.fosepll Gjroa6, Samuel Milner, a "United States A�y in World War formerly worked member of EAA's II, • while in the Office of the Chief on the staff of the historical staff, is of Military History, following which Office of Public the originator of he became the historian of the U.S. Affairs and con­ the FAA Publica­ Air Force's Air Weather Service. tributed stories to tions Guide and a FAA WORLD. A frequent contribu­ historian with a tor to FAA PhD in American history, he is a WORLD. During World War II, he free-lance writer on aviation and served as a historian with the Air urban affairs and has been publishe Transport Command, Army Air in Maryland Historian Magazine. He Forces. He later wrote Victory in is now the marketing director for a Papua, a volume in the series reference book publisher.

GRANO CANYON Notional Park Service Photo by Richard Frear World· FAA's Silver Anniversary: 25 Years of Aviation Progress

U.S. Deportment of Transportation Federal Aviation Administration

August 1983 Volume 13 Number 8 4 24 Thunder From the Canyon Closing the Technology Gap The shock of the midair collision over The Civil Aeronautics Administration the Grand Canyon woke the country was lagging far behind the capabilities up to the deficiencies of the airways and needs of the aviation industry. system and the need for a more effi­ FAA picked up the challenge and has cient organization to manage them. been in a "steady state" of change in modernizing our tools and systems. 10 "FAA 's mission is to promote the safe The Sensing Element for Aviation and efficient use of the nation's airspace, Theirs is the big picture, and from facilities and the vehicles that travel the their vantage point, the FAA Admin­ airways. To achieve this objective, we 33 istrators have been able to guide the The Thunder Recedes should control but not constrain aviation; A few dramatic accidents mask the we should regulate but not interfere with agency through the jet age. This is free enterprise of competitive purpose; the story of our eight leaders. remarkable record of safety that has and we should recognize that most air been fostered by FAA. Accidents and travelers do so by means of scheduled air deaths are fewer, and airspace system carriers. We have a responsibility to consider improvements will help ensure that their priority but not to the extent that it flying remains the safest form of excludes the single individual from enjoying transportation. man's greatest achievement-solo flight. Above 19 all, we must remember that the airspace A Chronology of F AA's Era belongs to the users and not the FAA." A brief diary of the salient events in -J. Lynn Helms the life of the agency. 37 People

Secretary of Transportation FAA WORLD is published monthly for the Mark Weaver-Aeronautical Center Elizabeth H. Dole employees of the Department of Transporta­ Clifford Cernick-Alaskan Region FAA Administrator tion/Federal Aviation Administration and is Joseph Frets-Central Region J. Lynn Helms the official FAA employee publication. It is Robert Fulton-Eastern Region prepared by the Public & Employee Commu­ Morton Edelstein-Great Lakes Region Assistant Administrator­ nications Division, Office of Public Affairs, David Hess-Metro Washington Airports Public Affairs FAA, 800 Independence Ave. SW, Washing­ Mike Ciccarelli-New England Region Edmund Pinto ton, D.C. 20591. Articles and photos for Paul Kari-Northwest Mountain Region Manager-Public & Employee FAA World should be submitted directly to Jack Barker-Southern Region Communications Div. regional FAA public affairs officers: Geraldine Cook-Southwest Region John G. Leyden Vacant-Technical Center ,,--"'-ditor Barbara Abels-Western-Pacific Region Jnard Samuels .rt Director Eleanor M. Maginnis Thunder From the Canyon The Birth of the FAA and a Modern Airways System

)

The CAA sign comes down from a tem­ porary building on what is now Constitu­ tion Gardens that was to be the first home ) of the Federal Aviation Agency in 1959. AOPA Pi/01 photo 4 The routes flown by the ill-fated airliners. The two should have crossed further south at different altitudes and within I range of the VOR at Winslow, Ariz. , Oa11vat1 ..

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he midair collision over from the military and installed in program, Murray and Commerce the Grand Canyon in Washington. Secretary Sinclair Weeks repeatedly T In 1953, President Eisenhower's cut CAA's share of the Commerce 1956 was the trigger that Undersecretary of Commerce for budget and its staffing. By 1955, launched the airways sys­ Transportation, Robert Murray, CAA had the staffing level it had had issued a report for the interdepart­ in 1947, even though airline passenger tem into the modern tech­ mental Air Coordinating Committee traffic had doubled since 1949. nological era and led to (ACC) that said all was well in civil Also, by then, CAA had only 25 the creation of the Federal air policy: The government was doing more VORs, 47 more ILSs, eight an effective job in safety and that more ASRs and a total of 100 DMEs. Aviation Agency 25 years efforts to implement the civil-military The borrowed radar, which had a ago. common system of air navigation and range of less than 60 miles, was The trigger had been cocked since air traffic control were going well. supplemented by a discarded military the end of World War II. In 1948, Despite Civil Aeronautics Adminis­ 100-mile radar. �he Radio Technical Commission for trator Frederick B. Lee's desire to The civil-military joint-use concept • viation (RTCA) recommended that push on with the modernization wasn't moving forward too well, the airways, which were 1930s either. The CAA was committed to vintage, should be modernized with the DME, which had become a world post-war technology, such as VORs FAA Administrators, 1958-1983 standard, but the Navy had developed a single piece of equipment that (very high frequency omnidirectional Federal Aviation Agency radio ranges), DMEs (distance meas­ combined the VOR and the DME to Elwood R. Quesada meet the needs of aircraft carrier uring equipment), instrument landing Nov. I, 1958-Jan.20, 1961 systems and long- and short-range Najeeb E. Halaby pilots. Called the TACAN (Tactical surveillance radars. And they advo­ Mar. 3, 1961-July I, 1965 Air Navigation), its superiority for cated a civilian-military integrated William F.McKee military purposes had been sold to system. July I, 1965-Mar.31, 1967 the Air Force as well. The interdepartmental Air Naviga­ The ideas caught fire, and the Federal Aviation Administration, Truman Administration adopted the DOT tion Development Board, set up to help further the joint-use concept, plan in 1949. The Korean War damp­ William F. McKee ened the fiscal enthusiasm for the Apr. I, 1967-July 31, 1968 found itself stalemated on the subject. program and by the end of 1952, all David D. Thomas (Acting) A bigger problem was the need for that was new on the airways were 350 Aug. I, 1968-Mar. 23, 1969 long-range radars for the safe separa­ VORs formed into IO-mile-wide John H. Shaffer tion of a growing fleet of airliners. Mar. 24, 1969-Mar.13, 1973 Victor Airways, 100 instrument land­ The Administration was well aware of Alexander P. Butterfield this but was disturbed by the cost. It ing systems (ILSs), two dozen airport Mar.14, 1973-Mar.31, 1975 radars (ASRs) and two DMEs under­ thought to solve the problem by James E. Dow (Acting) dickering with the military for the going tests. There was only one Apr. I, 1975-Nov.23, 1975 shared use of its defense radars. Even surplus World War II long-range John L. Mclucas with such an agreement, however, radar in the system; it was borrowed Nov.24, 1975-Mar.31, 1977 Langhorne M. Bond CAA would have to spend on remot­ May 4, 1977-Jan.20, 1981 ing links to its facilities and to buying J. Lynn Helms radars for areas not adequately Apr.22, 1981- covered by the military equipment.

5 While this was of all 15 persons going on, control­ aboard. lers were still oper­ Coming on the ating in a manual heels of mammoth fix-posting air traf­ delays and con­ fic control system tinuing terminal dating from the congestion, the 1930s that relied collision not only entirely on voice raised the specter communications. of a much greater This meant that loss of life with the few available larger planes but frequencies were made it clear to always crowded the White House and that no matter how carefully the A Lockheed Super Constellation in East­ that the Air Coordinating Committee en route controller computed an air­ ern Airlines colors at Washington National report had been wide of the mark. craft's position from the radioed-in in 1962. Four years earlier, a TWA Super President Eisenhower appointed the altitude, speed and heading from Connie midaired with the DC-7. Aviation Facilities Study Group, checkpoints or position fixes, there among whose members was Najeeb was no way in which he could E. Halaby, to make a fresh appraisal pinpoint the plane's actual location of the situation. Its findings, released within five miles. To separate the in January 1956, could not have been planes, the controllers had to keep more alarming. It reported that the those at the same altitude at least 10 Federal airways were in a state of minutes or 30 to 100 miles apart. acute crisis; that the nation's airspace It was an extravagant use of air­ was dangerously overcrowded; that space. And the faster the planes flew, airports, navigation aids and the A TC the fewer were the planes the system system lagged dangerously behind could accommodate and the more aeronautical development; and that congested the airways became. the risks of midair collisions had The inordinate delays, the pervasive reached critical proportions. There congestion, the shrinking airspace and also was a need for the development the growing threat of midair colli­ of a master plan to determine the sions were already of great concern to kind of governmental organization the press, the Congress and the avia­ that could take care of these tion industry. There had been 65 problems. midairs in the five years preceding The President then named Edward 1955, but they had gone largely P. Curtis as Special Assistant to the unnoticed because they involved only Frederick B. Lee, CAA Administrator President for A viati on Facilities small planes and few deaths per Planning to work out a comprehen­ collision. sive plan based on the study group's That changed in January 1955 when report. a corporate DC-3 and a small TWA Things were looking up for CAA, airliner-a Martin 202A-collided and the system's luck seemed to be over Cincinnati, Ohio, with the loss holding. Other than near misses,

6 which sometimes ran as high as half a This United Air Lines Douglas DC-7 was passing through, reported at 11:30- dozen per day, there were no colli­ the same type of plane as the one that the flights' estimated time of arrival­ sions in the first five months of 1956, crashed into the Grand Canyon. that neither plane had passed that despite the intensifying problem. way. On Saturday, June 30, the system's 19,000 feet and the United to 21,000. A minute later, communications luck ran out with the midair collision The planes were to fly through the personnel at United's headquarters in of two large airliners and the loss of Painted Desert, east and south of the Los Angeles were horrified to receive all aboard. As if to humiliate the Grand Canyon in Arizona, to pick up a garbled message from the DC-7, of CAA even further, the collision did the VOR at Winslow before their which they could make out only three not take place in bad weather or on a paths diverged. words: "we are going ..." crowded airway but in good weather, Before they left Los Angeles, both The search for the planes began in in broad daylight and in an pilots had told the controllers that if the Grand Canyon area because of uncrowded sky. they could fly VFR when they reached the pilots' earlier comments. Just The two four-engine, propeller­ the California-Arizona border, they before dark, two brothers who ran a driven airliners left Los Angeles would make a side trip to show off small recreational airline in the area International Airport three minutes the Grand Canyon to their passengers. reported sighting the remains of the apart around 10 a.m. One was a The TWA captain checked in near Super Constellation on a butte near Trans World Airlines Lockheed Super Daggett, Calif., and asked permission the eastern end of the canyon. Except Constellation, carrying 64 passengers for an IFR clearance to climb to for its stabilizers, 500 feet away, the and a crew of six that took off to the 21,000 feet to avoid a weather build­ plane had been reduced to rubble. northeast; the other was a United Air up. The request was denied because The next morning, the wreckage of Lines Douglas DC-7, with 53 passen­ the United flight was in the vicinity at the DC-7 was found on another butte gers and a crew of five, which headed that altitude. Then the pilot asked for about a mile away. It took 10 days east. Both were headed for the east a clearance of 1,000 feet on top, and 76 hazardous helicopter trips to coast, with the TWA flight going which was approved. This meant he remove the 128 dead from the canyon. through Kansas City and the United was VFR and on his own, and he There was no doubt that the planes flight through Chicago. The pilots climbed to 21,000 feet. had collided: The blue and white and were veteran fliers who had made this The United pilot called in over red and white pieces of metal scat­ run frequently. Needles, Calif. The weather didn't tered about on both buttes attested to The Los Angeles Center assigned bother him because he was already that. The Civil Aeronautics Board, the TWA plane to an altitude of above it. He was not told of the whose responsibility it was to work Constellation's new altitude, and out the probable cause, concluded there was nothing in the regulations that required it. The defense radar at Winslow, which routinely tracked all aircraft

7 Sen. Mike Monroney was a prime mover of the Federal Aviation Act. The Aero­ nautical Center is now named after him.

when he died in September, was confirmed as CAA Administrator in that "the pilots did not see each other February 1957. The previous fall, in time to avoid the collision." In Pyle had the satisfaction of flying a addition to the pilots' "preoccupation prototype B-707 and of letting a $9 with matters unrelated to cockpit million contract to Raytheon for 23 duties," CAB also pointed its finger en route radars with a potent James T. Pyle, CAA Administrator at the "insufficiency of the route 200-mile reach. traffic advisory information due to system to well over 900 and to The Grand Canyon crash was still the inadequacy of facilities and lack purchase 82 advanced long-range fresh in the public's mind, and with of personnel in air traffic control." surveillance radars. Congress clearly aware, as Pyle put Here were two pilots, in effect, The new equipment would make it it, that "we had a fantastic amount playing blind man's bluff with each possible to replace the inadequate and of catching up to do," the CAA had other. In flying off the airway on a indirect 10-mile-wide transcontinental no trouble at all in getting the money VFR basis, the pilots were doing what airway, which snaked around the it needed to modernize the airways. they were entitled to do under the available VORs, with an IFR control The $5 million that the Secretary of existing Civil Aviation Regulations area with a floor above which no Commerce had thought ample for the (CARs). On the other side, the VFR flights would be permitted. purpose before the crash more than controllers were so busy taking care Even the long drawn out VOR­ tripled the year after the crash and of planes on the airways flying under DME/TACAN controversy was rose to 25 times that figure the year instrument flight rules, they had no affected. A compromise came in mid­ after that. time and, indeed, no responsibility to August under the name VORT AC, But the lack of up-to-date facilities take care of VFR planes, particularly which retained the VOR for civil and equipment had not been CAA's those off the airways. directional use but replaced the DME only problem. Established as a The horror and revulsion over the with the TACAN distance-measuring stripped down operating agency, it crash reverberated like thunder from component. Now, the civil-military lacked the authority to make one end of the country to the other, common system would be ready when decisions in the discharge of its literally for months on end. For the the first jet airliners flew, which was mission. Its regulations, for example, first time, Congress and the public not far off. Boeing already had more were written for it by the Civil Aero­ learned just how primitive the existing than $500 million in advance orders nautics Board. In disputes over the A TC system really was and how short for the B-707, and the Douglas DC-8 airspace with the military, it had to it was of modern equipment, person­ was not far behind. refer the matter to interdepartmental nel and funds. Lowen saw the value of using bodies like the Air Coordinating Less than a week after the last computers to speed the preparation of Committee and the Air Navigation body had been recovered, then CAA flight progress strips in the en route Development Board. Administrator Charles A. Lowen, Jr., centers. A leased IBM 650 digital Special Assistant Curtis discovered, and Murray's successor as under­ computer was installed in the as the study group had suggested, secretary, Louis S. Rothchild, Indianapolis Center in October 1956. that there was more to his task than appeared before the Senate Appro­ James T. Pyle, Lowen's deputy just the facilities. In his May 1957 priations Committee and were report to the President, he pointed to successful in getting enough money to a major crisis in the making because boost the number of VORs in the of the growing congestion of the airways and the inability of the

8 The Airways Modernization Board, set up as an interim measure following the Grand Canyon crash, created the National A via­ tion Facilities Experimental Center (NAFEC) in Atlantic City on the site of a former naval air station.

probable cause was left to CAB. But it was in its enumeration of the powers of the Administrator that the genius of the act shone forth. These included: • the regulation of air commerce in such a manner as to best promote its development and safety and the requirements of national defense; • the promotion, encouragement existing dispersed airspace manage­ independent Federal Aviation Agency and development of civil aeronautics; ment system to deal effectively with "to provide for the safe and efficient • the control of the use of the the common needs of civil and use of the airspace by both civil and country's navigable airspace and the military aviation. military operations and to provide for regulation of both civil and military Curtis proposed the creation of a the regulation and promotion of civil operations within that airspace in the 'ew, independent Federal Aviation aviation in such manner as to best interests of the safety and efficiency .gency to replace the CAA. Until foster its development and safety." of both; that new agency could be established, The day after that, the companion • the conduct of research and he recommended the creation of an bill, H.R. 12616, was introduced in development as regards needed airway interim Airways Modernization Board the House. The legislation passed facilities and their installation and to coordinate civil-military avionics both houses without difficulty, and operation; and activity and manage research and President Eisenhower signed the • the development and operation development. Federal Aviation Act into law on of a common system of air navigation Eisenhower approved the Curtis August 23. and air traffic control for both civil plan and appointed Elwood R. The act authorized FAA to take and military aviation. Quesada, a retired Air Force general, over the organization and functions In an almost unheard of delegation as his Special Assistant for Aviation of CAA, the personnel and responsi­ of power, the act provided that no and chairman of the interim board. bilities of the Airways Modernization one in the Executive Branch could Three more midair crashes shook Board and the function exercised by overrule the Administrator in matters the country. The first had occurred the CAB to draft and enforce safety of safety. that February at Van Nuys, Calif., as regulations along with the personnel On Nov. 1, 1958, General Quesada Pyle was being confirmed. The that went with the function. The Air became the first Administrator of the second was at Las Vegas, Nev., in Coordinating Committee was abol­ FAA. On Dec. 31, 1958, FAA came April 1958 and the third at Bruns­ ished and its powers transferred to into being, and James Pyle, the CAA wick, Md., on May 20, 1958. A total the FAA Administrator. Administrator becam FAA's Deputy of 61 persons lost their lives. In the same act, the CAB, a spinoff Administrator. The day after the Brunswick colli­ like CAA from the Civil Aeronautics The FAA was in place only 66 days sion, Sen. A. S. (Mike) Monroney of Authority of 1938, was freed of its after the U.S. jet age was launched Oklahoma, with 33 co-sponsors, administrative ties to the Department with the flight of a Pan Am 707 to introduced S. 3880, a bill to create an of Commerce and left with its func­ Paris. • tions of economic regulation of the -By Samuel Milner air carriers and the investigation of accidents. While FAA was given the right to participate in accident investigations, the determination of

9 The Sensing Element How the Administrators for Avia.tion Managed Their Mission

azing at the earth from his unique vantage point in outer Gspace, Apollo astronaut Russell Schweikert referred to his mission as the "sensing element for man." Afforded the detachment that comes with seeing the earth as a whole, Schweikert understood what it means to see the "big picture" unobscured by the various interests which com­ pete for our attention in our daily pursuits. This has been a problem for the men who have been charged with the responsibility for safeguarding and promoting the well being of civil aviation-the FAA Administrators. For each of these eight men, carry­ ing out the charter has required a delicate balancing act with the tech­ nological, economic and bureaucratic realities. He has had to know when to act and when to wait. And he has had to know how to sort out these considerations in order not to lose the big picture in aviation. He has been the sensing element for civil aviation. For the last 25 years, FAA has been served by a group of leaders who were eminently qualified for the job, although with different styles of leadership and a changing agenda for civil aviation. Ultimately, each man added to the stature of the Office of Administrator and left his mark upon the agency.

An intricate gridwork of scaffolding enveloped the Dulles Tower as it was being built in 1962. The airport was begun in the waning days of the CAA.

10 William F. McKee (left) with James E. Dow, later to be acting administrator.

FAA's first Administrator, Elwood traffic control advocated during the "Pete" Quesada could not have been 1950s. better cast for the part by Hollywood. What really put the FAA on the One of the youngest three-star gen­ map-and generated the greatest erals in Air Force history, a skilled controversy during Quesada's tenure pilot and charismatic, Quesada under­ -was the Administrator's safety rule­ stood that his mission was to take making and enforcement program. As charge of the new agency and make it Quesada recalled in 1961, "When I clear that FAA did indeed intend to took office, years of timid and be responsible for aviation safety David D. Thomas, McKee's deputy, later during the jet age. became acting administrator. Najeeb E. Halaby center from Indi­ anapolis, Ind., to Atlantic City, N.J. FAA's agenda during 1958-1960 ranged over a diverse number of issues. Staff meet­ ings deliberated over issues such as overcrowded radio frequencies, air­ craft engine noise Elwood R. Quesada (left) being sworn in abatement, avia­ as the first Administrator of FAA, as tion medicine, the President Dwight Eisenhower observes. progress of the building of Dulles Airport and the indecisive regulation by the govern­ Fresh from his one-year stint as integration of military and civilian ment had bred a dangerous spirit of head of the Airways Modernization radar equipment. On the last point, complacency throughout the field of Board (AMB), Quesada folded AMB Quesada's Project Friendship resulted aviation." into FAA, hoping to lose no momen­ in the placement of civilian control­ Quesada's response was the so­ tum in the development of the air lers at 38 air defense long-range radar called "4-F" program, which stood traffic control technology mandated sites by the summer of 1960. This for firm application of rules, fairness by commercial jet air travel. It was represented a giant step toward the toward aviation users in consideration Quesada who initiated a dramatic sought-after common system of air of public safety requirements, fast increase in the size of FAA's engi­ action in enforcement proceedings neering staff and relocated the and factual investigation. According agency's research and development to historian Stuart Rochester, under "4-F," the agency "processed more than 400 safety rules, initiated some 7,000 enforcement actions and tripled

11 the number of violation reports filed by the CAA in its most active two­ year period." One new rule required airlines to equip their carriers with flight data recorders, which would facilitate John H. Shaffer (second from left) testi­ investigations into the probable cause fies before a Congressional committee and responsibility for accidents. Two with DOT Secretary John Volpe (left), controversial rules required airline Bertram Harding, Associate Administrator pilots to take an annual electrocardio­ for Manpower, and William Flener (right), gram and imposed a mandatory Director of the Air Traffic Service. retirement on the pilot's 60th birth­ day. In 1960, there were 65 accidents On Oct. 4, 1960, following the among domestic scheduled opera­ crash of an Eastern Air Lines Lock­ tions, resulting in over 350 deaths- heed Electra in Boston Harbor-the 138 more than in 1959 and 235 more fifth Electra crash in two years­ than in 1958. The midair crash of a Quesada traveled to the crash site. United DC-8 and a TWA Super Con­ There, with the aid of an ornitholo­ stellation over New York City on gist, he attributed the cause of the Dec. 16, 1960, called into question Alexander P. Butterfield rides the back accident to the ingestion of birds into once again the fundamental safety of seat in a "Breezy" at an EAA fly-in. the aircraft engine. Quesada, who the airways. None of this was lost on had resisted pressure from the Senate Quesada's successor Najeeb E. "Project Beacon," which led to and the Civil Aeronautics Board to Halaby, following the election. incorporating a radar beacon with ground the Electra and had argued FAA's surveillance radar as the best that the plane could fly safely at Jeeb Halaby, a California attorney means for reducing controller depend­ reduced speeds until the structural and former World War II test pilot, ence on voice communications. He defects that had caused the earlier had built a solid reputation in avia­ also scrapped Data Processing accidents could be corrected, was tion circles for his work on the White Central-a computer system then subjected to "the severest of ridicule" House Aviation Facilities Study under development-in favor of for his "starling explanation" and Group during the 1950s, and John F. computer technology compatible with for, in effect, jumping the gun on the Kennedy tabbed him as the New radar beacons. CAB's accident investigation. How­ Frontiersman at FAA. In September 1961, Halaby was ever, his explanation ultimately held Seeking to put a new face upon the successful in convincing Congress to up. agency's research and development approve a three-year extension to the By 1960, people were taking note program, Halaby in 1961 established Federal Aid to Airports Program of the FAA; however, the safety (FAAP), ending the annual funding record of 1959-1960 illustrated authority arrangement of the past. dramatically that the fledgling Halaby was determined to bring agency's work had only just begun. FAA decisionmaking closer to the aviation user. He did this by decentralizing the agency. He took line authority out of the hands of Washington bureau chiefs and

12 handed it to FAA's regional direc­ The first American jet to go into sched­ ing at an annual rate of 22 percent, tors, who became responsible for all uled airline service was the Boeing 707 and a substantial number of these FAA programs within each of their under Pan Am colors. It was certificated planes were expected to be small regions. by the CAA on Sept. 23, 1958. executive jets. By the time Halaby departed in Administrator McKee proposed the 1965, he had also succeeded in con­ The McKee years at FAA, 1965- enactment of a user tax to shore up olidating the number of ARTCCs 1968, saw FAAP funding for 1967 the slack in the F AAP program, but from 26 to 20 and in smoothing out reduced to $54 million in spite of the his efforts in this area, as well as in some of the rough edges in FAA­ fact that FAA was projecting that 234 behalf of the federally supported Department of Defense cooperation. more airports would be scheduled for supersonic transport program, fell jet service within five years. The upon deaf ears in a budget-conscious Efficiency and flexibility in man­ general aviation fleet was also grow- administration that was marching to agement were watchwords for the beat of the war in Vietnam. To Halaby's successor under President make matters worse, FAA's budget Johnson, William F. McKee. "Bozo" for facilities, the financial backbone McKee, like Quesada a retired Air FAA's Predecessor Agencies, of the automated ATC system, fell Force general, created the "Special 1926-1958 from $160 million in 1961 to $28 Projects Office" to coordinate the Organic Legislation: The Air million in 1967. No appreciable rise shakedown and field testing of the Commerce Act of 1926 in facilities or R&D spending would emerging National Airspace System occur until Fiscal Year 1970. (NASSPO). This approach permitted Aeronautics Branch, Department While proposals and arguments for the agency to assemble a temporary of Commerce Aug. 11, 1926- an integrated transportation system headquarters team that cut across June 30, 1934 under a unified Department of Trans­ organization lines and was able to Bureau of Air Commerce, portation had regularly surfaced since push the development of automated Department of Commerce World War II, it was President ATC with contractors, the experi­ July l, 1934-Aug.21, 1938 Johnson who espoused the cause and mental center or the ARTCC field Organic Legislation: The Civil site. Once NASSPO was in place, Aeronautics Act of 1938 McKee delegated much of the day-to­ Civil Aeronautics Authority day FAA operations to Deputy Aug. 22, 1938-June 30, 1940 Administrator David D. Thomas. Civil Aeronautics Administration, Department of Commerce July 1, 1940-Dec.30, 1958

13 John L. McLucas (left) chats with South­ west Region Director Henry Newman at the new Dallas-Fort Worth Tower.

jets and commercial transports oper­ Shaffer era was passage in May 1970 ating under VFR flight conditions, of the Airport and Airway Develop­ the threat in the late 1960s was posed ment and Revenue Acts with a five­ by the unprecedented growth in civil year term. Hailed by Richard Kent as aviation and the mixture of jet air­ "the beginning of a noble experiment craft flying under instrument rules in rational planning," this legislation and general aviation aircraft . established the Airport Development operating under visual rules. · Aid Program (ADAP) and a Federal The urgency to reduce the risk was aviation trust fund derived from taxes underlined by the knowledge that the on the various users of aviation new generation of wide-bodied jets, facilities. Another important provi­ capable of carrying two or three times sion of the new law required all air the number of passengers on a Boeing carrier airports to meet FAA's safety J. Lynn Helms (center) with his deputy 707, were already being flight tested. standards for air navigation facilities, Michael Fenelia (right). The Sept. 9, 1969, midair collision runways and fire-and-rescue equip­ between an airliner and a small ment within two years of passage. pushed it through Congress, signing private plane near Fairland, Ind., It was ironic that the Shaffer team the reorganization bill on Oct. 15, punctuated that urgency. had come up with the best funding 1966. The FAA's solution to the problem arrangement in civil aviation history On Apr. 1, 1967, the DOT began was the Terminal Control Area, or at the very moment when events operations and the Federal Aviation TCA. A TCA was an airspace area in completely outside its control were Agency became the Federal Aviation the configuration of an upside down conspiring to alter the imperatives for Administration. wedding cake within which control such assistance. For what had begun would be exercised over busy in the late 1950s as citizen annoyance Following Richard Nixon's election terminals. According to the proposed over jet-engine noise mushroomed 10 in 1968, the new man at the helm of TCA rulemaking, issued on Sept. 29, years later into a nationwide environ­ FAA was John H. Shaffer, a former 1969, and implemented in May 1970, mental movement destined to have vice president at TRW, Inc. A any aircraft venturing into a TCA far-reaching effects upon civil veteran of 46 combat missions in must be equipped with a two-way aviation. World War II and past director of radio, beacon transponder, and a The noise issue was transformed the Air Force's B-50 and B-47 aircraft VOR or TACAN navigational from a nuisance to a problem by the programs, Shaffer's principal concern receiver. These requirements greatly 1962 U.S. Supreme Court ruling in became the reduction of midair limited the potential number of the case of Griggs v. Allegheny collision risks in the area surrounding general aviation aircraft at crowded County. In that case, the high court crowded metropolitan terminals. terminals. Unlike the midair threat of the Within months, the Shaffer 1950s and early 1960s, which centered Administration had recorded a on possible collisions between military dramatic reduction in the number of near midair collisions, and the TCA went on to become one of the most important advances in air safety rulemaking since the agency's birth. Another aviation milestone of the

14 Langhorne M. Bond (in decorated Mexi­ Federal program to support the also led to the signing of a memoran­ can shirt) poses with the team that put out development of an American version dum of understanding between the the report on the crash of the DC-JO. of the supersonic transport, which U.S. and Cuba in February 1973. had received the backing of every From this point on, would-be ruled that airport operators were FAA Administrator up to that time, hijackers knew that they would face indeed liable for depreciation in the felt the full weight of environmental­ harsh punishments in whichever of values of property owned by persons ist opposition. In part because it was the two countries they were who lived beneath flight paths. symbolic of years of neglect of the apprehended. When the noise issue was heard environment, the SST funding pro­ Between 1973 and 1978, only one from again, it was as part of a larger gram was defeated following close successful hijacking of an American environmental movement. In 1969, votes in both the House and the airliner occurred in the United States. environmental testimony at Senate Senate. The nation would also witness brief hearings on a proposal to build a One of John Shaffer's final initia­ waves of hijackings in 1980 and again modern jetport in the Florida tives as FAA Administrator was one this spring; however, the screening Everglades eventually caused the of his most successful-the Dec. 5, system imposed in 1972 represented a Tixon Administration to withdraw its 1972, emergency rule which required dramatic improvement in controlling upport for the project. Despite the all U.S. air carriers to screen passen­ the problem. almost concurrent passage of ADAP, gers and carry-on luggage for the Everglades controversy ushered in weapons and other dangerous objects. On Mar. 14, 1973, Alexander P. a new era of diminished construction One year earlier, Shaffer had Butterfield succeeded John Shaffer as for new airports. It also helped lead confessed that "Hijacking is the most FAA Administrator. A retired Air to passage of the National Environ­ perplexing dilemma I have faced Force colonel, a pilot with a distin­ mental Policy Act of 1969. during my tenure as administrator." guished service record and a former By 1970, the environmental move­ And well he should have, for begin­ deputy assistant to the President for ment was in full stride, and the ning with hijackings of American personal and administrative affairs, transports by Cuban exiles in May Butterfield would experience a tenure 1961, civil aviation had had to wrestle at FAA colored by tragic accidents with an air safety issue not envisioned and stigmatized by the political by the blue ribbon panels of the expose of the century-Watergate. 1940s and 1950s. What is more, He had inherited the best four-year despite the legislation of a 20-year air safety record in the last 25 years sentence to deter hijackers, adoption in terms of the number of air carrier of various international conventions accidents and fatalities. The en route against the crime and the use of and terminal automation systems armed sky marshals, the hijacking were being implemented in the field problem actually seemed more out of control during Shaffer's last year in office than ever before. A mockup Boeing supersonic transport Shaffer's issuance of the December was under construction when the funding 5 rule followed on the heels of the program was canceled by Congress. three-day, eight-city escapade involv­ ing a hijacked Southern Airways DC-9. This incident, which seemed to snap the patience of the flying public,

15 and promised to afford even greater latching mechanism following the safety, reliability and efficiency in air Windsor accident, they had resorted traffic control. In May 1973, the to a routine service bulletin rather ADAP provision requiring airports than an airworthiness directive­ serving scheduled carriers to meet the which would have had the force of Elwood Driver (left}, then vice chairman agency's standards for certification law-as the means to get the airlines ofthe NTSB, points to a faulty engine went into effect. And FAA could to remedy the defect in the DC-10 pylon forward support from the DC-JO take pride in the fact that 1973 fleet. Although the Turkish airline that crashed in Chicago in May 1979. marked the first year in recent DC-10 was still in the factory when memory without a successful hijack­ the service bulletin was issued, it had Butterfield was the target of critics ing in this country. not been implemented. within his party, as well. His dis­ The well being of 1973 was shat­ Nevertheless, this non-regulatory closure about the existence of White tered, however, by two horrendous, approach subjected the agency to House tapes before the Senate Water­ and, on the surface, inexplicable air intense criticism and charges that it gate Committee in July 1973, which disasters in 1974. had become too cozy with industry. ultimately sealed the fate of the On March 3, in the worst airplane The Berryville disaster, which President, had raised the ire of a disaster up to that time, a Turkish might have been prevented had the number of diehard Nixon supporters. Airlines DC-10 crashed shortly after airplane been equipped with a ground­ Following the crash of a general taking off from Orly Airport in proximity warning system, reminded aviation turboprop on its approach to Paris, killing all 346 persons on observers of the cause of the crash of National Airport in January 1975- board. The disaster occurred after a an Eastern Air Lines jetliner into a and amid published stories of sharp rear cargo door had popped open and swamp near Miami International differences between the Administrator separated from the fuselage, causing Airport. Preoccupied with a faulty and Secretary of Transportation the floor over the cargo compartment landing-gear warning signal, the crew Claude S. Brinegar-President Ford to collapse from decompression and members on the Eastern flight had asked for Butterfield's resignation. damage vital flight-control cables. failed to notice that someone had On December 2, a TWA B-727 inadvertently disengaged the autopilot During the interregnum of Acting crashed into the Blue Ridge Moun­ until it was too late to prevent the Administrator James E. Dow, in tains near Berryville, Va., owing to a jetliner from making a gradual, August 1975, FAA announced that all misunderstandng between the pilot undetected descent into the swamp. 63 of America's busiest terminal and an FAA controller over the Although FAA was working on a facilities had been equipped with meaning of clearance instructions on rule to require Ground Proximity ARTS III and that every one of the the approach to Dulles Airport. All Warning Systems (GPWS) and a 20 ARTCCs was fully operational 92 persons on board perished. Minimum Safe Altitude Warning with NAS En Route Stage A. Both disasters were painfully (MSAW) software enhancement to its reminiscent of accidents which had ARTS III computer system at the In November, John L. McLucas occurred in 1972. The DC-10 crash time of the Berryville mishap, left his post as Secretary of the Air was similar in cause to a nonfatal Congress pilloried Butterfield and the Force to assume the leadership of accident involving an American agency for footdragging on aviation FAA. A former president of the Airlines DC-10 flying over Windsor, safety. MITRE Corp., McLucas brought Ontario, in Canada. Although both recognized scientific qualifications to FAA and McDonnell Douglas had the job, and his 16-month tenure-the responded to the defect in the briefest of all Administrators-saw

16 Passenger screening requirements sharply curtailed airplane hijackings. further technical advances. Cessna 172 that killed all 135 aboard office involved the commuter airline In early 1976, a conflict-alert the jet, two in the Cessna and seven industry. Enjoying spectacular growth system at all 20 ARTCCs began on the gound, making it the worst during the 1970s, commuters and air warning cor.trol!ers of potential high­ accident in U.S. aviation history-a taxis promised to be in even greater altitude collisions. In June, the record that lasted only eight months. demand following the deregulation of agency received the first prototypes of On May 26, 1979, Americans the industry by the Civil Aeronautics microwave landing systems. MLS reacted with horror to the news that Board and the passage, in October promised to increase the safety of an American Airlines DC-10 had 1978, of the Airline Deregulation instrument landings, lower the crashed on takeoff from Chicago's Act. The new law, in particular, decision height for pilots and reduce O'Hare Airport killing all 272 permitted commuters to employ the stackup of traffic on their passengers. The impact of the DC-10 bigger aircraft than ever before and approach to busy terminals. crash was heightened by memories of made them eligible for the FAA As chairman of a task force the Mar. 27, 1977, collision of two equipment loan-guarantee program. following a locker bombing at Boeing 747s on the runway of Las Bond's response to these changes LaGuardia Airport, McLucas moved Rodeos Airport in Tenerife, Canary was to have FAA issue on Dec. l, 'o require screening of checked Islands, which had taken a toll of 574 1978, a comprehensive set of new Jaggage and to improve terminal lives. These two disasters-the worst commuter airline regulations, revising security. in U.S. and world aviation history­ FAR Part 135. The new regulations When the Democrats returned to illustrated only too well the huge required commuters to upgrade their Washington in 1977, FAA had begun stakes associated with an accident onboard safety devices, training and to install a scaled-down version of its involving a wide-bodied jet transport. maintenance procedures. automated terminal system-ARTS Administrator Bond's response to In another regulatory action, Bond II-at lower-density airports and was the DC-10 accident was to ground the issued new FAR Part 125. This closed readying important software enhance­ entire fleet-a step unprecedented in a loophole in the regulations in Part ments to NAS Stage A and ARTS, the annals of U.S. civilian jet avia­ 91-which had allowed unscrupulous such as MSA W. tion. The Administrator's decision to operators to evade strict safety ground the DC-10 on May 28, 1979, standards-by making aircraft size President Carter's choice to head was taken after inspections of various rather than its service the criterion for up FAA was Langhorne M. Bond. DC-lOs turned up "grave and poten­ determining which FAR should apply. An expert in aviation law, Bond had tially dangerous deficiencies in many served in the office of the first Secre­ of the [engine] pylon mountings." For the present FAA Administra­ tary of Transportation, Alan Boyd, This followed an earlier inspection tor, J. Lynn Helms, the initial trial prior to becoming the Secretary of that had not turned up pylon prob­ by fire came from within the agency Transportation for the State of lems. itself-the strike of the Professional Illinois. A second air safety issue to come Air Traffic Controllers Organization Bond was to weather one of the into focus during Bond's term of (PATCO) on Aug. 3, 1981. Helms, most difficult tests of public confi­ the former president of Piper Air- dence, where air safety was con­ cerned, of any FAA Administrator. As a prelude, Sept. 25, 1978, saw a midair collision between a Pacific Southwest Airlines B-727 and a

