Subject: Hearing on the Role of R&D in Air Traffic Modernization.
Members Present Chrwm. Morella (R-MD), Reps. Bartlett (R-MD), Davis (R-VA), Ehlers (R-MI), Gordon (D-TN), Rivers (D-MI), Stabenow (D-MI)
Witnesses: Mr. Steven B. Zaidman, Director, Office of System Architecture and Investment Analysis, Federal Aviation Administration
Dr. Henry McDonald, Director, Ames Research Center, NASA
Ms. Margaret Jenny, RTCA Government/Industry Free Flight Steering Committee, Director of Operations Research, U.S. Airways
Ms. Nancy Price, Chair - Air Traffic Services Subcommittee, Research, Engineering and Development Advisory Committee
Opening Statements
Chairwoman Morella opened the hearing by expressing frustration that this country has invested over $1 billion yet still is using the same old radar equipment in the Air Traffic Control System. The inefficiencies of the system cost billions of dollars each year and the system is desperately in need of modernization. Chr. Morella noted the hearing would focus on the related issues of “Free Flight” technology and assured aviation safety as traffic increases.
Mr. Gordon called the Air Traffic Transportation System a major economic force that needs to be modernized. He estimated that airlines could save over $250 million per year by cutting flight times by one percent. He believes research and development are important tools, and noted with concern the FAA’s decreasing R&D budget. His major areas of concern are: 1) understanding the key technologies for increasing air space capacity; 2)relationship of FAA and NASA; and, 3) assuring a good balance of long and short-term technologies.
Mr. Zaidman, FAA, focused his remarks on two areas: 1) What FAA is doing to introduce new technologies into air traffic management systems, and 2) FAA’s progress in focusing research investments. He highlighted FAA’s partnership with NASA as particularly important in helping ensure that we are ready to meet aviation challenges of the next century.
Dr. McDonald, NASA ARC, spoke of NASA’s three major projects in the Aviation Capacity Program: (1) The Advanced Air Transportation Technology (AATT), with the objective of fully exploring the possibilities of the Free Flight Concept; (2) Terminal Area Productivity (TAP), with the goals of increasing non-visual operations for single runways, reducing lateral spacing, demonstrating equivalent instrument/clear weather runway occupancy time, and meeting the public’s expectation for safe operations; and (3) Civil Tiltrotor (CTR) which offers a unique opportunity to create a new aircraft market while off-loading a portion of the short-haul traffic from the busiest airports. Critical to the success of these efforts are substantial contributions from NASA’s information sciences and human factors disciplines. Dr. McDonald also testified that NASA’s partnership with FAA is essential to meeting challenges. NASA will continue to work closely with the FAA as we develop and implement our research programs, to ensure that NASA-developed technology can be successfully integrated by the FAA into the National Airspace System.
Margaret Jenny of U.S. Airways testified that overlapping research of FAA and NASA is threatening Free Flight. Free Flight carries a sense of urgency and enthusiasm because current inefficiencies in the Air Traffic Management System are costing the airlines over $3 billion annually. Without modernization of the system, air gridlock will set in within 10 to 15 years. Ms. Jenny said FAA’s role is to ensure a safe and efficient National Airspace System by conducting research, engineering, development activities, and operating the system 24 hours per day, and specifies needed regulations. NASA’s role is to conduct basic research in the field of aeronautics and space. She complained that FAA had very little money available for Air Traffic Management (ATM) research while NASA has reprogrammed $400 million to do ATM research, and $500 million to conduct research on aviation Safety. She called this imbalance a setback to the world of ATM.
Nancy Price, Chair of the Air Traffic Services Subcommittee of the FAA Research, Engineering and Development Advisory (REDA) Committee, presented the recommendations of the National Airspace System (NAS) Air Traffic Management (ATM) Panel which she chaired in 1996.
Questions and Answers
Ms. Morella was interested in how Free Flight would deal with noise abatement around airports. Mr. Jenny offered that Free Flight will be more structured near terminals. Mr. Zaidman, FAA, offered that Free Flight doesn’t mean abandoning current environmental process. He added that some technology will even decrease noise.
Ms. Morella then asked how NASA’s research is being coordinated in FAA and what would happen if FAA changed their program. Mr. Zaidman answered FAA works on low-risk short-term applied research while NASA focuses on long-term basic research. Dr. McDonald responded that if FAA changed their program, it would be communicated to NASA and there is a good structure in place for accommodating research changes.
Rep. Ehlers expressed concern about maintaining the Air Traffic Control System. He faulted Congress for not providing adequate funding and also FAA
The Chairwomen adjourned the hearing after the Members were called to the House Chamber for a series of votes. She indicated the Members of the Subcommittee would be submitting the remainder of their questions for the witnesses to answer for the record.
