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ATC Growing Pains 1 Navigating the Skies: Addressing the Growing Pains of Air Traffic Control Sydney T. Hall Embry-Riddle Aeronautical University ASCI 491

ATC Growing Pains 2 Abstract The aviation industry has been profoundly impacted by the global pandemic, with air traffic controller shortages emerging as a critical challenge. This research paper delves into the multifaceted struggles behind the scarcity of air traffic controllers worldwide, examining the intricate web of factors exacerbated by the pandemic. The study explores the consequences of reduced staffing levels on air traffic management, safety, and the overall efficiency of airspace operations. In response to these challenges, the Federal Aviation Administration (FAA) has undertaken comprehensive measures to mitigate the air traffic controller shortage. This paper investigates the proactive strategies implemented by the FAA, including workforce development initiatives and innovative training methodologies. Through qualitative analysis, this research aims to provide a comprehensive understanding of the intricate dynamics surrounding air traffic controller shortages post-pandemic. By shedding light on the FAA's initiatives, the paper seeks to contribute valuable insights for policymakers, aviation professionals, and the public in addressing this critical issue and ensuring the continued safety and efficiency of global airspace management.

ATC Growing Pains 3 Introduction to ATC Concerns As the demand for air travel continues to rise, air traffic controllers are confronted with higher traffic volumes, necessitating a closer examination of the complications associated with managing intensified aerial activity. A shortage of air traffic controllers pushed aviation authorities to actively work on maintaining an adequate number of controllers to reduce the increased workloads, fatigue, decline in overall situational awareness, and other health safety risks. Background on ATC Shortage A surge in air travel has led to a substantial increase in the number of aircraft operating within the airspace, creating a complex web of flights that requires adept navigation and coordination. The traditional roles of air traffic controllers, that was once designed to handle relatively lower traffic volumes, is not faced with the formidable task of adapting to an escalating demand while maintaining the paramount objective of ensuring safety in the skies. A statement released from International Air Transportation Association’s Director General Willie Walsh mentioned that airlines reduced their schedules by 10% at New York airports at the request of the Federal Aviation Administration (FAA) to acknowledge that it could not accommodate the current level of operations with the existing controller workforce (Walsh, 2023). The chairperson of the National Transportation Safety Board, Jennifer Homendy, told a Senate panel that a rise in near collisions in the U.S. airspace is a sign that our aviation system is under stress caused by challenges in staffing and that the staffing shortages are a result of the pandemic putting a strain on air traffic controllers (Harmer, 2023). COVID-19 was declared as a global health emergency in March 2020 by the World Health Organization (NWM, 2023). The public health emergency was not lifted in the U.S. until the Biden Administration announced the end date of May 11,

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ATC Growing Pains 4 2023 (NWM, 2023). National Air Traffic Control Association President, Rich Santa, acknowledged the effect that air traffic controller staffing shortages had on air travel and stated that although there has been an increased focus on training, the hiring process to overcome the shortage takes years (Wichter, 2023). Pandemic Effects on ATC The shortage of air traffic controllers in the aviation industry has emerged as a critical concern, prompting extensive analysis by the Federal Aviation Administration (FAA), National Transportation Safety Board (NTSB), International Air Transportation Association (IATA), and National Air Traffic Control Association (NATCA). Analysis consistently highlighted several key factors contributing to this shortage. One significant factor previously mentioned is the disruption caused by the COVID-19 pandemic, as told by chairperson of the NTSB, Jennifer Homendy (Harmer, 2023). The widespread travel restrictions, reduced flight schedules, and financial challenges faced by airlines led to the decreased demand for air traffic controller services. Additional disruptions to normal working conditions, including remote work arrangements, and health concerns have negatively influenced the job preferences and choices of existing controllers. Along with pandemic protocols, factoring in the complexity of the job and its need for comprehensive training programs resulting in a time consuming and resource- intensive process, the attrition rate further compounds the challenges of maintaining an adequate workforce. The demanding nature of the job, coupled with a pandemic, irregular working hours and the responsibility for ensuring the safety of countless lives, creates a high-pressure environment. To mitigate the shortage, various strategies have been proposed such as streamlining the training process, implementing technology-driven solutions to enhance efficiency, and adopting recruitment initiatives to attract a diverse pool of candidates.

