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26 To implement ACDM either as a leader or partner, airports will be required to commit finan- cial and staff resources to the effort. ACDM is also a process that may require expanded com- munications and enhanced communications/outreach programs. Thus, it is desirable for the airport to assign specific staff to lead and track ACDM activities. During the implementation of ACDM it is important that airport staff understands manage- mentâs goals and objectives and the airportâs commitment to ACDM. Not unlike most complex programs and efforts, such as the implementation of Safety Management Systems (SMSs), ACDM is a change in the way airports do business and will require staff training to assure effectiveness. In other words, airport staff will need to be trained on ACDM background and procedures before it can successfully be deployed. This chapter covers the phases of implementing ACDM. The initial ACDM implementation should address a single project or idea. Because forecasting the benefits and understanding the costs of a potential project are so critical to its success, they are treated separately in Chapter 6. This allows scalability of the effort, promotes learning and proper techniques, and in general, allows ACDM implementation with minimal interference to normal job function. Appendix B provides worksheets for ACDM implementation. Problem Identification Implementation of ACDM begins when an operational problem or issue is identified; ACDM can also be used to address problems proactively, i.e., before they exist. For example, hazmat or security issues are addressed much more effectively when a plan exists to address such issues. Diversion recovery and notification can be planned in the same manner. Step One. The airport work unit responsible for implementing ACDM identifies the issue(s) that could potentially arise and that ACDM could address. This list of issues will help identify which stakeholders need to be included in the ACDM process, (see Appendix B for a checklist). When developing the list of participants, everyone who could possibly be impacted should be included. The following are real-life examples of the need for ACDM-type inclusion. ⢠An airport desired to implement Area Navigation (RNAV) Standard Instrument Departures (SIDs). They established an operational technical group that included air traffic controllers, pilots, avionics experts, etc., to develop the procedures. The implementation group did not include extensive community outreach beyond those noise-sensitive communities immedi- ately adjacent to the airport. The procedures would change the aircraft flight tracks, so addi- tional communities not adjacent to the airport were, for the first time, going to experience aircraft flying over their communities. Even though the noise generated by the new flight C H A P T E R 4 Implementing CDM at Airports AIRPORTFAA OPERATORS
Implementing CDM at Airports 27 tracks was considerably below any threshold, the lack of information to these communities created problems. ⢠An airport planned for complete reconstruction for a runway and parallel taxiway that would result in significantly reduced airport capacity for a lengthy period of time. The air- port held a meeting with all airport stakeholders and ATC. During this meeting an attendee suggested that the taxiway be rebuilt first and that it be rebuilt to a runway standard where smaller aircraft could utilize it for arrivals and departures while the main runway was closed. The idea was researched and adopted, thus mitigating a considerable portion of the reduced capacity. ⢠An airport planned to rebuild a runway. The only access to this runway was across active taxi- ways, which meant that construction vehicles would require access across the active taxiways. The construction contractor and airport operator developed a method to utilize the active taxiways in a specific manner that included identifying flights with color coding so that the vehicle control point knew when to safely cross the active taxiway. As part of the problem identification, ACDM meetings should be held to ensure complete problem identification and inclusion of all appropriate stakeholders. From past ACDM-like implementations and trials, including European ACDM, the two most important factors are meeting regularly and inclusion of all potentially affected parties. When the PANYNJ imple- mented their departure metering control at JFK, they sought advice from ACDM participants both in the United States and Europe. Further information on the details of the JFK implemen- tation is available in Appendix C. The advice given was to âmeet, meet again, and meet some more.â The best plans include all viewpoints. Meetings also ensure peer pressure accountability for conformance to the plan. The introductory steps are as follows: 1. Identify the issue or planning desired and the impact. 2. Identify relevant stakeholders, hold an informational meeting to state the problem(s), and gather input from all stakeholders. A thorough record of participation should be kept (see Appendix B). 3. Make sure that the meeting is all-inclusive. Developing the ACDM Approach Step Two. Identify what historical and real-time data information is needed to develop and implement the plan. For example, the FAA/Industry CDM program participants determined that certain information was needed to address the issue at hand. The participants identified the information needed and worked together to provide that information, and the leadership of the group was not solely responsible for procuring the information. Then tools were developed to efficiently present that information in a useful manner. The ACDM participants could use many of the capabilities of tools developed by the FAA/Industry CDM program. All major operators at an airport plus NBAA are FAA/Industry CDM members and thus have knowledge of these tools and their function. Using these experienced resources that have knowledge concerning these capabilities is a valuable asset to the ACDM community. Some examples of relevant tools or collaboration mechanisms are listed herein. The actual name of the tool is only listed for reference; it is the capability of the tool that is relevant. 1. Traditional CDM Tools a. Flight Schedule Monitor (FSM) (to depict real-time airport demand and delay data) b. Diversion Recovery Page (for illustrating diversion information) c. CTOP (to view routing options for least delay)
