25;
Number of controllers: 28;
Percentage of fully certified controllers: 89.
Facility name: Phoenix Deer Valley Airport;
Number of fully certified controllers: 16;
Number of controllers: 18;
Percentage of fully certified controllers: 89.
Facility name: Orlando/Sanford Airport;
Number of fully certified controllers: 16;
Number of controllers: 18;
Percentage of fully certified controllers: 89.
Facility name: John Wayne Airport-Orange County Airport;
Number of fully certified controllers: 21;
Number of controllers: 24;
Percentage of fully certified controllers: 88.
Facility name: Centennial Airport;
Number of fully certified controllers: 19;
Number of controllers: 22;
Percentage of fully certified controllers: 86.
Facility name: Salt Lake City International Airport;
Number of fully certified controllers: 29;
Number of controllers: 34;
Percentage of fully certified controllers: 85.
Facility name: Metropolitan Oakland International Airport;
Number of fully certified controllers: 22;
Number of controllers: 26;
Percentage of fully certified controllers: 85.
Facility name: Washington Dulles International Airport;
Number of fully certified controllers: 34;
Number of controllers: 41;
Percentage of fully certified controllers: 83.
Facility name: Seattle/Tacoma International Airport;
Number of fully certified controllers: 26;
Number of controllers: 32;
Percentage of fully certified controllers: 81.
Facility name: Covington/Cincinnati International Airport;
Number of fully certified controllers: 62;
Number of controllers: 77;
Percentage of fully certified controllers: 81.
Facility name: Philadelphia International Airport;
Number of fully certified controllers: 69;
Number of controllers: 87;
Percentage of fully certified controllers: 79.
Facility name: Tucson International Airport;
Number of fully certified controllers: 15;
Number of controllers: 19;
Percentage of fully certified controllers: 79.
Facility name: Los Angeles International Airport;
Number of fully certified controllers: 36;
Number of controllers: 46;
Percentage of fully certified controllers: 78.
Facility name: Charlotte/Douglas International Airport;
Number of fully certified controllers: 61;
Number of controllers: 79;
Percentage of fully certified controllers: 77.
Facility name: Honolulu Control Facility;
Number of fully certified controllers: 64;
Number of controllers: 83;
Percentage of fully certified controllers: 77.
Facility name: McCarran International Airport;
Number of fully certified controllers: 26;
Number of controllers: 34;
Percentage of fully certified controllers: 76.
Facility name: Miami International Airport;
Number of fully certified controllers: 66;
Number of controllers: 87;
Percentage of fully certified controllers: 76.
Facility name: Chicago Midway Airport;
Number of fully certified controllers: 25;
Number of controllers: 33;
Percentage of fully certified controllers: 76.
Facility name: The William B. Hartsfield Atlanta International Airport;
Number of fully certified controllers: 37;
Number of controllers: 49;
Percentage of fully certified controllers: 76.
Facility name: Phoenix Sky Harbor International Airport;
Number of fully certified controllers: 30;
Number of controllers: 40;
Percentage of fully certified controllers: 75.
Facility name: Detroit/Wayne County International Airport;
Number of fully certified controllers: 27;
Number of controllers: 36;
Percentage of fully certified controllers: 75.
Facility name: Newark/Liberty International Airport;
Number of fully certified controllers: 27;
Number of controllers: 36;
Percentage of fully certified controllers: 75.
Facility name: Memphis International Airport;
Number of fully certified controllers: 51;
Number of controllers: 68;
Percentage of fully certified controllers: 75.
Facility name: Fort Lauderdale/Hollywood International Airport;
Number of fully certified controllers: 21;
Number of controllers: 28;
Percentage of fully certified controllers: 75.
Facility name: Raleigh/Durham International Airport;
Number of fully certified controllers: 33;
Number of controllers: 44;
Percentage of fully certified controllers: 75.
Facility name: Denver International Airport;
Number of fully certified controllers: 28;
Number of controllers: 38;
Percentage of fully certified controllers: 74.
Facility name: Dallas/Love Field;
Number of fully certified controllers: 19;
Number of controllers: 26;
Percentage of fully certified controllers: 73.
Facility name: George Bush Intercontinental Airport;
Number of fully certified controllers: 29;
Number of controllers: 40;
Percentage of fully certified controllers: 73.
Facility name: Mesa/Falcon Field;
Number of fully certified controllers: 13;
Number of controllers: 18;
Percentage of fully certified controllers: 72.
Facility name: Daytona Beach International Airport;
Number of fully certified controllers: 40;
Number of controllers: 56;
Percentage of fully certified controllers: 71.
Facility name: Ronald Reagan - Washington National Airport;
Number of fully certified controllers: 21;
Number of controllers: 30;
Percentage of fully certified controllers: 70.
Facility name: Ted Stevens Anchorage International Airport;
Number of fully certified controllers: 16;
Number of controllers: 23;
Percentage of fully certified controllers: 70.