ATC Growing Pains 5 Government policies and legislative measures such as the FAA Reauthorization Bill, also play a pivotal role in shaping the landscape of air traffic controller staffing. Senator Cantwell issued a statement at a hearing for Aviation Safety, Operations, and Innovation, saying that the shortages cited have led to scheduling issues, fatigue, lack of supervisory oversight, distraction, and ineffective scanning (Cantwell, 2023). This statement was based on collected data that revealed controllers working 10 hour shifts six days a week and the FAA’s need for 3000 more controllers (Cantwell, 2023). Thus, the efforts to boost the passing of the FAA Reauthorization Bill in order to make vital improvements in the air traffic control workforce (Cantwell, 2023). This bill outlines the funding and policies for the FAA to help close the gap in the FAA’s controller staffing, leverage technology to reduce the training backlog and authorize $67.5 billion to fund FAA operations and increase controller staffing (CRS, 2023). A few notable incidents that have recently occurred due to the controller shortage from the effects of the pandemic are reports of controllers being drunk and asleep on the job because they’re “pushed to the brink” (Steel, 2023). A shortage of controllers nationwide has resulted in an exhausted and demoralized work force that is increasingly prone to making dangerous mistakes (Steel, 2023). The reported physical altercations among controllers at the New York, Miami, and Jacksonville facilities (Steel, 2023), pose a serious threat to aviation safety, as it can lead to communication breakdowns, distraction, and compromised decision-making. In the high-stakes environment of air traffic control, maintaining a professional and collaborative atmosphere is crucial to prevent incidents and ensure the safe coordination of air traffic. Intoxication on the job due to the stress impeded on the existing controllers is a direct result of the shortage of controllers and the strain put on them from the long working days and work weeks. The dangers of air traffic controllers being intoxicated are substantial, as impaired judgment and slowed reflexes can lead to critical

ATC Growing Pains 6 errors in managing air traffic. Precision and quick decision-making are essential in this role, and alcohol impairment significantly increases the risks of mistakes, jeopardizing the safety of flights and passengers. Strict adherence to sobriety regulations is crucial to maintaining a secure air traffic control environment. Results The FAA grapples with persistent staffing challenges, lacking a comprehensive plan to address the issue, thereby posing a risk to the continuity of air traffic operations (U.S. DoT, 2023). The U.S. Department of Transportation has determined that 20 out of the 26 (77%) critical facilities fall below the agency’s 85% staffing threshold (U.S. DoT, 2023). The COVID- 19 pandemic resulted in training pauses lasting nearly two years, significantly elongating controller certification times. Key facilities like the New York Terminal Radar Approach Control (TRACON) and Miami Tower are understaffed at 54% and 66% respectively (U.S. DoT, 2023). This data underscores limited efforts by the FAA to ensure sufficient controller staffing at vital air traffic control facilities. Notably, it was not until November 9, 2023, that Senator Cantwell issued a press release detailing the endeavors behind the FAA Reauthorization Bill, aimed at revitalizing the controller workforce in the aftermath of the pandemic-induced disruptions; all of which is included in the new FAA 10 Year Strategy for the Air Traffic Control Workforce re- issued in 2021. Conclusion In conclusion, the shortage of air traffic controllers is a multifaceted issue influenced by many factors, specifically speaking health safety concerns brought on by the COVID-19 pandemic and its impact on demographic trends, training complexities, and workplace dynamics. Efforts to address this shortage require a comprehensive approach that encompasses pandemic

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ATC Growing Pains 7 recovery, recruitment strategies, training program enhancements, and policy implementation to ensure a sustainable and proficient air traffic control workforce. Recommendations The FAA’s original 10-year strategy for the Air Traffic Controller Workforce, initiated in 2016, outlined comprehensive resource plans to maintain adequate staffing levels (FAA, 2016). This strategic blueprint underwent a reevaluation and resubmission in response to the unforeseen challenges posed by the COVID-19 pandemic. As part of the FAA’s endeavors to rebuild the controller workforce, recommendations were made to alleviate the workload on existing controllers. These included a two-track announcement for hiring and recruitment, incorporating virtual onboarding and training (FAA, 2021). This innovative approach allowed new hires to cover air traffic basics from their homes before proceeding to the Academy in Oklahoma City for the subsequent phase of training. Despite these initiatives, the pandemic disruptions led to the hiring of only 500 controllers out of the targeted 900 in fiscal year 2021 (FAA, 2021). The primary contributor to controller workload is the demand generated by air traffic (FAA, 2021). Considering this, an initial focus on analyzing facilities adversely affected by understaffing would be prudent when prioritizing new hires. With the pandemic no longer classified as a public health emergency, the implementation of additional hiring opportunities becomes crucial to attract more controllers. Establishing two significant hiring windows each year could effectively address the pressing issue of alarmingly low controller numbers.

ATC Growing Pains 8 References 1. Bharat, A., MD, Koralnik, I., J., MD. (March, 2023). COVID-19 Pandemic Timeline: COVID-19 Milestones Around the World and at Northwestern Medicine. Northwestern Medicine. https://www.nm.org/healthbeat/medical-advances/new-therapies-and-drug- trials/covid-19-pandemic-timeline 2. Hah, S., Willems, B., Phillips, R. (2006). The Effect of Air Traffic Increase on Controller Workload. Human Factors Group- Atlantic City. Federal Aviation Administration. https://hf.tc.faa.gov/publications/2006-the-effect-of-air-traffic-increase/full_text.pdf 3. Harmer, A. (November 13, 2023). NTSB Has Reported Multiple Planes Almost Colliding. Why U.S. Aviation is Strained- and What it Means for Your Travel. Deseret News. https://www.deseret.com/2023/11/13/23959645/aviation-system-under-strain 4. Unknown. (July 19, 2023). Addressing North American Air Traffic Control Shortcomings. The International Air Transportation Association (IATA). https://www.iata.org/en/pressroom/2023-releases/2023-07-19-01/ 5. Unknown. (November 9, 2023). Pilots, Air Traffic Controllers, NTSB Tell Committee: Senate Federal Aviation Administration Reauthorization Bill Key to Boosting Aviation Safety in Wake of Alarming Close Calls and Near Misses. U.S. Senate Committee on Commerce, Science, & Transportation Press Release. https://www.commerce.senate.gov/2023/11/pilots-air-traffic-controllers-ntsb-tell- committee-senate-faa-reauthorization-bill-key-to-boosting-aviation-safety-in-wake-of- alarming-close-calls-and-near-misses#:~:text=Rich%20Santa%2C%20President%20of %20the,the%20end%20of%20the%20year.%E2%80%9D

ATC Growing Pains 9 6. Uknown. (August 25, 2023). Federal Aviation Administration Reauthorization: Legislative Action in the 118 th Congress. Congressional Research Service. https://crsreports.congress.gov/product/pdf/IF/IF12482/1 7. Wichter, Z. (August 22, 2023). Low Staffing, More Close Calls: FAA Responds to Increased Scrutiny on Aviation Safety. USA Today. https://www.usatoday.com/story/travel/airline-news/2023/08/22/aviation-close-calls-faa- response/70652601007/ 8. Unknown. (June 21, 2023). FAA Faces Controller Staffing Challenges as Air Traffic Operations Return to Pre-Pandemic Levels at Critical Facilities. U.S. Department of Transportation. https://www.oig.dot.gov/sites/default/files/FAA%20Controller %20Staffing%20and%20Training%20at%20Critical%20Facilities%20Final%20Report- 06-21-23.pdf 9. Unknown. (2016). A Plan for the Future: 10 Year Strategy for the Air Traffic Controller Workforce. Federal Aviation Administration. https://www.faa.gov/air_traffic/publications/controller_staffing/media/cwp_2016.pdf 10. Unknown. (2021). The Air Traffic Control Workforce Plan. Federal Aviation Administration. https://www.faa.gov/air_traffic/publications/controller_staffing/media/ 2021-AFN_010-CWP2021.pdf 11. Steel, E. , Ember, S. (December 2, 2023). Drunk and Asleep on the Job: Air Traffic Controllers Pushed to the Brink. New York Times. https://www.nytimes.com/2023/12/02/business/air-traffic-controllers-safety.html? searchResultPosition=2

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