28 Guidebook for Advancing Collaborative Decision Making (CDM) at Airports d. Aircraft Situation Display for Industry (ASDI) (a real-time display of active flight position to enhance situational awareness) e. Aggregate Demand List (ADL) (to provide real-time lists of arrival and departure demand that reflects all amendments by users and FAA ATC entities). 2. FAA Tools a. The FAA is distributing the Volpe Surface Viewer to several airport ATC facilities. This viewer displays the real-time position of all aircraft on the airport Movement Area. It is intended for air traffic only, but may possibly be made available in the future. b. Airports that can obtain access to CDM tools or SWIM can and have contracted and created another avenue to provide situational awareness with a surface viewer to opera- tional entities at an airport. Figure 6 depicts the site locations where surface surveillance of Movement Area and some adjacent Non-Movement Area is available via SWIM as of May 2014. c. The FAA has an extensive series of preferred departure routes from a busy metropolitan area. In New York, the local airport users association obtained these routes from the FAA and distributed these routes to their users, thereby greatly increasing route conformance when flight planning. d. For airports that operate or have contract ramp towers, FAA traffic management restric- tions would be an asset in determining movement priority in order to complement the ATCT operation. 3. Weather Tools a. Integrated Weather System (ITWS) is a tool that combines several weather products into an airport area display that depicts severe weather location, direction, and speed of movement. Figure 6. FAA surface surveillance locations available via SWIM (FAA 2014b).
Implementing CDM at Airports 29 b. Low Level Wind Shear Advisory System (LLWAS) detects wind shear around the airport with multiple sensors. c. Corridor Integrated Weather System (CIWS) combines several ITWS outputs into a single display for a broad geographic area view of severe weather. d. Lightning Detection 4. Regional Tools and Concepts a. SEADOG (Southeast Airports Disaster Operations Group) and WESTDOG (Western Air- ports Disaster Operations Group) are collaborations of regional airports to coordinate fast responses to specific operational and logistical needs such as flight diversion alerts, hurricanes, and associated storm activity. 5. Mechanisms for Data Exchange a. SWIM/FAA Tech Center is used to promote collaboration the FAA has established with SWIM and distributes it through the National Enterprise Gateway System (NEGS). An airport would make application for access via the NEGS on FAA Form 1200-5, NAS Data Release Request. b. AOCnet (Airline Operations Center CDM Network) is the CDM network that distributes the FAA/Industry CDM Tools listed in item #1. It is only available to CDM members, but as noted herein may become available to airports. While access to these tools and their information may be currently restricted, there are excep- tions to these restrictions, and participants in ACDM, especially the flight operators and ATC, may be able to facilitate these exceptions. The RTCA NextGen Implementation Surface work- group, an important FAA/Industry advisory panel, formulated a recommendation to share CDM and FAA traffic management data with airport operational entities. This recommendation was approved by the NextGen Advisory Committee, and the FAA accepted it and is in the process of enacting this recommendation. The National Traffic Management Log has been made available via the System Wide Information Management (SWIM) system. Time-based Flow Management data access via SWIM is being tested with one flight operator, and the FAA is taking action to allow airports to join the FAA/Industry CDM Program. ACDM Implementation Step Three. Execute the plan, including the identification of each organization and their respon- sibilities, the existing facilities, data and infrastructure identification, such as automated decision support, and plan execution. At this point, all ideas have been discussed by the ACDM group and those that the ACDM group identified as having merit are defined in writing. This written plan should document the following steps: 1. Develop the problem statement and solution. 2. Identify the information/data or support tools needed to implement. This includes data security since some may be proprietary. 3. Determine the cost of implementation and available funding. 4. Determine whether a formal business case (i.e., monetized benefit-cost analysis) is warranted, and if so, conduct it (refer to Chapter 6 for more details). 5. Detail the risk and cost of maintaining the status quo (doing nothing). 6. Give the stakeholders assignments to complete the plan. 7. Develop the training required to enact the plan. 8. Identify and capture the metrics to measure success. 9. Stakeholders brief their management and gain buy-in. Frequently, a stakeholder ACDM participant will be required to coordinate with other functions within that stakeholder. For example, a stakeholder from air operations might have to coordinate with a vendor that pro- vides contract services to that individual stakeholder.