17 Strikers picket the New York ARTCC on Aug. 4, 1981, in defiance of the law, their oaths and a Presidential deadline. Wide World Photos craft, an aeronautical engineer and a ratify the new pact led 12,300 system to its pre-strike capabilities, Marine test pilot, inherited a problem controllers to walk out on their jobs the Helms administration was whose roots were traceable to 1961. in defiance of Federal law and their responding to the substance of "The It was at that time that J eeb oath not to strike. When the majority Jones Report" by establishing an Halaby had attempted, without of striking controllers disregarded a agency-wide human relations program. success, to obtain special recognition Presidential order to return to work, Today, FAA's prospects for and compensation for air traffic 11,400 were fired, PATCO officials promoting civil aviation while safe­ controllers. Halaby had also sought faced enormous fines and the union guarding aviation safety are as bright to build esprit de corps among agency was ultimately decertified by the as any time in its history. Unlike controllers and head off signs of Federal Labor Relations Authority. CAA, which, on the eve of the jet trade unionism among Federal Despite the fact that two-thirds of age, lacked the stature and resources employees by proposing the establish­ the controller work force remained on to meet its challenge, FAA has ment of a "Federal Aviation strike, FAA was able to keep a prepared and is already carrying out a Service." majority of the nation's 14,200 daily long-range plan for keeping pace with Later in that decade, the combina­ commercial flights in the air from the the projected air traffic of the 1980s tion of dissatisfaction and militancy outset by appealing to the sense of and 1990s. led many controllers to bolt their dedication of the remaining con­ Under its new National Airspace professional association (ATCA) in trollers and supervisory personnel and System Plan, FAA plans to favor of the new union, PATCO. by using its system of flow control thoroughly modernize its A TC During the 1970s, PATCO and military controllers on loan. automation and navigation facilities, employed a variety of tactics, such as Before the year had ended, a introduce an airborne collision­ the "work-to-rule slowdown" and the special team of National Transporta­ avoidance technology via the Mode-S sickout, which created backups in and tion Safety Board investigators beacon transponder, implement MLS over major airports, in order to concluded that the scaled down work at airports across the country, and convince FAA and/ or Congress to force had not compromised or automate and consolidate its flight grant concessions to its rank and file. changed any basic air traffic control service stations. Although these tactics were eventually procedures to keep the airways Congress has already endorsed the declared illegal by the courts, the operating safely. These findings were first year of funding for the National public airing of legitimate controller echoed by the private Flight Safety Airspace System Plan by including grievances did bring about genuine Foundation in a second study. And $625 million in facilities and equip­ improvements in controller job 1981 marked the second consecutive ment funds in the agency's FY 1983 conditions, such as those provided for year in which the nation's airlines did budget. Passage of the Airport and in the Air Traffic Controller Career not lose a single passenger jet in an Airway Improvement Act of 1982, Act of 1972. accident. with companion authority to fund the By 1981, PATCO and FAA were The so-called ''Jones Report,'' a NAS Plan through a schedule of user once again at loggerheads over a post mortem commissioned by Helms charges, represents another impor­ number of economic issues, including and Lewis, identified significant tant fiscal vote of confidence that, higher wage scales and other benefits. "people problems in FAA that have for the balance of this century, FAA Although PA TCO officials and Secre­ reduced both employee morale and will be able to fulfill its mission to tary of Transportation Drew Lewis effectiveness." The report concluded keep aircraft "safe, separated and did reach a tentative agreement, the that FAA must dedicate itself to the soaring." • P ATCO membership's refusal to development of its human resources. -By Joseph Garonzik During 1983, as FAA continued its hiring and training of new controllers in order to restore the air traffic

18 Chronology of FAA's Era

September-The first ASDE (airport surface June 19-A standard regional headquarters 1958 detection equipment) radar was commissioned organization was approved by the August 23-President Eisenhower signed the by FAA at Newark. Administrator for FAA's seven regions. The Federal Aviation Act into law. October IS-Positive control on an area basis organization was to be implemented by September 2-The establishment of a program was successfully tested by the agency and October 1962. for the joint civil-military use of 31 new long­ launched as a regular service in the airspace November 17-Dulles International Airport range radar facilities was announced. between 24,000 and 35,000 feet over the was opened with special ceremonies November I-Elwood R. Quesada became the enroute centers at Chicago and Indianapolis. participated in by both President Kennedy and first Administrator of the Federal Aviation Any aircraft entering this airspace had to be former President Eisenhower. equipped with a radio and a radar beacon Agency. December IS-Simultaneous instrument transponder. In addition, such aircraft had to approaches and landings on parallel runways December 31-The Federal Aviation Agency fly on instruments regardless of weather and were authorized by FAA at Chicago O'Hare assumed its statutory responsibilities. remain under control of the centers while in the International Airport to relieve traffic backup positive control area. during peak activity periods. December 31-Radar beacon equipment used 1959 December 31-To implement the semi­ in high-altitude jet-advisory service was in January 25-Transcontinental jet airliner automated air traffic control system envisaged operation at 50 air traffic control radar sites. service began with the inauguration by in the Project Beacon report, a design team l\merican Airlines of Boeing 707 flights called for the simultaneous use of digital !tween New York and Los Angeles. High­ 1961 alphanumerics and computerized secondary .ltitude radar advisory service was also radar at both the centers and towers. established. March 3-Najeeb E. Halaby was sworn in as the second FAA Administrator. May-FAA instituted Project Friendship and 1963 began consultations with the Department of March 8-Halaby established a Project Beacon task force to recommend how the air traffic January 16-FAA's Supersonic Transport Defense to determine which military functions Advisory Group recommended the development should be taken over by FAA and when. control system, using radar as a basis, could best be automated. by the United States of a commercial August 31-The Douglas DC-8, a four-engine, supersonic transport as a top-priority long-range jet airliner with a capacity of 189 April 6-FAA established a three-layer airways Government-industry program. passengers was certificated. system which lowered the floor of the continental control area from 24,000 to 14,500 July 1-A new rule requiring distance October 8-FAA announced that under Project feet. measuring equipment (DME) on all airline Friendship, it would assume air navigation and turbojets and all other civil aircraft flying IFR air traffic control services; military flight September 11-The Project Beacon task force above 24,000 feet went into effect. service; air traffic control training; and submitted its report to the FAA Administrator. December 24-The Boeing 727, a three-engine facilities flight inspections. Among other things, it specifically recommended that the Air Traffic Control jet airliner of short-to-medium range with a Calendar Year-Four additional long-range Radar Beacon System (A TC RBS), with which capacity of 119 passengers, was type enroute radar facilities were commissioned, and the agency had already been experimenting, be certificated. the air traffic control radar beacon system was adopted as the basis of the required automated introduced. system. 1964 September 20-The Federal Airport Act was February 4-A plan to modernize 150 flight 1960 amended to extend the Federal Aid Airport service stations and close down the rest ran January 9-FAA made airborne weather radar Program through fiscal year 1964. into so much trouble in the aviation community required equipment for most of the country's and Congress that it had to be abandoned. airlines. 1962 June 30-A National Air Space (NAS) En July 17-FAA made it mandatory for all January I-Responsibility for enforcing the Route Stage A System was authorized for turbine-powered air-carrier aircraft, including Federal Aviation Regulations was transferred installation at the Jacksonville en route center turboprops, to be equipped with flight to the seven FAA regions. -the pioneer, semi-automated installation recorders by November 1960. envisaged by Project Beacon. August 25-FAA commissioned the first September 7-A revised U.S. airway route improved airport surveillance radar (ASR-4) at structure substituted a simplified two-layer ./ewark, N.J.

19 November 23-The Douglas DC-9, a twin­ engine turbojet, designed for the short- to medium-haul market with a capacity of 99 passengers, was type certificated. 1966 January-The success of the ARTS I at Atlanta resulted in a contract between FAA and the Department of Defense for the development of an ARTS II, a smaller and less costly version system for the previous three-layer system. The of ARTS for use at military towers and low­ lower layer extended generally from 700 feet density civil terminals. above the earth's surface up to 18,000 feet above mean sea level, the upper layer from April 25-FAA established the National 18,000 to 45,000 feet above mean sea level. Airspace System Program Office (NASPO) to replace NASSPO. October 6-The National Airspace System Special Projects Office (NASSPO) was June 30-FAA created the New York common established to provide management and IFR room (CIFRR), which would control all coordination for the semi-automated air traffic traffic arriving and departing at JFK, control subsystem of the National Airspace La Guardia, Newark, Teterboro and their 12 System. satellite airports in the metropolitan New York area. November-The first distance-measuring equipment (DME) unit combined with an September 19-A new rule required instrument landing system (!LS) was U .S.-registered civil aircraft operating outside commissioned at the John F. Kennedy the United States to meet the same operational July 31-General William F. McKee resigned International Airport. and maintenance standards as those prescribed as Federal Aviation Administrator, and Deputy for operations within the United States. Administrator David D. Thomas was named December 14-The first FAA-designed-and­ 30-F AA' Acting Administrator. built airport traffic control tower was September s aeromedical research commissioned. Previously, tower structures activities were transferred from Washington, December 30-The radar processing capability were designed and constructed by the airport D.C., to the Aeronautical Center's Civil of the first operational field model of the NAS sponsors, with FAA participating in the Aeromedical Institute (CAMI) in Oklahoma En Route Stage A subsystem at the Jacksonville financing. City. en route center began operating on a part-time basis. December-Codification of all previous October 15-The President signed the aviation regulatory issuances into a single body Department of Transportation Act bringing December 31-During the calendar year, of rules, the Federal Aviation Regulations FAA and other Federal agencies having to do aircraft hijacking reached near epidemic (FARs), was completed. with transportation under the new department. proportions in which 13 U.S.-registered air carrier aircraft were forced to land in Cuba. 1965 1967 February 6-Cockpit voice recorders were February-The first nonradar or VFR control 1969 required to be installed in all turbojets and tower to be constructed according to an FAA March 24-Retired Air Force Lt. Col. John H. four-engine, piston-powered civil aviation standard design and built entirely with agency Shaffer was sworn in as FAA Administrator. aircraft. funds was commissioned at Lawton, Okla. June I-The Common IFR Room at JFK, November 9-The floor of area positive March 4-Positive control of the airspace in which had been serving the New York terminal control over northeastern and north central the contiguous 48 states between 24,000 and area on a broadband, manual radar basis, United States was lowered from 24,000 to 60,000 feet was consolidated into a single area shifted to a computerized digital alphanumeric known as the continental positive control area. 18,000 feet. system. May 24-The first field test of the terminal December 15-The Boeing 737, a twin-engine June 27-The first uninterruptable power prototype of the automated radar terminal short-range jet transport with a capacity of 107 system-known as the Power Conditioning system, ARTS I, began at the Atlanta, Ga., passengers, was type certificated. System (PCS)-was commissioned at the airport. Jacksonville en route center. July I-General William F. McKee, USAF 1968 November 15-Air taxi operators of large (Ret.), was sworn in as FAA Administrator. January 3-The Professional Air Traffic aircraft became subject to the stricter Controllers Organization (PATCO) was formed. operational requirements that applied to September 26-A rule requiring biennial supplemental air carriers. requalification of all flight instructors went March 16-Visual flight rule operations at or into effect. above 1,000 feet above mean sea level were prohibited under a rule effective this date, unless the pilot had a minimum visibility of 5 miles and was at least 1,000 feet vertically and a mile horizontally from the nearest cloud formation.

20 From World War II temporary buildings and an old hospital, the Washington headquarters staff moved into this building in November 1963. The square building with a central courtyard behind it is the Department of Transportation. Photo by Lance Strozier

July 1-Under the Airport and Airway Development Act of 1970, FAA began accepting applications for Federal assistance for airport development under the Airport Development Aid Program (ADAP) and the Planning Grants Program (PGP). July 17-New Orleans Moisant International Airport became the first U.S. airport to subject all passengers to screening by the FAA­ developed anti-hijacking detection system. December 31-With a passenger fatality rate of April 14-The Lockheed L-1011, a short-to­ 0.0001 per 100 million passenger miles flown, medium range, 400-passenger airliner, was type U.S. airlines recorded the safest year in their certificated. history. June I-In the first nationwide agreement between FAA and a labor organization, the National Association of Air Traffic Specialists 1971 (NAATS) was certified as the exclusive national January 27-A standing Flight Service Station representative of approximately 3,000 flight Modernization Committee was established by service station specialists. FAA to work on plans for the improvement of the FSS system. December S-President Nixon ordered luggage inspection, passenger screening and the presence January 29-An official finding by the of guards during passenger enplanements. Department of Labor that the 17-day strike in March and April 1970 was a strike against the December 30-TheBoeing 747, a 490-passenger, Government caused PA TCO to be divested of 1973 long-range airliner, was type certificated. its union status. It was allowed to regain the February IS-The U.S. and Cuba signed a status on vowing it would not permit the same memorandum of understanding under which sort of thing to happen again. the two nations agreed to extradite or punish 1970 hijackers. February 28-The decision was reached that March 24-The U.S. civil supersonic transport the NAS En Route Stage A automation should development program was terminated when the February-All 20 en route centers had proceed in two successive phases: Flight Data U.S. Senate, as the House had done six days computerized update equipment (CUE) and full Processing (FOP) first; then Radar Data before, voted against the appropriation to flight-data-processing (FOP) capability. Processing (RDP). continue with its development. March 14-Alexander P. Butterfield, a retired March 19-An air traffic control capability for May 3-FAA's Management Training School Air Force colonel, was sworn in as FAA coast-to-coast automated flight data processing at Cameron College, Lawton, Okla., admitted Administrator. (FOP) was demonstrated for the first time its first class. April 30-FAA and PATCO signed a when the Denver and Los Angeles ARTCC June 8-FAA established a Quality Assurance nationwide agreement, following FAA computers were linked. System Review (QASAR) program to improve recognition of the union as the exclusive March 25-April 10-Some 3,000 PATCO its oversight of quality control systems in use by bargaining agent for the controllers. enroute controllers and a few terminal aircraft manufacturers and their parts suppliers. May 21-FAA had issued operating certificates controllers went on strike, claiming to be July 29-The McDonnell Douglas DC-10, a to 498 airports serving CAB-certificated airlines. fatigued and to be acting in the interests of medium-to-long-range, 345-passenger airliner, June 18-The Airport Development their health. The Government obtained was type certificated. temporary restraining orders against PATCO. Acceleration Act of 1973 increased the annual October 4-The first operational ARTS III was ADAP funding level. April 27-The Central Flow Control Facility commissioned at Chicago O'Hare International was established at FAA headquarters. July 8-The Flight Inspection National Field Airport. Office (FINFO) was established at Oklahoma May S-The first NAS En Route Stage A October 14-The base of area positive control City. computer update equipment (CUE) was over the contiguous 48 states was lowered from commissioned at the Washington ARTCC. August 1-FAA began implementing the En 24,000 feet to 18,000 feet. Route Weather Advisory Service (EWAS) at June 25-Terminal Control Areas (TCAs) were December 31-FAA terminated its policy of four West Coast flight service stations. established at 21 of the nation's busiest airports. granting immunity from enforcement action to September 22-The Dallas-Fort Worth airmen reporting near midair collisions. Regional Airport, the world's largest, was dedicated. 1972 January 28-The Executive Development Program was established by FAA. February 29-FAA issued a rule requiring the airlines to develop and implement anti-hijacking security measures.

21 August 26-The final phase of FAA's NAS En Route Stage A program to automate and computerize the nation's en route air traffic control system was completed with the commissioning of the radar data processing (RDP) system at the Miami ARTCC. November 23-Dr. John L. McLucas, previously Secretary of the Air Force, was sworn in as FAA Administrator. December 29-The explosion of a bomb at September-Ten ARTCCs had become New York's LaGuardia Airport caused FAA to Weather Service to provide en route, terminal operational in radar data processing (RDP). intensify its bomb security program and require and FSS weather information. checked baggage to be inspected. April-The International Civil Aviation 1974 Organization (!CAO) picked the time-reference scanning-beam microwave landing system February-The review on a biennial basis of 1976 the FAA airworthiness regulations began. (MLS) for the international standard. January 2-A conflict-alert system capable of 21-PATCO agreed to pay a fine of March 3-A Turkish airlines DC-IO crashed warning en route traffic controllers of less than June shortly after takeoff from Orly Airport in Paris standard separation of aircraft under their $100,000 for having engaged in a slowdown in because of a defective latch on its rear cargo control was implemented at all 20 en route May and June because airlines refused door. All 346 people aboard were killed in the centers. controllers international "fam" flights. worst air disaster up to that time. April-FAA restarted its Aviation Safety September-The agency began installing and commissioning Low-Level Wind Shear August 5-The Anti-Hijacking Act of 1974 Reporting Program with the National gave the Federal Government additional Aeronautics and Space Administration's Ames Advisory Systems (LLWSAS) at airports, the authority to deal with acts of air piracy. Research Center in charge. first at Chicago O'Hare. total of 139 people were September-The last of 300 four-course radio June 1-The first prototypes of the Microwave September 25-A ranges commissioned in the 1930s was shut Landing System were delivered. killed as the result of a midair collision over down at Northway, Alaska. San Diego of a Pacific Southwest Airlines July 6-The Great Falls, Mont., ARTCC was B-727 and a Cessna 172. September 1-A new rule requiring a biennial closed and its functions transferred to the Salt flight review of all certificated pilots went into Lake City and Minneapolis ARTCCs. September 30-The master plan and acquisition effect. schedules for the automated flight service November 5-The first Minimum Safe Altitude station system were approved. A request for November-The first of a new fleet of FAA Warning (MSAW) system was commissioned at proposals (RFP) for the automated system was jets made up of five Jet Commanders and 15 Los Angeles International Airport. issued. Sabreliners began taking over flight inspection duties from the fleet of DC-3s. October-Conflict Alert became operational at 1977 51 ARTS III terminals in the contiguous 48 727 let down too soon December 2-A TWA May 4-Langhorne M. Bond, previously states. on a landing approach to Dulles International Secretary of Transportation for the State of November-The first ARTS II was Airport and crashed into a peak, killing all 92 Illinois, was sworn in as FAA Administrator. persons aboard. commissioned at Toledo, Ohio. September 15-The last Dynamic Simulation December 1-FAA revised and updated FAR (DYSIM) radar controller training program Part 135 to bring the operational and 1975 became operational at the Denver ARTCC. January 14-A new regulation setting maintenance standards of the commuter airline maximum noise levels for propeller-driven October 18-AII FAA-certificated airport and air taxi industry in line with those of the small aircraft went into effect. operators were required to prepare emergency trunk and local service air carriers. medical plans in the event of crashes. January-After 31 years of operation, the Fairbanks ARTCC was shut down and its new National Airport System 1979 December 30-A signed a contract for the functions assumed by the Anchorage Center. Plan (NASP) was issued by FAA, calling for March-FAA the construction of 397 new general aviation development of the Electronic Tabular February-FAA began a Biennial Operations airports, 53 new reliever airports and 28 new Subsystem (ETABS) for automating flight Review. air carrier airports. progress strips in the ARTCCs. April 1-James E. Dow, the Deputy May-A contract for the development of a Administrator and a long-time agency Terminal Information Display Subsystem employee, became Acting Administrator. 1978 (TIDS) to automate flight strips in terminals February-FAA received the first of 27 new was signed. August 13-FAA's program to implement the long-range air route surveillance radars ARTS 111 automated radar terminal system at (ARSR-3s). May 25-At Chicago O'Hare, the left engine 63 of the busiest terminals was completed. and pylon separated from an American April 17-Thirteen of the 20 centers had received an allotment of meteorologists under an agreement between FAA and the National

22 been appropriately type certificated by FAA and could be safely flown by a crew of two pilots. August 3-The nationwide PA TCO strike began, preceded by a six month round of negotiations between FAA and the union for a new labor agreement. When a tentative agreement was reached, the union's national officers advised union members to reject it, which 95 percent of them did. President Airlines DC-JO, causing the plane to crash on Reagan reminded the strikers that they had September-The agency implemented the takeoff, killing all 273 persons aboard in the signed an oath not to strike against the Aircraft Certification Directorate System: the worst air disaster in American aviation history. Government and gave them 48 hours, or until Central Region manages small airplanes; the Wednesday, August 5, to get back to work or JO-Delivery began of the first of 20 Northwest Mountain Region, transport July be fired. A total of 11,438 strikers ignored the Direct Access Radar Channel (DARC) airplanes; the Southwest Region, rotorcraft; President's ultimatum and were fired by FAA. subsystems to be installed at all 20 enroute and the New England Region, engines and propellers. centers to provide backup. August S-FAA put into effect Special Federal Aviation Regulation (SFAR) 44, an air traffic October 23-The first fully functional ARTS August-The prototype of a new airport control interim operations plan. surface detection radar, the ASDE-3, was IIIA, including Conflict Alert, was commissioned at the Seattle-Tacoma (Wash.) delivered to NAFEC for test and evaluation. September-The agency awarded a contract to manufacture 16 Model I automated FSS Tower. systems for immediate installation and 23 November-The first microwave landing system 1980 Model 2s over the next seven years that would (MLS) in the world was commissioned and February 20-Filtering equipment designed to add graphics and direct user access. went into operation at Valdez Airport in reduce the concentration of ozone in the cabins September 30-FAA reduced the number of its Alaska. of high-flying aircraft was made mandatory by regions from 11 to 9 by consolidating the 20-FAA issued a request for an FAA regulation. December Pacific Region into the Western-Pacific Region proposals (RFP) for the initial phase of the April-FAA began implementing a revised plan and the Rocky Mountain Region into the program to acquire a new "host" computer to ;or the establishment of 61 automated flight Northwest Mountain Region. replace the IBM 9020s at its en route centers. service stations in 45 states and Puerto Rico October 22-PATCO was decertified by the 21-The agency certificated the with the letting of contracts for prototype December Federal Labor Relations Authority. Boeing 757, a narrow-body, medium-haul jet computers. for a maximum of 219 passengers. December JI-During calendar year 1981, April IS-PATCO distributed a "strike plan" scheduled air carriers enjoyed their second to its membership. consecutive year without a crash. IS-PATCO controllers at Chicago 1983 August 11-The first two of 120 second­ O'Hare conducted a one-day slowdown because February generation, dual-channel Common Digitizers FAA turned down a demand for an annual tax­ 1982 were delivered to the FAA Academy. free bonus of $7,500. January 28-FAA issued a National Airspace System (NAS) Plan, which set forth what the March 31-FAA issued a request for proposals August-The Anchorage en route center agency proposed to do in updating its air (RFP) for 137 Mode S ground radar beacon became the first of three centers outside of the navigation and air traffic control system in the stations. contiguous 48 states to have in operation an En two decades ahead. Route Automated Radar Tracking System April 11-FAA announced that the National (EARTS). June-FAA established the National Airspace Airspace System Plan would be revised, Review Program, a joint FAA-industry project increasing the number of ARTCCs to 23 and October 20-FAA commissioned the first En which allowed industry representatives to redesignating them as Area Control Facilities. Route Minimum Safe Altitude Warning System recommend NAS changes. (E-MSAW) at the Cleveland ARTCC. April 22-After 40 years in Panama, FAA June 30-With the acceptance of the ARTS II turned over to the government of Panama, the December 31-NTSB reported that 1980 was at Bismarck, N.D., the delivery of all 84 ARTS center and radar approach control (CERAP) at the safest year in history for U.S. certificated II systems was complete. Balboa. route and supplemental carriers. August 31-The agency certificated the Boeing May-The agency issued a request for 767, a wide-body, 211-passenger, short-to­ proposals (RFP) for the advanced automation 1981 medium range, two-engine jet. system, which will include new sector suites, April 22-J. Lynn Helms, former chief new computer software and new processors to September 2-FAA issued a final rule executive officer of Piper Aircraft Corp., was governing the operation of ultralights. augment the new "host" computers. sworn in as FAA Administrator. June 7-Two contractors were chosen to June 23-The agency decided to implement the proceed with the validation of preproduction airborne Traffic Alert and Collision Avoidance models of the next generation of weather radar System (TCAS). (NEXRAD). July-A Presidential task force on aircraft August 23-The twenty-fifth anniversary of the �rew complement decided that the DC-9-80 had Federal Aviation Act.

23 Closing the Technology Gap FAA and the Industry Have Come a Long Way

• t the time of the Grand Canyon � crash, America was facing an airways crisis of critical propor­ tions. Air traffic control technology was two generations behind aviation technology. Controllers at the nation's ARTCCs, lacking radar to track aircraft, had to be in virtually constant voice contact with pilots or ground communication points to keep tabs on flights within their traffic sectors. Each controller had to calculate the estimated position of flights over his sector, record them on flight data cards, post them on boards and pass them on to the controller with responsibility for the next zone. Flight data was subsequently tele­ phoned from one ARTCC to the next until the plane had reached its destination. It is no wonder that to keep them safe, commercial aircraft had to be draped in a "cocoon of air,'' CAA Administrator Frederick Lee explained, "because neither pilot nor controller can pinpoint the plane's position with sufficient accuracy to allow a narrower margin.'' Although many of America's terminal control facilities had been equipped with precision radar by the late 1950s, communications were still, according to one pilot, "like trying to talk over an old-fashioned party line telephone with everybody on the line at once hollering 'Fire!' "

During FAA 's early years, long-range radar coverage was expanded. The first non-military was the ARSR-1, here in Benson, N.C., with a beacon "hog trough" atop it and a radar microwave link tower next to it. Adverse weather conditions brought In the FAA era, many instrument landing out the worst in the system. Since systems were installed around the country. poor visibility compelled planes to fly Here, a DC-JO flies down the approach under instrument flight rules (IFR) lights into O'Hare at dusk. md since they could proceed to their Photo by Neal Callahan destinations only as rapidly as Flight Data Processing at the Memphis controllers could handle them, flight ARTCC in 1973 brought the controller a delays were commonplace. On one flight-strip printer and Computer Update such occasion, Sept. 15, 1954, later Equipment, including input keyboards called "Black Wednesday," record and computer readout devices (left). instrument traffic caused 45,000 A Computer Update Equipment display at passengers to be detained for hours in the Indianapolis ARTCC. If the computer the New York City area. message shown on the screen is correct, it To make room for the jet age in can be entered into the computer by the civil aviation, the infant Federal push of a single button. A viati on Agency pressed forward with many new research and develop­ ment projects and a substantial investment in modern airway facili­ ties. Improved lighting and other existence, FAA was able to expand its visual aids for pilots, longer and air route structure simply by placing parallel runways, high-speed airport additional state-of-the-art equipment turnoffs and multiple Instrument in the field. Between 1958 and 1961, Landing System facilities were it increased the number of its long­ numbered high among its procure­ range radar units from four to 41, ment priorities. thereby blanketing about half of the Most of all, FAA planned to U.S. The ground components of the automate the controller's flight-data­ common VORT AC short-range navi­ processing and radar-tracking func­ gational system, so crucial for tion, were also mostly in place by tions, for only automation-the keeping aircraft on their stated flight 1960. longed-for Third Generation of ATC paths and maintaining aircraft separa- Surveillance radar, however, the -ultimately promised to provide the second generation of air traffic afety margins required for jet travel. control technology, was no longer During the first years of its enough. Even with radar in hand, a controller still had to follow an

25 signal on the controller's radar display. With computer automation in place, the signal could be digitized to disclose the aircraft's identity and altitude in alphanumeric form, there­ by eliminating the pilot's requirement to perform time-consuming identifica­ tion maneuvers. Computerization of flight data processing, which promised to reduce substantially the controller's paper­ work responsibilities, as well as the development of improved pilot­ controller communication channels, all-weather landing systems and airport lighting figured prominently in the Beacon Report. For most of the 1960s, FAA's research and development effort focused on the automation of air traffic control at its 20 en route centers, which it dubbed NAS En Route Stage A. Today's long-range radar is the ARSR-3, NAS Stage A FAA leadership believed that Stage which was introduced in 1977. The next milestone in ATC auto­ A could be developed as a relatively mation occurred in 1961 with the homogeneous system for the 20 aircraft's flight progress by moving report on "Project Beacon." Pre­ ARTCCs, which resembled each other tiny pieces of plastic, called "shrimp­ pared by a blue-ribbon panel of more closely than large metropolitan boats," inscribed with flight data, experts appointed by Administrator terminals. The priority placed upon I across his radarscope until the Halaby, the Beacon Report defined automation of the en route portion of aircraft left his sector. Nor did radar the configuration of ATC automation flight also dovetailed with FAA's free him from performing time­ that FAA would go with in the 1960s desire to establish positive control consuming voice communication and 1970s. FAA opted for digital throughout jet airspace. To have handoffs to the adjacent sector or automation of the beacon tracking begun by automating the terminals, it ARTCC or from the calculations function, which would be compatible was claimed, would have resulted in which would enable him to estimate with the Air Traffic Control Radar the creation of "islands of the aircraft's next position. A Beacon System (ATCRBS). automation." December 1960 midair collision over ATCRBS consisted of an airborne New York City was evidence enough transponder and a ground interroga­ I that something more was needed. tor. The latter could be positioned at radar or ground navigation sites throughout the FAA network. When a transponder-equipped aircraft was interrogated, A TCRBS would flash a

26 NAS En Route Stage A was the most ambitious R&D undertaking in air traffic control history. The total Prior to the FAA, the Washington cost of the systems ARTCC in 1955 was the first center with installed at the 20 radar, albeit a discarded military one. ARTCCs by 1974 came to $640 million, or three times the original estimate. It was, nonetheless, a singular technolog­ ical achievement. NAS En Route ;tage A had to ,urmount financial and conceptual problems. For starters, FAA's budget for R&D and aviation facili­ Stage A software program was Above left: A radar controller at the ties fell dramatically throughout the finished, it contained over 475,000 Washington ARTCC in 1963 had shrimp­ 1960s, thereby undermining the 1961 instructions, far more than any boats and a joystick. assumption that FAA could continue previous computer program. Thirteen years later, rhis scene ar rhe Los to count on the level of funding it Despite the virtue of operating a Angeles ARTCC was fypical. Controller had enjoyed in the wake of the Grand complete Stage A system at Jackson­ Jacque Feister went on to become man­ Canyon accident. ville, it proved unrealistic to expect ager of the Boston Center (above). IBM, which also wrote the software controllers to perform their normal Photo by Fred Farrar for the en route system, had to jobs and learn the intricacies of an double the amount of memory it had automated system still undergoing Radar Data Processing (RDP) originally anticipated before it could development. As it turned out, the became a reality at all 20 centers in deliver the operational prototype of less-complex flight data processing August 1975. The Miami Center was the 9020 computer installed at the function was ready first, and the the last ARTCC to acquire the capa­ Jacksonville ARTCC in 1967. The controllers at Jacksonville-and even­ bility of displaying alphanumeric giant computer firm, which was divid­ tually at every ARTCC-could get readouts of aircraft positions, track­ ing its energies between Stage A and the benefits of one phase of automa­ ing aircraft precisely, and performing the Apollo project, at one point had tion sooner. automatic radar handoffs from sector 500 programmers on site at the Tech­ By 1970, most of the problems had to sector and from center to center. nical Center trying to debug the been u:solved, and NAS En Route RDP liberated the controller from software. By the time the original Stage A was on its way to the remain­ much of the voice communication ing ARTCCs. In February 1973, the Memphis ARTCC became the last center to be equipped with Flight Data Processing (FOP).

27 The New York ARTCC in 1970. ft was the second center to get radar. NYT Pictures

which had been required to identify aircraft and transfer control within the A TC system. One veteran con­ troller summed up the difference between surveillance radar and RDP as, "like comparing a World War I biplane and a modern jet." Installation of ARTS III and the updated ARTS III-A pushed the bill ARTS for automation of air traffic control Conceived as a simple modular sys­ over the $1 billion figure by 1980. Between the end of 1970, when tem capable of displaying Mode C Chicago's O'Hare Airport received radar beacon signals in alphanumeric form, the original ARTS was installed the first ARTS III, and August 1975, when ARTS III was installed at at the Atlanta terminal in 1965. Broadband radar showing weather and Dallas-Ft. Worth, 63 metropolitan IN 1968, ARTS was augmented by ground clutter, versus ARTS /II (right)­ terminals acquired the basic ARTS III equipment from an experimental en the difference was like night and day. system. ARTS III-A, first tested at route system (SPAN), which had the Tampa Tower in 1979 and later auditioned at the Indianapolis The Air Traffic Service incorporated installed at the New York TRACON ARTCC and later at the New York ARTS I's automatic tracking system (successor to the CIFRR), possessed ARTCC; the combined system was into the New York Common IFR two characteristics not present in its reconfigurated as ARTS I. When Room (CIFRR), the first such facility predecessor. ARTS III-A can generate ARTS I proved a quick experimental built to control flights into and out of success, FAA contracted with Univac alphanumeric data on all targets, a multiplicity of airports within the both beacon and primary radar, and for production of the data same metropolitan area. By combin­ the electronic impulses from its acquisition, data processing and data­ ing the coverages of independently computer can be remoted to satellite entry display functions of a larger situated radars and feeding their airports. version which could accommodate the signals into a single room, FAA Hoping to acquire as much ATC nation's busiest terminal control succeeded in developing a computer­ automation as possible from a finite facilities, ARTS III. ized alphanumeric system, ARTS I-A, amount of dollars, FAA developed a By the late 1960s, the demands of which flashed an aircraft's altitude, similar system for smaller commercial jet age air traffic were compelling heading and position directly on the airports known as ARTS II. Driven FAA to focus more and more of its radarscope. Although ARTS I-A had by minicomputers, rather than a attention upon the terminal areas. only one-fifth of the tracking capability of ARTS III that was yet to come, even limited automation at the New York CIFRR was of critical importance.

28 mainframe, ARTS II generates alpha­ feet for en route Conflict Alert) and numeric readouts of identity and 1.2 miles horizontally (five miles), the altitude but not ground speed. aircraft's data blocks display a flash­ Eighty-four smaller airports have ing "CA" on the radar screen. Con­ acquired ARTS II to date. flict Alert is now in place at all centers and 63 metropolitan terminals. Avoiding Unplanned Contact FAA has implemented several other During the 1970s, both ARTS III enhancements to the Third Genera­ and NAS En Route Stage A were tion A TC system over the last few enhanced to further reduce the years. To provide a superior back-up margin for error in civil aviation. system to primary radar during com­ The bizarre crashes of an Eastern puter outages of the IBM 9020, the Air Lines Lockheed L-1011 into the agency has developed a Direct Access swamp near Miami International Radar Channel (DARC). Consisting Airport on Sept. 29, 1972, and of a of a series of microcomputers at each TWA Boeing 727 into the Blue Ridge center, DARC can display identity fountains on its approach to Dulles and altitude for transponder-equipped Airport on Dec. 2, 1974, dictated the aircraft. This provides a much clearer development of a software enhance­ representation of air traffic than ment to ARTS III known as Mini­ broadband radar until the main mum Safe Altitude Warning (MSAW). computer system can be restored. MSAW alerts the controller whenever Other enhancements include the a plane has descended below an "quick look" weather advisory, appropriate altitude by flashing a which allows a controller to clear the "LOW ALT" message on his radar scope of weather data while monitor­ Airport surveillance radar came in earlier console. MSAW was on line at all 63 ing traffic, yet store it for a "quick than long-range radar. This ASR-3 was ARTS III sites by November 1977. A look" should he wish to announce a already being supplanted by the ASR-4 more sophisticated MSAW package, weather advisory; and the system of when photographed in 1961. which accounts for changes in Flow Control, which was so helpful topography over the continental U.S., in keeping air traffic moving and approach to the runway. With respect was in place at the 20 ARTCCs by delays confined to the ground during to landings, the point at issue was the 1981. the recent controllers' strike. present Instrument Landing System The recurrence of near midair colli­ (ILS). sions, such as one involving two wide­ The Landing Phase ILS, which had been developed bodied jets over Lake Michigan in The goal of FAA's landing and during the 1940s, had two drawbacks November 1975, led to the develop­ lighting system programs was to which limited its usefulness in the jet ment of the Conflict Alert software "lower the minimums," that is, the age. The system emitted only a single, package. Conflict Alert warns the altitude and runway visual range narrow beam, hence it required air­ controller of a potential collision below which a pilot had to abort his craft to stack up behind one another course between aircraft by continu­ on their approach to the runway. At ously calculating the projected flight very low altitudes, the ILS signal was path of all aircraft under his cover­ subject to reflections, which, unknown age. Whenever the paths of two or 1ore aircraft are projected to be Joser than 375 feet in altitude {1,000

29 The agency expects to award a ment of white and red lights. This production contract for the first 172 was of great importance in guiding units later this year. planes into airports not equipped with In 1959, following some dramatic ILS. FAA eventually developed con­ tests at the Technical Center, FAA figurations for more than a dozen discarded the runway edge lighting airport lighting systems, including the standard in favor of a narrow gauge taxiway centerline and Category II system (center of runway lighting). Approach Lighting systems. The following year, FAA adopted the British Visual Approach Slope Indica­ The NAS Plan tor (VASI), which allows a pilot to At a time when civil aviation is gauge his glide path from an arrange- enjoying unprecedented safety, FAA has unveiled a master plan for over­ hauling all of its technology by the This was radar training at the FAA year 2000. The shape of things to Academy in 1965. The classroom was in come was laid out by Adminis rator the configuration of a terminal !FR room. Helms in January l 98� m a 4.50-page document entitled "The National Air­ to the pilot, could distort the reading space System Plan.'' on his instrument panel. Among its highlights are plans for After experimenting with a series of new levels of automation for the en prototypes, FAA concluded that what route and terminal portions of air was needed was not an improved ILS traffic control, the implementation of but a new technology-the microwave a new generation of secondary radar landing system (MLS). MLS repre­ (the Model S transponder), the pro­ sented an advance over ILS because it To make approach lighting less dangerous curement of MLS and other advanced could generate elevational guidance, in a crash landing, rigid support structures landing aids, the replacement of as well as distance, in one system. were replaced with frangible ones. vacuum-tube communication and MLS was less susceptible to reflection navigation equipment with solid-state than ILS. And it was far more effi­ technology, the consolidation of the cient besides, since MLS radiated a existing network of centers and wide scanning beam of possible TRACONs into a much smaller multiple approach paths to the touch­ network of regional or dual-function down. MLS thus promised to clear up facilities and the modernization of the the "mixing bowl" over crowded FAA's flight service stations. terminals, while enabling the airlines With its passage of the Airport and to realize substantial savings in fuel Airway Improvement Act, with com­ consumption. panion authority for passenger, fuel FAA began its development pro­ and other user taxes, Congress in gram for MLS in 1971. In 1978, the 1982 has already given the green light International Civil Aviation Organiza­ Early in FAA history, the agency adopted for the first stages of the National tion (ICAO) approved the U.S. time­ the British Visual Approach Slope Indica­ Airspace System Plan. reference scanning-beam version of tor (VAS!) system for VFR landings. MLS as the international standard.

30 The most novel piece of technology associated with the National Airspace System Plan is the Mode S trans­ ponder. Mode S differs from the current Mode C transponder in that it can be interrogated and respond individually, permitting discrete communication between controller and aircraft or between two aircraft. By 1990, Mode S is expected to allow pilots and controllers to communicate without voice, owing to its data-link feature. The success of the Mode S trans­ ponder has persuaded Administrator Helms to give the go-ahead for the development of the airborne Traffic Alert and Collision Avoidance System (TCAS) for both general aviation and large transport aircraft. Mode S has thus put an end to more than a two­ decade debate over the feasibility of airborne collision-warning systems to back up the ground-based safeguards in the Third Generation A TC System.

This is the antenna for the Third Genera­ processing, by the intermediate phase tion: The five-foot open array atop an (c. 1990), minicomputers located at ASR-7 provides improved beacon per- each controller's sector suite are !ormance and makes possible the Mode S expected to assume much of the capability for data link. specific data processing for that sector. Each sector suite would also One of the first items on the have its own backup capability via an agenda is replacing the l 960s-vintage upgraded version of DARC. This will IBM 9020 computers with new "host" permit the consolidation of en route computers capable of handling 9020 and terminal facilities into fewer software with only a few alterations. mixed-use facilities. While the new host computers will Over the long term (the year 2000), The controller's sector suite of tomorrow continue to perform centralized automation of air traffic control is being tested at the Mitre Corp. At left is expected to yield "higher levels of the "planning display"; at right is flight safety and efficiency through the use data; at center is the usual plan view of automated conflict-probe-and­ display. All are shown with touch entry. resolution, system-wide direct routing and the capability to operate a sector with one person."

31 ... '-. ,· ,. • r"' ,,.,..,.. .. ,;

The first microwave landing system commissioned in the country was at Valdez, Alaska, in November 1982. MLS provides a cleaner signal, as well as the potential for multiple glide slope angles and segmented and curved approaches. Photo by Bendix Corp.

This year the agency will issue an During the inter­ RFP to substitute Mode S for its mediate phase of present secondary radar. FSS moderniza­ FAA has also commenced the tion, general avia­ changeover from vacuum tubes to tion aircraft flying solid-state parts for its VOR naviga­ above 12,500 feet tion system. This will increase system and possessing the reliability and result in a savings of data-link feature more than $500 million over a 20-year of the Mode S period. transponder will Cost savings are anticipated as well be able to call up from the intention to co-locate com­ weather reports on munications equipment with VORs or their instrument en route surveillance radar, as well as panels from the FSS data base. By from the capability for remote main­ the year 2000, the same service will be tenance monitoring of most "ground­ available for aircraft flying above to-air systems." In the long run, the 6,000 feet. agency hopes to realize still other cost FAA has projected a $7.16 billion savings, such as by reducing the num­ price tag for the capital investment ber of VOR-DME stations through costs of the National Airspace System increased reliance upon area naviga­ during its initial phase (1982-1987), tion. At the end of the century, FAA and $9 billion overall. More than expects to phase out primary radar making up for the required Federal when Mode S is in wide use and the outlay is a projected cost savings to awaited NEXRAD (Next Generation the taxpayer of $22 billion by the Radar) Doppler weather radar system Flight Service Stations have come a long year 2000 resulting from cheaper is in place. way-from the airway radio station to this maintenance and the consolidation of FAA's flight service stations also view of the Charlottesville, Va., FSS and present facilities. FAA also believes figure prominently in the changes specialist Ralph Hill in 1970 (above) to the that the NAS Plan should save air­ mandated by the National Airspace automated stations now being built, like ways users an additional $25 billion Plan. The flight service stations, the Washington FSS of today that shows over the cost of new avionics. whose primary audience is general (l-r) William Arvelo, Robert McAree, Today, as FAA celebrates its 25th aviation, are dedicated to flight plan Norman Cornelius and William Cecil at birthday, the "airways crisis" facing processing, weather briefings and preflight. (top). Photo by Robert Laughlin America on the dawn of the jet age is assistance to pilots in distress. FAA no longer. Its disappearance must be plans to scale down the size of the FSS computer system will be installed attributed, in large part, to the FSS network from more than 300 to at 41 sites, which will enable flight automated technology, which, in the 61 stations by automating most FSS service specialists to call up weather hands of FAA's dedicated band of air services. and related data for immediate dis­ traffic controllers, has painstakingly During the next several years, the play at their positions. Also destined whittled away at the margin for error for obsolescence are the FSS's low­ in air traffic. • speed teletypewriters, which will be -By Joseph Garonzik superseded by data-terminal equip­ ment.

32 The Thunder Recedes Improving Safety Has Been FAA's Legacy

ore airplanes transport more is the envy of the international for the same periods fell from .005 to Americans at greater speed aviation community. .002 per million aircraft miles flown. M to more destinations on It didn't just happen. Aviation The cap to that period was the better schedules and with less risk safety has come a long way, albeit findings of the National Transporta­ today than at any other time in the kicking and scratching, since the FAA tion Safety Board for the years 1980 history of civil aviation. And the was established in 1958. The accident and 1981 that regularly scheduled American civil aviation safety record rate for the 1970s was less than one­ airlines had 39 accidents with no third that of the deaths attributable to flying. There sixties, capping were four deaths, but they were from two decades of accidents that one might have else­ dramatic improve­ where. One was from injuries a flight ments in air safety. attendant suffered from a galley The average U.S. elevator, for example; another was air carrier accident from a passenger falling off the rate per one mil­ boarding ramp to an airliner. lion aircraft miles Another way of looking at it may flown fell from be blatant hyperbole, but it might .033 for 1962-197 l make a point in comparison to auto- "ghost pilot" at the Radar Training to .010 for 1972- Facility at the Aeronautical Center tests 1981. The average the mettle of controller trainees by using a fatal accident rate computer to simulate increasingly heavy air traffic on their radar screens.

33 mobile travel. If all the regularly scheduled airline flights for the period 1972-1981 were combined into the operations of a single aircraft, that aircraft would have flown for 6,895 years.A passenger on it would have died of boredom, if not old age, before he had a fatal accident in 164 years. Although the general aviation The introduction of the Terminal The latest to go through the rigors of safety record has not met agency Control Area at 22 metropolitan FAA 's certificationprocess ending in 1982 expectations, accidents were about 10 airports and Terminal Radar Service were Boeing's medium- and long-range percent lower at the beginning of the Areas at 127 others during the 1970s 757 and 767 widebodies. 1980s than 10 years earlier, and the substantially reduced the risk of fatality rate was down by one-third. midair collisions in terminal areas, as found in FAR Parts 21 and 25 for the Administrator Helms has pledged "to did the introduction of both terminal design, manufacture and maintenanc, put more emphasis on the general and center Conflict Alert. of aircraft. aviation safety program." Safety was also enhanced by Each new generation of aircraft has Overall, the airways are three times increases in system reliability, most featured novel technologies, requiring safer today than when FAA came particularly now with the "Mainte­ FAA to devise ever-more-painstaking into existence, even though domestic nance Concept for the '80s"-which procedures.One of the latest is the and international carriers now trans­ involves the replacement of vacuum use of composite materials in parts of port over five times as many persons tubes with solid-state technology and airplanes and, so far, in one complete and fly 1.6 times as may mjles as in the use of remote maintenance airplane. Composite materials-man­ 1960 and air-taxi operations have monitoring. Another factor was the made fibers bonded in an epoxy resin doubled just since 1966. tightening of regulations for com­ -permit light, rivetless contruction. Technological improvements and muter airlines and air taxis and for FAA's airworthiness standards are automation in air traffic control leased transport aircraft. so rigorous now that FAA officials enabled the agency to keep pace with Flight safety really begins not on say the DC-3-one of the most the burgeoning aviation industry. the runway but on the drawing board successful airplanes of all time-could Automation permitted controllers to at the factory. So A viati on Standards not be type certificated today. The handle a far greater volume of traffic has had the job of ensuring that each prestigious National Research Council than was possible before by being new airplane to roll off the assembly affirmed the soundness of FAA's freed from record keeping and line has met the agency's strict stand­ type certification process following routine communication chores. ards. Since 1958, FAA has subjected the DC-10 disaster in Chicago, when The automation envisioned in the successive generations of jet and it reported that "nothing in the National Airspace System Plan other aircraft to the rigorous criteria course of this study ...would lead promises to further increase controller us to conclude that the confidence productivity by giving more responsi­ gained in the airworthiness of our bility to the computer and upgrading nation's transport aircraft is the controller's job to that of system unwarranted." manager. In the wake of the DC-10 crash, however, FAA moved to strengthen

34 In 1980, Boeing tested this 737 with a graphite-epoxy composite horizontal stabilizer, which weighed 22 percent less than the conventional structure. Boeing pho10 its certification system even further investigated how to prevent crashes flammability of passenger cabin by reorganizing field personnel into and how to increase survivability materials at the same time as reducing "lead regions" for various type when a crash does occur. smoke and the toxic gases that many certifications so as to coalesce the For seven years following the crash of the less-flammable materials agency's expertise. on takeoff of a Lockheed Electra at produce. The agency has taken steps Although FAA's research and Boston's Logan Airport in 1960, to require self-extinguishing development has emphasized FAA conducted bird-ingestion upholstery and better emergency improvements to air traffic control, studies, involving configurations of lighting in aircraft cabins. communications, landing and lighting both birds and engines. The tests Machines and procedures are only systems, the agency has also showed which engine designs could as reliable as the people who use centrifuge out bird remains or resist them, however, and that is why FAA ingestion altogether. is increasingly focusing on human Safety research is ongoing at the Technical Following a survivable crash in factors, whether on the front line of and Aeronautical centers. Here, an escape 1962 in which many persons died the cockpit and the controller's chair -fide and evacuation procedures are tested because they were unable to get out or in general human relations. the Civil Aeromedical Institute. of the plane before the flames The agency has sought to ensure reached them, FAA issued stricter that persons entrusted with the rules for airline emergency-evacuation responsibility for transporting the systems and procedures. Evacuation public and themselves are sound in slides, for one, are repeatedly mind and body. In 1959, FAA scrutinized for improvements in initiated the "Age 60" rule for pilots materials and deployment. Over the and the close inspection of airline years, the agency has looked into crew operations. In 1973, the agency rupture-resistant fuel tanks, substantially increased the proficiency combustion-resistant fuels and, most quirements and minimum flight recently, a fuel additive that may hours for commercial, private and reduce the risk of igniting leaking and student pilots. This summer, FAA misting aviation fuel during a crash proposed to lower the minimum flight landing. time requirements for an instrument FAA has put in years of study, rating to encourage more pilots to much of it in conjunction with the obtain this rating and, thus, cut the National Bureau of Standards, on the number of weather-related accidents. thorny problem of reducing the Most of today's controllers are products of the FAA Academy in Oklahoma City, one of the best technical training institutions in the FAA inspectors discuss engine assembly world. Here, as at the Technical with a Pratt & Whitney designated Center in Atlantic City, N.J., the manufacturer inspection representative for agency has adapted computer FAA at the company's East Hartford, simulation to its ATC training Conn., plant. procedures to expose fledgling controllers to real-time air traffic scenarios, as well as to shakedown