Madam Chair and Members of the Subcommittee, I am pleased to have the opportunity to discuss NASA’s role in civilian aviation research, particularly as it relates to meeting challenges in air traffic modernization. I will briefly explain the new strategic framework for the NASA Aeronautics and Space Transportation Technology Enterprise, highlight the challenges facing our National Airspace System (NAS), explain our cooperative efforts underway with the FAA, and discuss NASA’s current R&D efforts in the areas of air traffic capacity and air traffic modernization.
NASA and the FAA have long worked together on air traffic management systems to enhance the capacity, efficiency, and safety of the National Airspace System. NASA uses its technical expertise to develop advanced air traffic decision support tools, improve training efficiency and cockpit safety through human factors research, and develop and flight test advanced communication, navigation and surveillance systems. The FAA applies its operational expertise in these same areas to ensure that the technically advanced airborne and ground equipment, software and procedures developed by NASA are operationally useful, efficient, safe and cost effective. We are proud of our successful past partnerships, but realize that future challenges will require even greater cooperation.
Strategic Framework
In September, 1995, the National Science and Technology Council (NSTC) published “Goals for a National Partnership in Aeronautics Research and Technology,” which describes the vision and goals for future federal investments in aeronautics and aviation. It envisions, “...world leadership in aircraft, engines, avionics, and air transportation system equipment for a sustainable global aviation system.” To achieve this vision there are three national goals:
· Maintain the superiority of U.S aircraft and engines;
· Improve the safety, efficiency, and cost effectiveness of the global air transportation system; and
· Ensure the long-term environmental compatibility of the aviation system.
On February 12, 1997, the White House Commission on Aviation Safety and Security published its “Final Report to President Clinton.” In the area of air traffic control, the Commission believes that the safety and efficiency improvements that will come with a modernized system should not be delayed. The report recommends a national goal of:
In response to these national goals, NASA has worked with our partners in government, industry and academia to develop a strategic framework that will guide our research over the next two decades. Through this planning process we have shaped our Aeronautics and Space Transportation Technology Enterprise around three technology “pillars:” Global Civil Aviation, Revolutionary Technology Leaps, and Access to Space. In each pillar, we have defined 10- and 20- year “stretch” goals. Our goals are framed in terms of a final outcome -- the anticipated benefit of NASA-developed technology once it has been incorporated by the FAA and/or industry. A major enabling technology goal within the Global Civil Aviation pillar is “while maintaining safety, triple the aviation system throughput, in all weather conditions, within 10 years.” This goal will stretch the boundaries of our knowledge and capabilities. It will require taking technical risks and performing coordinated long-term research and technology development with our partners in industry and the FAA. We may not know how to fully achieve this goal today; however, we believe that together, NASA, the FAA and industry will find the necessary technology solutions.
The Challenge in Air Traffic Management
The tremendous growth of the commercial airlines and the user demand for greater flight availability has resulted in the lack of flexibility in en-route segments of flight and serious congestion in and around airports. These terminal areas are particularly hard-pressed by increases in the number of aircraft operations. The resulting congestion not only leads to delays for the traveling public but also increases operational costs to airlines.
Recent studies of the national airspace system by state and local transportation authorities and private industry suggest that insufficient capacity, limited access, and restrictions have escalated operational costs, increased delay, and decreased efficiency for all users. The Air Transport Association estimates these delays result in an annual operating loss for US airlines of $3.5 billion. These losses cost the overall economy an additional $4.0 billion annually. With current technology, the aviation system may not be able to accommodate the anticipated growth in demand for air travel.
An innovative approach is required on a national level to address these major challenges to the capability of the National Airspace System (NAS) to meet the expectations of the users and the public. The principal challenges are to:
· accommodate growth in air traffic while preserving/enhancing system safety;
· provide all airspace system users with more flexibility and efficiency in the use of airports, airspace, and aircraft;
· reduce system delays;
· enable new modes of operation that support the FAA commitment to “Free Flight”; and
· maintain pace with a continually evolving technical environment.
NASA’s Aviation CapacityPrograms cannot meet these challenges alone. Implemented in partnership with FAA, they will, however, contribute important technologies towards achieving our national goals.
Partnership to Meet the Challenges
A strong research and technology program providing useful products to the user community is essential to meet the challenges outlined above. NASA will continue to work closely with the FAA as we develop and implement our research programs, to ensure that NASA-developed technology can be successfully integrated by the FAA into the National Airspace System and result in real benefits to the system and its users.
To facilitate this partnership, an Air Traffic Management (ATM) Inter-Agency Integrated Product Team (IAIPT) has been established. This IAIPT is responsible for implementing the Memorandum of Understanding on Airspace System User Operational Flexibility and Productivity which was signed by the Administrators of the FAA and NASA on September 11, 1995. The IAIPT combines the appropriate resources and expertise of the FAA and NASA, and focuses them on the efficient conduct of research and technology development necessary to realize key, evolutionary improvements in the management and utilization of the airspace system. The activities of the IAIPT are co-led by senior executives of the FAA and NASA. The IAIPT’s goal is to produce an Integrated National ATM Research and Development Program leading to the implementation of operational concepts, associated decision support tools, and airborne systems to maximize the safety, efficiency, and flexibility of operations in the National Airspace System.
