Airservices Australia (AA) are continuing to have staff shortages post COVID for air traffic controllers. One of the ways they manage this is by temporarily reducing the hours the tower is operational. The frequency of this raises a key concern as well as the unpredictability presented by inconsistent hours of ATC service provision. The participants found the following hazards this creates either at the aerodrome or within their operation.
Some of these are:
- inconsistent procedures when alternating between controlled and non-controlled airspace at ad hoc times
- no manoeuvring area control
- increased workload for flight crews can lead to more errors due to following non-controlled airport procedures when they normally wouldn’t
- lack of non-standard procedures by operators when operating in non-controlled airspace
- airlines will limit movements to when the tower is operational causing increased congestion at airports.
What can aerodrome operators and airlines can do?
Aerodrome and airline operators should ensure risks associated with temporary tower closures are in their Safety Management Systems and Risk Management Plans. Specifically, implementation of which controls for that specific aerodrome, to reduce the risk to as low as possible. Scheduled services and aerodromes will advise of the changes and NOTAMs will provide information on what services are still available. This should include assistance to either operate clear of the affected airspace or to operate in the airspace safely under modified procedures.
Documented procedures for flight crew and aerodrome staff will guard against the adoption of ad hoc or workaround procedures. Where appropriate, training on these differences will make sure the respective work groups can adopt these changes. This is important when there is minimal notice and need adding to operational or safety briefings.
ICAO recommend Local Runway Safety Teams as detailed in:
These teams can discuss the implications of an ATC service not being available, and what contingency options may be available. Some aerodrome operators raised the option of having a second ARO in instances of changed tower hours. This provides an additional level of oversight and to monitor any ground risks and rely on CTAF for airspace.
At times, risks may also arise around the published ATS hours, particularly when these don’t align with the peaks in aircraft movements. This can put additional workload on both the aerodrome and flight crew as well as availability of equipment. Aerodromes have previously had success when engaging with airlines and Airservices to propose changes in towered hours to the greatest number of scheduled services.
Reporting of any occurrence or hazards through your aerodrome or airline SMS during these periods is fundamental to the ongoing review of control effectiveness. This meets the TSI Regulation reporting requirements.
What are we doing and already delivered?
Part 172.150 of CASR requires Airservices to have contingency plans in place to manage any air traffic service interruptions. Part 172 MOS further specifies the requirements for contingency plans. Specifically in the event of staff not being available to manage the impact on air traffic services.
Any changes to tower hours, or other contingency procedures such as TIBA, needs approval through the Office of Airspace Regulations. We will continue to monitor risks and occurrences outside of tower hours.
We continue to monitor Airservices' overall performance through:
- surveillance
- safety reporting
- regular ATS variation reporting
- monitoring all locations for service continuity.
The Office of Airspace Regulation and the Communication, Navigation, Surveillance and Air Traffic Management Section maintain a high level of engagement with Airservices, about changes to tower hours and return to service plans.
We continue to support Airservices with training pathways to increase ATC graduates such as partnerships with New Zealand’s Airways International.
The pilot safety hub has further information on operations into both controlled and non-controlled aerodromes.
We have recently updated:
Our safety management systems (SMS) for aerodromes page provides guidance on the relevant SMS tools and templates. This will help you to create one, including the SMS resource kit.
We have also developed Advisory circular AC 139.C-27. This provides guidance on developing a risk management plan, and we encourage operators to have a RMP even if not required: