Preventing Vehicle-Aircraft Incidents During Winter Operations and Periods of Low Visibility (2008)

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Survey respondents were asked to identify the kind of problems they have encountered at airports relative to reduced visibil- ity, seeing where they are on the airport, or the difficulties in navigating on the airfield when engaged in snow plowing, brooming, deicing, or other winter operations. They were then asked to identify how they solved the problems. Their responses as noted here provide insight into the varied oper- ations of different-sized airports and their organizational structure and resources. The synthesis questionnaire asked about the use of outside contractors for snow removal operations. A few replied that they did use contractors and, if they were used, they were restricted primarily to landside purposes only (the plowing of access roads, parking lots, etc.). However, the larger airports may allow or require their tenants to be responsible for snow removal on their leased areas for which the airlines or FBO may contract with snow removal contractors needing access to the airfield. This can pose a problem of access control and safety. The few airports that did use contractors on the airfield side generally restricted them to the ramps and other non- movement areas. These operations can cause an incursion or incident. To assist in preventing such occurrences, a number of methods and techniques are used. Proper training of contractor personnel in pavement markings, signage, and operational constraints is key. A good practice is to include contractors in the preseason and post-snow event briefings. Several air- ports made it a point to close the area being worked on through the NOTAM system. One airport outlines its ramp area in red lights to distinguish it from the blue lights associated with taxiways. A number of airports provide a dedicated opera- tions or maintenance employee to oversee the contractor operation. The airport monitors or escorts will park at the boundary of the movement and non-movement areas to act as a physical reminder of the demarcation. As mentioned in previous chapters, all snow events present some measure of degradation in visibility and SA. Blowing snow, whiteout and blizzard conditions, blowing sand, heavy fog and precipitation, equipment blocking line of sight, and vehicle blind spots were all factors cited by operators as affect- ing visibility. Outside the vehicle, the accumulation of snow or snow banks obscuring signs and lighting is a major issue. Several airports reported that excessive vehicle speed was a cause of an accident and incursion on their airport. 38 An interview with the driver of one incident indicated that he was going fast because of the pressure to get the movement area cleared for a scheduled flight. Higher vehicle speeds decrease driver reaction time and increase braking distances, which accounts for one incident where the driver entered a runway from an intersecting runway because he was going so fast as to not brake in time. Different airport operators said the key to not having an incident, incursion, or collision with another vehicle is to simply slow down the operation as vis- ibility decreases. Maintaining proper distance from other vehicles was important and adding lighting on the rear of vehicles has helped. If the visibility gets too poor, several airports stated that their policy is to stop snow removal operations until condi- tions improve. Others had specific limits for stopping, such as at 300 or 600 ft RVR. When encountering a whiteout or pass- ing squall condition, one airport’s practice is to stop and stay in position until it has passed. This requires good communi- cation with other vehicles and with ATCT, if in operation. • “Pull the operators off in low visibility—manage the risk.” • “We lead our snow teams with our most experienced operations staff. Most of these staff have over 20+ years working on the airfield, and they always know where they are. We also have the latest equipment with our runway snow teams. These vehicles are lit up like a winter holiday, and are easily seen in poor visibility conditions. They also have the best deicing capabilities like heated windshields, etc.” AVOIDING OR PREVENTING INCURSIONS A survey question asked about the practices, procedures, methods, or techniques used at the airport for avoiding or preventing the incursion of vehicles on active and/or cross- wind runways. The responses to the question are related somewhat to the category and staffing of the airport, but more so to its philosophy of operation. Either the airport philoso- phy centered on maintaining an active runway for aircraft operations during snow removal activity, or closing the run- way for snow and ice removal activity. The different philoso- phies represent different approaches to managing risk and the different benefits that may be derived from that choice. The most frequent procedure mentioned by respondents was close coordination between the snow crews and ATCT CHAPTER NINE OPERATIONAL FACTORS

39 or pilots, primarily through the use of one point of contact. Typical responses were as follows: • “One person in charge.” • “Single command vehicle for ATCT communication.” • “Groups of vehicles under one call sign.” • “A dedicated Ops Manager works directly with the run- way snow team. The Ops Manager is in direct contact with the tower at all times; the snow team moves with close coordination with the tower.” • “Snowboss is responsible for advising drivers when air- craft are taxiing and their current location and heading.” Another common response from airports with an ATCT was for all vehicles to monitor ground frequency. This com- ment came from airports that used the team approach to snow removal, where the team lead vehicle had responsibility for communicating with ATCT and the other vehicles just lis- tened. One airport without an ATCT indicated it had one vehicle operator monitor approach control, another operator monitor CTAF, a third monitor unicom, while all vehicles monitor a common second maintenance radio frequency to share information. However, not all airports have sufficient staff and well-equipped vehicles (usually general aviation and small commercial service airports). Relying on equip- ment or personnel from supporting departments may present a problem due to lack of airport operational familiarity and training. Several airports made it clear that they always close a runway when conducting winter snow removal operations on it. Although the category of airport that practiced this phi- losophy varied from non-hub to large-hub airports, it was more likely that this practice was employed at medium- to large-hub airports because they could continue aircraft oper- ations on one runway while focusing their resources on the other runways. The economics of the decision involved in closing a runway requires balancing the heavy demands for continuous operation with the efficiency of clearing a run- way and taxiway system. • Sample Large-Hub Airport Response: “The airport always closes runways for snow and ice control, even when taking sanders down the middle of the runway for a 5-min operation.” • Sample Medium-Hub Airport Response: “At our airport we only have equipment on a runway that isn’t closed when we are applying sand to bring up the friction ratings. When we receive a pilot report that the braking action has deteriorated, we take a Field Maintenance supervi- sor’s vehicle along with an Operation’s vehicle out to the affected runway to accompany the sand trucks for their applications. Usually the Field Maintenance supervisor will lead the sand trucks and the operations vehicle will bring up the rear to ensure that all vehicles are clear of the runway after application, and to check to see if the friction values have improved. All coordination via radio transmissions are performed with the ATCT supervisor working with our crews on our airport’s UHF frequency. This allows our snow removal crews to listen to one radio, avoiding VHF frequency, and ensures the super- visors and work force personnel are all on the same page with ATC.” Some airport operators choose to conduct snow removal operations on the runway without closing it (56). This type of airport operation was more prevalent at airports having only one primary runway that had to be kept open or airports hav- ing very little traffic such that snow removal crews could operate without interruption for long periods of time. • Sample Response: “Coordinate with ATCT between arrivals, snow supervisor confirms with equipment oper- ator that they are on the runway.” Conducting snow removal operations with an operating ATCT requires close coordination and excellent communi- cation. Close coordination, which would be spelled out in an LOA, requires a good working relationship with ATCT personnel. Lacking a good and trusting relationship, either party may feel uncomfortable conducting winter operations while the runway is still open. • Sample Medium-Hub Airport Response: “We have two parallel runways here that intersect with our crosswind runway. Whenever we have to cross any of the active runway intersections with our snow removal crews, the Operation’s duty manager is the person that requests all crossings with the ATC supervisor. Again, Field Main- tenance supervisor’s vehicle is in the lead, and the Operation’s vehicle brings up the rear, and reports to the ATC supervisor when all vehicles are clear of a par- ticular intersection. This system has worked very well for us for many snow removal seasons.” • Sample Non-Hub Airport Response: “Close coordina- tion with ATCT. Status review by snow removal team supervisor. Constant monitoring of ATCT frequency by all snow removal operators.” • Sample General Aviation Airport Response: “Conduct- ing snow removal on the runway between operations is a frequent occurrence at our airport given the amount of traffic we experience (a busy GA airport). During snow removal, we typically have six Maintenance personnel on duty responsible for plowing, and one Operations person that acts as the ‘Snowboss.’ One of the main responsibilities of the Snowboss is to coordinate all movement of the plows on the movement area with the ATCT and act as a single point of contact between the ATCT and plows.” One airport specifically remarked in their survey response that they had experienced several situations during winter oper- ations when ATCT forgot they were on the field and approved an aircraft operation for the area they were working in. Two

non-hub airports, attempting to enhance SA, provided a poster-size layout of the airport, covered it with laminate, and placed it in the ATCT for use by the controllers. The idea is for the controller to use erasable markers to identify those areas where snow removal equipment is operating or where a movement area is closed. This acts as a quick visual reminder to the ATCT controller. Two other large-hub airports enhance SA by stationing an operations manager in the ATCT to better facilitate commu- nication with the equipment operators and tower personnel. This arrangement is somewhat unique in that many ATCT facilities do not allow anyone other than FAA employees in the tower cab. However, with the nature of operations at these particular airports, which is to routinely open and close airport sections and to have teams of snow removal vehicles engaged in winter operations, the practice proves to be valuable in increasing alertness, coordination, and communication. ENSURING VEHICLES ARE CLEAR OF A RUNWAY A question on the synthesis survey asked vehicle operators to describe some of the practices, procedures, methods, or tech- niques used at their airport for assuring all winter operation vehicles were clear of a runway or a particular area when opening the runway to air traffic. • The typical response – Airport operations visually inspects to make sure vehi- cles are clear of runways. – Visual inspections by the person who’s opening it. • Sample Large-Hub Airport Response – “Smaller tightly controlled teams of drivers and equip- ment. Two crew leads for Maintenance personnel. On Runway and Taxiway, Onsite Ops Duty Manager coordinating opening/closures with FAA Tower. All vehicles have two-way radio communication with Leads and Ops personnel. Leads and Ops personnel have additional communication with FAA Tower.” – “The airfield snow team has three sets of eyes and vehicles watching them, the Team Leader, the Oper- ations Officer assigned to the team, and a follow-up vehicle that works very close with the team leader. The follow-up vehicle operator is watching how the team is cleaning the area as well as calls when the team is clear of runways and taxiways.” • Sample Medium-Hub Airport Response – “Our standard procedures are to close the crosswind runway during periods of snowfall. We also task our duty manager with the responsibility of doing a final inspection after snow vehicles are clear of the runway. This ensures that the pavement is in an acceptable condition and that all vehicles are clear of the runway and there is no debris on the pavement. Only after the inspection is complete and the runway certified is the pavement given back to the ATCT for use.” 40 – “All vehicles are accounted for before opening a run- way by Maintenance leads and Ops Duty personnel on the runway.” • Sample Small-Hub Airport Response – “Third party (ops) does a final check to make sure snow removal equipment is clear.” – “Operations is last to clear the runway after snow crews.” – “Primary practice is for crew lead to have overall responsibility for tracking staff/equipment and reports when all clear. ATCT verifies, Ops verifies.” • Sample Non-Hub Airport Responses – “Written policy—vehicles work in company teams, each team leader is responsible to ensure his com- pany is clear and to report clear to ground control.” – “Previous experience at nontowered airport . . . all monitor CTAF (only one crew leader communi- cates with aircraft). Crew leader makes assignments and tracks progress. Crew leader verifies all clear and reports same to aircraft. Directs staff on/off the runway.” – “If the ATCT is open, they clear vehicles over the frequency; if ATCT is closed, airport operations issues a NOTAM requiring 15 min prior permission for landing/takeoffs and controls all vehicles on CTAF.” – “A dedicated Ops Manager works directly with the runway snow team. This Ops Manager is in direct contact with the tower at all times, the snow team moves in close coordination with the tower.” • Sample General Aviation Airport Response – “When ATCT needs equipment to clear the runway for an operation, the ATCT notifies the Snowboss via the tower frequency. The Snowboss then notifies all plows via an 800 mhz radio system. As each plow clears the runway, they report clear to the Snowboss via the 800 mhz radio. Once the Snowboss has noted all equipment clear of the runway, he or she advises the ATCT via the tower frequency.” Two airports indicated they conduct their winter opera- tions as if they were emergency situations and they utilize an Incident Command System (ICS) similar to their emergency plan operation: • “[We] work an Incident Command System for snow removal operations.” • “During a snow event, airport operations activates our snow desk which is an old ATC tower overlooking the eastside of our airfield. It will be manned 24/7 until the storm passes and proper removal is completed for safe traffic. Operations manager and/or officers oversee maintenance or outside contractors during process. We communicate on an assigned radio channel to mon- itor all movement and progress. Once a movement area is clear for traffic, ops will then coordinate with ATC for opening.”