To further reinforce the relationship between the FAA and NASA, there are quarterly meetings of the FAA/NASA Coordinating Committee which is chaired at the Associate Administrator level. In addition, the FAA maintains offices at NASA’s Ames and Langley Research Centers. The primary role of these FAA Field Offices is to facilitate the transfer of significant NASA research and technology to support FAA requirements and the operational needs of the airspace system.
NASA Research and Technology
Current airspace system separation and traffic flow management concepts, standards, and procedures are based on the use of analog voice communications, ground-based range and bearing equipment, and ground-based radar surveillance. The promise of improved safety and efficiency of an airspace system which can take advantage of satellite-based communications, navigation and surveillance (CNS) technology is tremendous. To realize this promise, we must develop both technology and decision support management tools that will enable a transition to a new airspace system design -- a concept called “Free Flight.” Free Flight is defined as a safe and efficient flight operation capability under instrument flight rules in which the operators have the freedom to select their path and speed in real time.
Under Free Flight, rather than optimize the system, the goal is to open up the airspace system, allowing each user to safely self-optimize. An airspace system robust enough to allow each user the ability to optimize his own operation can, in turn, provide new opportunities to take advantage of the capabilities of diverse elements of the system (vehicles, airports, and operators). This key idea is the cornerstone of NASA’s involvement in aviation capacity research.
To focus NASA’s investment of resources in aviation capacity, we have consolidated management of our various Aviation Capacity Projects at the Ames Research Center. As the Director of Ames, I am excited about the future possibilities and committed to even greater cooperation with the FAA. There are three major NASA projects in the Aviation Capacity Program: 1) Advanced Air Transportation Technology (AATT); 2) Terminal Area Productivity (TAP); and 3) Civil Tiltrotor (CTR).
Advanced Air Transportation Technology (AATT)
The primary objective of AATT is to fully explore the possibilities of the Free Flight concept. The AATT project will demonstrate the feasibility of decision support tools and airborne systems that will allow at least a 15 percent increase in throughput per runway at capacity constrained/multi-runway airports and a 20 percent increase in controller productivity. NASA will define, explore, and develop advanced air traffic system concepts to a level suitable for pre-production prototype development by the FAA, leading to eventual full-scale development and deployment. These decision support tools will allow all airspace users to choose the best flight path for their own purposes within the constraints of safety and the needs of other users. To do this, several goals must be met: allow users to minimize direct operating costs by making trade-offs between time and routing; improve the effectiveness of high-density operations in regions on the ground and in the air; enable operation in a smooth and efficient manner across boundaries of free-flight and capacity-constrained flight regions; provide system improvements that are easily deployable anywhere in the world; and improve the ability to simulate advanced capabilities in the airspace system.
The AATT project is developing computer-based analysis, prediction and display tools to aid air traffic controllers to manage aircraft. The first release of the Surface Movement Advisor has undergone trials at Atlanta Hartsfield Airport to help balance the traffic assigned to the departing runways in order to reduce delays. The Traffic Management Advisor and Final Approach Spacing Tool are being evaluated with the FAA at Denver and Dallas-Fort Worth to achieve improvements in arrival rates. Continued development and enhancements to these systems and others are expected to occur through completion of AATT in 2004.
In addition to developing decision support tools, we are modifying the NASA Boeing-757 Transport Research Vehicle to incorporate equipment that will allow the evaluation of airborne systems. These will include communication, navigation, and display technologies that will contribute to the flight crew assuming more responsibilities for aircraft separation.
We plan to conduct two major simulations to validate the benefits of these new technologies. One simulation will demonstrate and evaluate the use of advanced air transportation technologies for flexibility of operations in the congested region of the Northeast corridor of the U.S. The second simulation will evaluate the feasibility of advanced air traffic management concepts with distributed tasks between flight crews and ground controllers for safe air-to-air separation.
Terminal Area Productivity (TAP)
In the United States, over 300,000 flights annually experience delays that exceed 15 minutes. More than 60 percent of these are due to the conduct of operations in non-visual or instrument conditions during poor visibility conditions. Working with the U.S. airline and aircraft industries, airport owners and operators, and the FAA, NASA’s goals are to: increase non-visual operations for single runway throughput by 12-15 percent; reduce lateral spacing below 3,400 feet for independent operations on parallel runways; demonstrate equivalent instrument/clear weather runway occupancy time; and meet the public’s expectation for safe operations.