Facility name: David Wayne Hooks Memorial Airport;
Number of fully certified controllers: 9;
Number of controllers: 13;
Percentage of fully certified controllers: 69.
Facility name: Chicago O'Hare International Airport;
Number of fully certified controllers: 47;
Number of controllers: 68;
Percentage of fully certified controllers: 69.
Facility name: John F. Kennedy International Airport;
Number of fully certified controllers: 24;
Number of controllers: 35;
Percentage of fully certified controllers: 69.
Facility name: Long Beach/Daugherty Field Airport;
Number of fully certified controllers: 18;
Number of controllers: 27;
Percentage of fully certified controllers: 67.
Facility name: Orlando International Airport;
Number of fully certified controllers: 50;
Number of controllers: 75;
Percentage of fully certified controllers: 67.
Facility name: Van Nuys Airport;
Number of fully certified controllers: 15;
Number of controllers: 23;
Percentage of fully certified controllers: 65.
Facility name: Boeing Field/King County International Airport;
Number of fully certified controllers: 15;
Number of controllers: 23;
Percentage of fully certified controllers: 65.
Facility name: Tampa International Airport;
Number of fully certified controllers: 44;
Number of controllers: 70;
Percentage of fully certified controllers: 63.
Facility name: Cleveland Hopkins International Airport;
Number of fully certified controllers: 40;
Number of controllers: 64;
Percentage of fully certified controllers: 63.
Facility name: Dallas/Ft. Worth International Airport;
Number of fully certified controllers: 37;
Number of controllers: 60;
Percentage of fully certified controllers: 62.
Facility name: La Guardia International Airport;
Number of fully certified controllers: 22;
Number of controllers: 36;
Percentage of fully certified controllers: 61.
Facility name: William P. Hobby Airport;
Number of fully certified controllers: 14;
Number of controllers: 25;
Percentage of fully certified controllers: 56.
Source: GAO analysis of FAA data.
[End of table]
[End of section]
Footnotes:
[1] In 1981, over 11,000 air traffic controllers went on strike and
were subsequently fired by President Ronald Reagan. Between 1982 and
1990, FAA hired thousands of individuals to permanently replace the
fired controllers. Most of this hiring took place between 1982 and
1986. Many of these controllers, as well as those controllers who did
not participate in the strike, are now eligible or will soon be
eligible to retire from FAA.
[2] Although air traffic is expected to increase significantly over the
next decade, FAA expects that NextGen technologies and procedures will
allow air traffic controllers to be more productive. Thus, FAA does not
currently plan for any dramatic increases in overall controller
staffing through 2017.
[3] GAO, Federal Aviation Administration: Key Issues in Ensuring the
Efficient Development and Safe Operation of the Next Generation Air
Transportation System, [hyperlink, http://www.gao.gov/cgi-
bin/getrpt?GAO-07-636T] (Washington, D.C.: Mar. 22, 2007).
[4] Aviation Runway and Ramp Safety: Sustained Efforts to Address
Leadership, Technology, and Other Challenges Needed to Reduce Accidents
and Incidents, [hyperlink, http://www.gao.gov/cgi-bin/getrpt?GAO-08-29]
(Washington, D.C.: Nov. 20, 2007).
[5] Rapidly rotating shift schedules are characterized by varying start
and stop times that change too rapidly for circadian rhythms to adapt.
[6] A runway incursion is any incident involving an unauthorized
aircraft, vehicle, or person on a runway.
[7] FAA regulation (14 CFR § 65.47) allows tower controllers to be
scheduled for up to 10 consecutive hours of operational duty and
requires that they be given a rest period of at least 8 hours between
shifts and be provided at least 1 full 24-hour day off per week. An FAA
order (7210.3) requires that controllers be provided a rest period of
at least 12 hours after a midnight shift.
[8] Terminal facilities include air traffic control terminals at
airports and terminal radar approach control (TRACON) facilities, which
provide radar-control service to aircraft arriving or departing a
primary airport and adjacent airports and to aircraft transiting the
terminal's airspace. En route facilities provide air traffic control
service to aircraft operating during the en route phase of flight.
[9] § 110-161.
[10] Human factors refers to what is known about people, their
abilities, characteristics, and limitations in the design of the
equipment they use, the environments in which they function, and the
jobs they perform.
[11] GAO, National Airspace System: FAA Has Made Progress but Continues
to Face Challenges in Acquiring Major Air Traffic Control Systems,
[hyperlink, http://www.gao.gov/cgi-bin/getrpt?GAO-05-331] (Washington,
D.C.: June 10, 2005).
[12] GAO, Next Generation Air Transportation System: Status of the
Transition to the Future Air Traffic Control System, [hyperlink,
http://www.gao.gov/cgi-bin/getrpt?GAO-07-784T] (Washington, D.C.: May
9, 2007).
[End of section]
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