41 Some airport snow crews rely on each other, as follows: • “Buddy system.” • “Drivers assist each other by advising each other if they are too close to the edge of pavement, if pavement fric- tion is poor, etc.” • “Constant monitoring and communication on the radio assists to avoid an incursion. Each vehicle operator maintains his own responsibility to clear on and off the runway. The operators also try to remind each other.” • “We have the ATCT dim the lights after an arrival/ departure or we click it down manually. Also we have the drivers look out for one another; if they see some- one starting to drift or go too far off the pavement they will check to make sure that person is okay and awake and make sure that person knows where he or she is.” • “Looking out for one another (e.g., reminding of hold instructions).” The questionnaire responses suggest that it is at the smaller non-hub and general aviation airports where the latter responses—looking out for one another—occur. This is due, in part, to fewer vehicles and drivers involved in the snow removal effort and the speed at which those vehicles operate. It may appear more efficient for the smaller crews to work somewhat independent of each other, rather than as one tightly controlled group. DRIVER TRAINING Training of vehicle operators was a positive factor empha- sized by a number of airports as a solution to the problem of runway incursions. One part of the questionnaire asked respondents to identify what type of snow removal operations training is conducted at their airport. The responses were wide- ranging. Most airports referenced the requirement under 14 CFR Part 139 for operator training before gaining access to the movement and safety areas of the airport, which does not specifically reference snow removal operating conditions. As indicated by most responders, the type of training con- ducted consisted of primarily classroom instruction. A common problem stated by operators as affecting oper- ations is a driver’s lack of familiarity with the airport: • “Personnel not completely trained in equipment opera- tion, snow removal game plan procedure, which may vary by storm occurrence, time of day, etc.” • “Ninety percent of our operators are plumbers, electri- cians, carpenters, office workers, and A/C mechanics that don’t have experience on the airfield layout and need to be directed to the area that needs to be cleaned.” The solution rests with the airport through proper training. Sections 139.303(a) and (b) of 14 CFR Part 139 tie together the requirement for airport operators to provide sufficient, qualified staff and to equip those employees with adequate resources to comply with the regulations. Airports governed by Part 139 meet the requirement by providing the requisite training, though quality can fluctuate greatly between airports. The requirements for ground vehicle operator training under Part 139.329 are targeted toward preventing or restrict- ing vehicle access to the airport movement areas. Training requirements for those authorized to operate on the runways and taxiways consist of using proper radio communication, understanding signs and markings, and controlling access. Advisory Circular 150/5210-20, Ground Vehicle Operations on Airports, provides guidance to airport operators in devel- oping training programs for safe ground vehicle operations and pedestrian control on the airside of an airport (3). The advisory circular does not go into detail on the special cir- cumstances encountered during winter snow and ice opera- tions. For all airports, certificated or not under Part 139, the FAA has issued Advisory Circular 150/5200-30, Airport Winter Safety and Operations, which provides guidance to airport operators as to how to establish an SICP that better addresses the need for training and procedures to prevent incursions (12). An SICP is required of airports certificated under 14 CFR Part 139. Training of personnel engaged in snow removal operations is a required part of an SICP. In this regard, the airport is to assess whether they are staffed adequately with qualified personnel, have a training program that adequately tracks test records and development of those personnel, and ensures all storm crews have received training on the SICP and trained on new equipment. Additionally, as it relates to potential runway incursion activities, the SICP is to address how snow crews ensure markings, signs, and lighting systems are legible/visible after clearing operations, and establish procedures in case of airfield accidents involving snow clear- ing crews, aircraft, or other airport vehicles. The airport SICP is to also provide specific procedures for those periods when the ATCT is closed, or for airports that do not have an ATCT (non-towered airport). Additionally, the SICP should contain specific procedures for the following: • Unexpected situations, such as when whiteout conditions occur while snow-clearing crews occupy the runways. • Addressing the possibility for a runway incursion after the runway reopens as a result of runway snow removal operations covering taxiway signs with plowed snow, covering taxiway or runway lights, blocking of pilot or vehicle operator line of sight, or similar operational considerations. • Procedures requiring continuous coordination among the clearing crew and the snow control center (SCC) or FSS or ATCT facility to ensure the equipment operators on runways are aware of their surroundings. • Training in proper radio communications and for when radio communication is lost between crews or when a single driver loses the radio signal.