30 Guidebook for Advancing Collaborative Decision Making (CDM) at Airports When considering ACDM implementation and the development of this plan, two of the areas mentioned require careful consideration. ⢠The first issue is that data is required in order to be measured and make the stakeholders aware of the issues, but some of that data may be proprietary and/or sensitive. Due to the sensitivity of the data, the ACDM group must understand that issue and, if needed, afford protections. For example, a large airport construction project might indicate degrees of delays in ACDM meet- ings. The airlines serving this airport might want to protect the delay data so as not to alarm passengers to the extent that they seek alternate routes to avoid the initially forecasted delays. ⢠The second issue that the ACDM group needs to carefully consider is appropriate training. Proper training should be part of any plan. For example, anything involving aircraft move- ment will involve the pilot of the aircraft. Communication and/or training may take place through flight data charts or Electronic Flight Bag (EFB) displays. A common chart or display among all pilots, collaboratively developed by the ACDM group, will benefit the actual appli- cation, so operators should want to collaborate on this type of training. All of the steps require a comprehensive effort since the desire of ACDM is all-inclusive par- ticipation. To focus on specific issues, sub-groups may be formed. The airport will frequently not lead or even attend the sub-group meetings, but their work is reported to the general meet- ings. Inclusion, participation, and accountability are the key words in these steps. Establishment and frequent reporting of key metrics or deviations from plans is critical. Participation and accountability are gained by openly reporting individual entity compliance. Reporting should be factual and actionable. The lack of compliance may not be known by the entity involved, and they cannot fix what they do not know is broken. For example, during a construction period at a particular airport, a set aircraft taxi route was established. An opera- tor thought he had publicized this taxi route to his pilots, but the distribution method partially failed internally. After data reporting indicated this lack of compliance with quick transmission to the operator, the operator was able to quickly identify the problem and correct it. Finally, from this effort emerges the comprehensive and complete plan to address the issue originally identified. Meetings ensure individual accountability during the project. Metrics broadcast to the group indicate the degree of ACDM group success, not individual function ranking. Group problem solving, group acceptance and compliance, and group review of feed- back and data reporting all lead to successful ACDM. Developing the ACDM plan or solving a single problem is not the end of the ACDM process. Continued review of the process is required to sustain CDM/ACDM as a dynamic tool for prob- lem solving. Measured success or even failure should be carried forward to the next project so that all new projects do not require starting from zero. Past successes in the traditional FAA/Industry CDM program have shown that success leads to a need to organize the processes to ensure continuity and to promote participation for future projects. This is accomplished by meeting even when there is no large problem to solve. Con- tinued meetings ensure ongoing relationships. A vehicle to bring forth ideas is a valuable com- modity in itself. Regular monthly or quarterly meetings among all airport tenants, not just major tenants, take place at some airports today and have shown great benefit. Scalability in Size and Scope Since ACDM will be a new concept to many airport stakeholders, initial ACDM applications at an airport should be limited in scope and size. This will allow a more gradual implementation, which will ease stakeholder apprehension and allow learning and application of ACDM to take place at an acceptable pace.
Implementing CDM at Airports 31 ACDM might also be a part of a larger project at the airport, thus limiting initial ACDM efforts to a specific project or idea to help ensure success. As previously noted, the PANYNJ developed departure metering to control taxi queues using ACDM techniques that were actually part of a much larger construction project to rebuild a runway. Scalability allows introduction of ACDM techniques in a controlled manner while participants learn how the program works and the benefits derived by using ACDM practices. Technology and Interoperability The FAA/Industry CDM program has developed processes for efficiency and capturing capacity. Technology facilitates this process. ACDM is a process that uses technology to facilitate informa- tion distribution and plan enactment and to create common situational awareness. While certain technology may be needed, the process to use and define the technology is more important. Some airports have utilized existing technology as they begin the development and implemen- tation of ACDM. For example, FIDs present needed passenger information such as departure gate and times. Some airports use extended fields on the FIDs that are only viewable to opera- tional entities on a need-to-know basis. Interoperability is just as important. As previously discussed, flight operatorsâ operations centers are not usually on the airport. These operations centers are not focused on one airport, but rather their entire system; therefore, common operating systems are desired, which is one reason that web pages, which minimize interoperability issues, make an excellent choice. Still, a Security Operations Center (SOC) does not want to deal with a large number of airport-specific web pages. Ideally, standards can be developed and data shared through the operations center internal tools in cases where a widely experienced problem is being addressed. CDM/ACDM Information and Updates One of the attributes of ACDM is that it is a constantly evolving process, adapting itself to the needs of the participants, new tools, and concepts. Thus, the FAA maintains a web site for CDM information. Airport staff can obtain updates from all types of CDM activities from the CDM web site http://cdm.fly.faa.gov/. Additionally there is a CDM email list for meetings and major events. This list is referred to as the âCDM exploder.â The CDM web site listed above contains the contact information for the designated FAA CDM official who can supply contact information for work groups, the exploder, and meeting/event information.