35 The first of a new generation of navaids is this solid-state VORTAC. The only dis­ cernible difference on the building is the built-in ground-check detectors. Photo by Paul B. Southerland equipment, look into the equipment­ where, somehow along the way, today's system may not have been employee interface and help in the something was not done that should dreamed of by the framers of the design of airports and FAA facilities. have been done. It's a personal loss Federal Aviation Act a quarter Training and retraining are for all of us." century ago, like the Constitution, the important aspects of maintaining an As we improve the machines, that act was framed well, with the agency effective work force, particularly as ''somewhere, somehow'' increasingly capable of adapting to the changing automation takes us further from points to human error-to the ability times and continuing to fulfill its hands-on work. We must be sure that or inability of the human to adapt to charter. pilots still know how to fly their the machine or system being used. That, in the words of Administra­ planes and controllers still know how The magnitude of the improvements tor Helms, is " ...to make sure that to separate traffic when the physical to the machines will be in smaller FAA fulfills its function in providing operations are mostly automated. increments, while the problems of transportation to the traveling public During the rigorous questioning understanding the machines and man­ with the sense of confidence that it's that followed the crash of the DC-10 aging them will grow and will become going to be safe and, as near as in Chicago, former Administrator an increasing part of FAA's regula­ possible, that they're going to arrive Bond said, "It's a defeat every time tion and oversight to ensure the on time." an accident of this kind happens. It's safety of the airways. FAA has been doing that better a defeat for the FAA, for the designer Although the complexities of and better for 25 years. • and for the air carrier. . . . Some- -By Joseph Garonzik Photo by Neal Callahan Aeronautical Center Alaskan Region • Norbert Flatow, assistant manager for training at the Washington National • David E. Campbell, manager of the • Bennie L. Hutson, unit supervisor in Airport AF Sector, from the Washington Navaids/Communications Systems the Anchorage Central Maintenance headquarters AF Field Office. Engineering Branch, Maintenance Facility-South Unit, Anchorage Airway • Hector Gonzalez-Sanchez, manager of Engineering Div. Facilities Sector. the Civil Aviation Security Division, from • Clarence L. Finchum, supervisor of the • Paul A. Larson, manager of the Safety the Washington headquarters Aviation Printing Section, Management Services and Standards Branch, Airports Div. Security Division. Division. • Ray E. Marley, assistant manager of the • Robert J. Howard, assistant manager • Byron C. Hood, instructor in the Fairbanks AF Sector, from the Planning/ for training at the New York ARTCC. Special Services Section, Air Traffic Establishment Branch, Airway Facilities • Hugh C. McGinley, manager of the Branch, FAA Academy, from the Great Division. Labor Relations Branch, Personnel Lakes Plans and Programs Branch, Air Management Division. Traffic Div. Central Region • Eugene Metz, supervisor of the Inter­ • Jerry R. Hordinsky, manager of the • William J. Benne, supervisor of the facility/Frequency Management Section, ,eromedical Research Branch, Civil Electronics Engineering Branch, AF Div. Aeromedical Institute. F&E Environmental Communications Section, Establishment Engineering • Warren Lee Morris, manager of the • Charles E. Hough, unit supervisor in Branch, AF Division. Washington headquarters AF Sector Field the Special Services Section. • James L. Doyle, assistant manager for Office, Washington National Airport AF • Sig A. llling, instructor in the Flight training at the Kansas City ARTCC, from Sector. Service Section. the Air Traffic Service. • Oscar F. Nuckols, assistant manager for • Marvin L. Julian, supervisor of the • Duane E. Earl, manager of the Kansas program support in the Norfolk, Va., AF Storage and Distribution Section, Storage City Aeronautical Quality Assurance Field Sector. and Transportation Branch of the FAA Office, Flight Standards Division, from • John Poidomani, supervisory security Depot. the Kansas City GADO. specialist in the Investigations and Internal • Chiquita A. Meier, chief of the • Calvin F. Fields, manager of the Security Branch, Civil Aviation Security Accounting and Analysis Section, Payroll Resource Management Division, from the Division. Branch, Accounting Division. Budget Division. • Albert Sciscione, Jr., manager of the • William M. Pyron, manager of the • Leon Hogan, supervisor of the Special Dulles Airport AF Sector Field Office, Radar Systems Engineering Branch, Projects Section, Establishment Engi­ Baltimore AF Sector, promotion made Maintenance Engineering Division. neering Branch, AF Division. permanent. • Robert D. Stephens, unit supervisor in • Gene T. Schumacher, manager of the • Thomas E. Slocum, unit supervisor in the Inventory Control & Transportation Grand Island, Neb., AF Sector Field the Teterboro, N.J ., Flight Standards Section, Storage and Transportation Office. District Office. Branch, FAA Depot. • Daniel J. Turcovsky, area supervisor at • Nora I. Walkup, supervisor of the Eastern Region the Pittsburgh, Pa., Flight Service Station. Aircraft Examination Section, Aircraft Registration Branch, Airmen and Aircraft • Patrick T. Corkery, unit supervisor in Registry. the Newark, N .J., AF Sector, promotion made permanent. • Calvin S. Fischer, manager of the Baltimore, Md., AF Sector Field Office.

37 For his modification to runway visual range equipment that will save thousands of dollars every year and eliminate failures, Jimmy Wilkinson, staff engineer at the Sacramento, Calif., Airway Facilities Sector, was named national Suggester of the Year. From Western­ Pacific Region Director Mac McClure (right), he received a personal plaque, a perpetual plaque and a letter from Administrator Helms. Photo by Henry Bertuleit

• Francis R. Urbanski, manager of the • Willie F. Card, area supervisor at the • David W. Cain, manager of the White Plains, N.Y., AF Sector Field Boston Logan Tower, from the Greater Program and Planning Branch, AF Office, Newark, N.J., AF Sector, from Pittsburgh, Pa., Tower. Division. the Albany, N.Y., AF Sector. • Robert J. Dame, manager of the • David A. Field, chief of the Standards Great Lakes Region National Flight Procedures Review Section, Safety and Standards Branch, Branch, Flight Standards Division, from Airports Division. Washington headquarters Fleet Manage­ Joseph Bloch, Preston C. Gardner, Jr., • manager of the ment Branch, Office of Flight Operations. • supervisory Maintenance Branch, Flight Standards airspace system inspection pilot, Flight Div., from the Ypsilanti, Mich., ACDO. • Derwin R. Hammond, manager of the Inspection and Procedures Staff, Flight Portland, Maine, Tower, from the Standards Division. Teddy W. Burcham, • deputy manager of Alaskan Region Airspace & Procedures the Air Traffic Division. James R. Lockhart, Branch. • manager of the Logistics Division, from the AF Div. • Eugene J. Hall, manager of the • Ronald E. Johnston, area manager at Carbondale, Ill., Tower, from the Lewis E. Sparkman, the Bradley Field Tower, Windsor Locks, • supervisor of the Evansville, Ind., Tower. Conn. Technical Support Section, Maintenance Operations Branch, AF Division, from the • Jack L. Keehn, assistant manager of the • Kermit L. Wieselquist, assistant Seattle AF Sector. Cleveland Hopkins (Ohio) Tower. manager of the Airway Facilities Div., • Robert L. Wheeler, area supervisor at Arnold E. Miller, from the Flight Standards Division. • area supervisor at the the Denver Tower. Evansville Tower, from the Indianapolis, Ind., Tower. Northwest Mountain Region Southern Region • Terence E. Miller, area supervisor at the Moline, Ill., Tower, from the Chicago • Walter G. Allard, manager of the • Jerry C. Baker, manager of the Benson, O'Hare Tower. Cedar City, Utah, AF Sector Field Office, N.C., AF Sector Field Office of the Salt Lake City AF Sector. Raleigh, N.C., AF Sector, from the Pico Darrel L. Pittman, • area supervisor at Del Este, Puerto Rico, AF Sector Field the Kalamazoo, Mich., Tower, from the • Donavon C. Arneson, area supervisor Office. Bismarck, N.D., Tower. at the Colorado Springs, Colo., Tower. • Drummond J. Brown, assistant • Terry C. Riggs, area supervisor at the • Ronald F. Bernstein, manager of the manager for technical support in the Port Columbus, Ohio, Tower, from the Seattle, Wash., Flight Standards District Charlotte, N.C., AF Sector, from the Flint, Mich., Tower. Office, from the Operations Branch, Flight Standards Division. Greer, S.C., AF Sector. • Bruce E. Wagoner, manager of the • Victor C. Byrd, manager of the Flint Tower, from the Air Traffic • James H. Birchfield, engineering Montgomery, Ala., Flight Service Station, Operations Branch, Air Traffic Division. equipment operator foreman in the Denver, Colo., Field Maintenance Party, from the Tri-City FSS, Bristol, Tenn. MetropolitanWashington Airports from the Dallas, Ore., Field Working • Joe R. Carter, assistant manager of the Group. Charlotte Tower, from the Myrtle Beach, • Kenneth C. Jacobs, manager of the • James D. Bishop, supervisor of the S.C., AFB. Engineering Branch, Engineering and F&E Program Section, Program and • Bryant M. Chestnutt, assistant manager Maintenance Division. Planning Branch, AF Division. of the Miami, Fla., Flight Standards District Office, from the Atlanta, Ga., New England Region ACDO. • Raymond J. Borowski, manager of the • Sanford S. Minchew, chief of the Radar New York Aircraft Certification Office. Unit at the Covington, Ky., AF Sector, from the San Juan, P.R., Sector.

38 • Randy D. O'Neal, unit supervisor in the • Martin Holtz, manager of the Systems • Richard E. Livingston, Jr., rotorcraft Savannah, Ga., AF Sector Field Office, Requirement Branch, ATC Systems programs officer, Rotorcraft Program Columbia, S.C., AF Sector, from the Technology Division. Office. Memphis, Tenn., Hub AF Sector. • John B. Young II, supervisor of the • Michael D. Zywokarte, manager of the • Roy C. Pace, manager of the Alma, Building Management Section, Plant Research & Development, Medical & Ga., FSS, from the Albany, Ga., FSS. Operation & Maintenance Branch, Security Div., Office of the Budget. Facilities Division. • A.L. Ross, unit supervisor at the Atlanta, Ga., ARTCC AF Sector. Western-Pacific Region • Louis Ruiz, Jr., operations officer at • Sheryl D. Becker, manager of the the Miami International Flight Service Hawthorne, Calif., Tower, from the Station, from the Dyersburg, Tenn., FSS. Santa Monica, Calif., Tower. • David E. Vergason, manager of the • Frederick E. Brandt III, area supervisor Sarasota, Fla., Tower, from the Tampa, at the Oakland, Calif., ARTCC. Fla., Tower. • Thomas E. Carman, area supervisor at • Bernard W. Wenning, programs officer the Hayward, Calif., Tower, from the at the Charlotte Tower. Oakland Tower. • Herman E. Williams, manager of the • Dean C. Deshazo, manager of the Las Knoxville, Tenn., AF Sector Field Office, Robin J. Masek (right), electronics Vegas, Nev., AF Sector, from the Reno, Covington, Ky., AF Sector. engineer received a giant facsimile of a Nev., AF Sector. $3,965 check from Alaskan Region • Raymond Ybarra, FAA representative Director Frank Cunningham for a • Norman D. Doetsch, area supervisor at in Rio de Janeiro, Brazil, from the suggestion that will save FAA at least the Phoenix, Ariz., TRACON. Jacksonville, Fla., Tower. $153,000. Masek recommended a $50 • Jerome R. Egan, area supervisor at the radar antenna support beam as a Oakland Tower, promotion made Southwest Region substitute for a commercially priced permanent. support of $7,000. • Raymond C. Hollemon, assistant • Ronald D. Gerber, area supervisor at manager for training at the Dallas-Fort the Santa Monica Tower, from the Worth, Tex., Tower. Burbank, Calif., Tower. Washington Headquarters • Louis E. Moss, unit supervisor in the • Susan M. Gygax, supervisory operating Houston, Tex., ARTCC AF Sector. • Bernard M. Batchelder, assistant accountant, Accounting Operations & Analysis Branch, Accounting Division, • area supervisor at the manager of the General Aviation & Ronald E. Noe, promotion made permanent. Brownsville, Tex., Tower, from the Commercial Div., Office of Flight Operations. Parkersburg, W. Va., Tower. • Gilbert E. McCoy, area manager at the Honolulu, Hawaii, Tower, from the • area supervisor at • Ralph A. Cooper, manager of the Plans Rosendo A. Vasquez, Honolulu ARTCC. the El Paso, Tex., Flight Service Station, Branch, System Programs Div., Air from the Dallas FSS. Traffic Service, promotion made permanent. • Marianne Sommer, administrative officer, Sacramento, Calif., General Technical Center Aviation District Office. • Francis T. Torikai, area supervisor at • Theodore J. Bolich, supervisor of the the Honolulu ARTCC, from the Air Printing Section, Graphic Arts Branch, Traffic Branch, FAA Academy. :ommunications Resource Staff.

39 DOT Secretary Elizabeth Dole checks out Boston's Logan International Airport looks on. She toured the facility for the local traffic with binoculars at Tower, as assistant controller Gary Layne National Transportation Week in May. Wide World Photos

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