Based on survey responses, the primary method of training personnel for snow removal operations is conducted as part of the normal ground vehicle operations training, which involves primarily classroom training. Targeted winter operations training is more likely to occur at airports with multi-crew teams. In training new or inexperienced vehicle operators, on-the-job or hands-on training is the more common method. The majority of training is conducted in-house. Survey respondents identified the maintenance supervisor or airport operations director as a key individual providing the training. In developing the team concept, however, one airport cited that all members of the maintenance and opera- tions staff are involved in the process. In conducting dry runs or hands-on training, pairing a new or inexperienced driver with a qualified veteran or experienced driver is a prevalent practice, followed by an assessment from the maintenance or operations director. Practice dry runs would occur in the fall prior to winter conditions and consist of driving in formation, working the ends and the intersections of runways and taxi- ways, making radio calls, and gaining familiarity with equip- ment controls and operation. One airport identified the importance of conducting some of the on-the-job-training or dry run training at night, since that is when the majority of snow removal operations occur at that particular airport. Another airport requires the snow removal crews to read the snow plan, read the owner’s man- ual for each piece of equipment, and get hands-on training from a foreman. The following comment highlights a practice that several airports perform: New employees are given both classroom and hands-on training. [We] conduct an annual preseason review of snow removal oper- ations. [We] review snow removal operations after an event. [We] conduct a post-season review of operations. That is, they conduct orientation training, then a special win- ter preseason training and education session per their SICP, and reinforce all learning by having a debriefing session after each snow event. Other organizational and motivational factors that result in a high performance operation are noted in the following statement from a survey respondent: Training, experience, and strict adherence to procedures and pro- tocols improve performance. Crew members “graduate” to the runway snow removal team. One area to note is that there is very little staff turnover. Operators stay until retirement, which results in a very experienced work force. Loyalty is established by fair compensation, excellent equipment and facilities, and input into operational decisions. Equipment procurement and hiring is not encumbered with political undertones. The U.S. Air Force provides an outline for training of snow crews in their Air Force Instruction 32-1002, Snow and Ice Control (57). 42 Readying the Snow Team: 3. Training. Give higher priority to training after winters with below-average snowfall. Provide: 3.1. Formal classroom lectures, training films, and discus- sion periods. 3.2. Ensure operator hands-on training for all snow and ice control equipment. Perform practice runs with the equipment using typical operation scenarios. Substi- tute water for liquid deicers to reproduce realistic operations. 3.3. Furnish formal instruction on effective and efficient anti-icing and deicing with minimal chemical use. Instruction must cover chemical usage issues, includ- ing P2/BMPs, environmental impact, and impact on aircraft, weapon systems, and airfield infrastructure. 3.4. Tabletop exercises using miniature equipment on air- drome layouts to simulate operations and to reduce training costs. 3.5. Operator maintenance responsibilities, including fuel, fluid, supply locations, repair techniques, and heavy equipment maintenance reporting procedures. 3.6. Instruct the operators on communication procedures and right-of-way information. 3.7. Details of the SICP, emphasizing the order of priorities. 3.8. An airfield and base familiarization tour highlighting locations where problems are likely. Conduct a night tour for night shift employees. 3.9. Duty location, duty hours, duty uniform, shift sched- ules, and notification procedures. 3.10. Allow for periodic attendance at technology sharing seminars and workshops with other military bases and governmental agencies (i.e., the snow symposium in Buffalo, New York). 