Under TAP, we are trying to achieve the same level of airport capacity and safety during instrument meteorological conditions as during clear-weather operation. Under instrument flight rules, the responsibility for safe separation belongs to the Air Traffic Controller. These rules include separation “buffers” to allow for the time delay for the controller to communicate course change instructions to the pilot. TAP-developed technology will provide integration of on-board Flight Management System with the Center/TRACON Automation System to safely reduce these separation buffers.
One of the major limits to airport capacity is the in-trail separation requirement for aircraft approaching the same runway for landing. This requirement is to ensure that wake turbulence generated by the lead aircraft have either dissipated or moved out of the approach corridor before the following aircraft encounters them. A significant part of TAP’s resources are devoted to developing a system for predicting the life-cycle of wake turbulence to determine safe spacing between aircraft.
For airports with parallel runways spaced less than 4,300 feet apart, independent approaches to each runway may only be conducted in visual conditions, when both pilots can see the runway and the other aircraft. In instrument conditions, only one runway may be used, or the two runways may be used with airplane spacing equivalent to the spacing used for a single runway. In either case, airport capacity is significantly reduced. TAP will apply on-board precision navigation and communications technology in conjunction with on-board safety surveillance systems to demonstrate safer, reduced runway separation requirements for independent parallel approaches.
Reducing separation requirements for aircraft approaching an airport could transfer congestion to the surface operations as the airport arrival rate increases. TAP is also addressing this potential problem by investigating increasing taxi speed and reducing the amount of time an aircraft needs to spend on the runway after landing. Taxi speed can be increased at night and in low visibility conditions by the simulated vision of the runway and taxiway ahead which may be provided by a head-up display and by a moving map of the airfield that shows the relative position of multiple aircraft. Simulations of the Taxi-Navigation and Situational Awareness system have shown that taxi speed can be safely increased by as much as 25 percent. The same technology may be used to provide visual guidance, and braking and turn advisories to the pilot to reduce time on the runway.
Civil Tiltrotor (CTR)
Civil Tiltrotors offer a unique opportunity to create a new aircraft market while off-loading a portion of the short-haul traffic from the busiest airports. The two primary benefits of a tiltrotor are: 1) significant reduction in door-to-door trip times for passengers by circumventing ground and air congestion, and 2) expansion of the capacity and reduction of the runway congestion at the busiest airports by permitting some short-haul traffic (trips of less than 500 miles) to shift to tiltrotors, freeing runway space for larger aircraft. Delay reductions would occur as airlines reduced the number of fixed-wing flights in proportion to the number of passengers diverted from jet and turboprop operations to tiltrotors. Creating this market, estimated at $5-7 billion annually, would benefit U.S. civil rotorcraft manufacturers who have a substantial global lead in tiltrotor technology.
NASA’s CTR project is an initial effort to develop the most critical technologies for overcoming the inhibitors to a civil tiltrotor aircraft operating within the air transportation system. These technologies include noise reduction, cockpit technology for safe, efficient terminal area operation, and contingency power for one-engine-inoperative operation. These technical areas will provide the technology base from which full-scale development decisions can be made by industry.
Information Sciences and Human Factors
Critical to the success of all of the efforts I have described are substantial contributions from NASA’s information sciences and human factors disciplines. Information sciences includes the methods and systems for acquiring, storing, retrieving, distributing, checking and cross-checking, validating, transmitting, and displaying information needed in the operations of aircraft. It includes information on board the aircraft as well as external to the aircraft, such as air traffic management information. The availability of accurate, timely, and appropriate information at each element of the air traffic system is critical to the safety and performance of the total system.
Human factors research characterizes the human attributes and behavior as they relate to all facets of the air traffic management system. These include decision making, control, monitoring, strategic and tactical planning, and supervisory or other behaviors as they interact with the vehicle and all elements of the air traffic management system. The emphasis is interactive and interdisciplinary; the goals are to optimize performance and safety in all elements of the overall air traffic management system.
Improvements in capacity will require central and enabling roles from information sciences and human factors to achieve a well-balanced, highly integrated, and modern transportation system. Ames Research Center, which is leading NASA’s Aviation Capacity Program, also is NASA’s Center of Excellence for Information Technology and houses the Agency’s expertise in human factors; this ensures proper coordination and cross-fertilization of research efforts.
Summary
The programs I have described today are not the total solution, but will contribute substantially to achieving NASA’s stretch goal of tripling the throughput of the national aviation system. NASA and the FAA have a long tradition of close collaboration, with NASA developing technologies and the FAA deploying these technologies in operational systems. NASA will continue to aggressively work the key technology areas jointly with the FAA to ensure that the technologies are achievable and beneficial within the total air traffic system which is managed by the FAA. Together, NASA, the FAA, and industry will plan, integrate, and implement future technology partnerships which will help make our goals reality for a future generation of air travelers.
Last updated 7/1/97 by Julie Meredith
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