5.1. Implementing Lessons Learned. The Operations Flight Chief reviews the activity logs at the end of the snow season, determines the problems and successes, and incorporates improvements into the revision of the SICP. Use P2/BMPs proactively to minimize or elim- inate problems. Begin preparing for the next snow removal season at the end of the current season. Training of vehicle operators was a positive factor empha- sized by a number of respondents as a solution to the prob- lem of runway incursions. DRIVER TRAINING TECHNOLOGY The FAA has issued Certalert 02-05, Driver Training Sim- ulators, in which they inform the airport community of the existence of driver-training simulators (58). Simulators allow for in-house training that otherwise would require actually operating on the movement areas. They have been found to be effective in developing behaviors that can be transferred to the actual vehicle operation (59). Current state-of-the-art vehicle simulator technology enables train- ing in situation awareness, risk analysis and decision making, emergency reaction and avoidance procedures, and conscientious equipment operation. There are two types of simulators: mobile and stationary. Both have advantages and disadvantages. Several airports have purchased full-scale driver simula- tion technology for use in training their employees. The sim- ulators are used for the training of personnel with access to

43 the movement areas of the airport. In particular, the simulator at Minneapolis–St. Paul International Airport uses computer- aided design drawings, geographic information systems data, and satellite and other images to create a virtual world of the airport and everything on the airfield. The technology used in the system is able to simulate many different condi- tions at the airport, including night, day, low visibility, snow, rain, fog, rough terrain, and other features to give trainees the most realistic conditions possible. Other large airports have acquired similar technology, primarily for instruction in ARFF capabilities, but they are adaptable to snow activity as well. The cost of full-scale driving simulators point toward only limited use at those airports having the financial capability to acquire them, as costs can range from $200,000 to $800,000. For airports that do not have similar capability or do not want to make the investment in a customized driver training simu- lator, there are nonproprietary or generic systems that can be used to help develop basic driving skills, SA, and radio com- munication techniques. Several truck manufacturers have simulators, including portable ones, for training an operator on their equipment. Another option is to acquire customized airport-specific desktop computer or video projection capa- bility. A number of medium- to small-hub airports in the United States utilize this type of technology. The FAA has coordinated research efforts to provide a low-cost option by funding the use of a PlayStation 2 video game as a platform for adapting software to reflect the Richmond International Airport in Virginia (60). Snow removal driver training through the use of simulation technology is evolving and is an area of further research, study, and development by the industry and the government. SUMMARY Chapter nine conveys survey respondent’s replies as to how they resolved operational problems encountered at airports rel- ative to reduced visibility, seeing where they are on the airport, or the difficulties in navigating on the airfield when engaged in snow plowing, brooming, deicing, or other winter operations. Their responses provided insight into the varied operations of different-sized airports and their organizational structure and resources. The variety is explained as being related to the phi- losophy of operation each airport had: either the airport phi- losophy centered on maintaining an active runway for aircraft operations during snow removal activity, or closing the run- way for snow and ice removal activity. The different philoso- phies represent different approaches to managing risk and the different benefits that may be derived from that choice. Some airport operators always close the runway while snow removal operations are being conducted, while other airports conduct snow and ice removal operations on an active run- way in close coordination with ATCT. Close coordination is normally spelled out in an LOA, and requires a good work- ing and trusting relationship with ATCT personnel. Practices are described in this chapter as to how airport maintenance or operations departments can ensure all vehi- cles have exited the runway prior to allowing aircraft on it. The most common method was for an operation or mainte- nance supervisor to perform a runway sweep. Lastly, snow removal driver training is discussed along with new simula- tion technology that is available. This study determined that winter operations training of most airport employees is accom- plished by airport supervisors.