noaa aviation safety program lieutenant commander debora barr noaa marine and aviation operations...

NOAA Aviation Safety Program

Lieutenant Commander Debora Barr

NOAA Marine and Aviation Operations

March 16, 2005

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Outline

• Background• Federal Regulations • ICAP CAS Guidelines• Safety Program Concept “how-to details”• Funding for the Program• Transition Plan for Implementation• Next Steps

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“In 2003 I challenged NOAA to reach high and achieve the goal of being ‘best in class’ in our safety program”

Best in Class

“Now is the time to make safety a core value and priority in NOAA”

Conrad C. Lautenbacher, Jr.

Vice Admiral, U.S. Navy (Ret.)

Undersecretary of Commerce for Oceans and Atmosphere

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Background

• In January 2003 three scientists and a pilot were killed in an airplane crash– Aircraft was flying a Right Whale survey using NOAA

grant money– As a result, the NMFS AA requested that NMAO

review NMFS aerial survey procedures to see if safety could be enhanced

– The Director, NMAO expanded this survey to encompass all of NOAA

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Background

• A non-NOAA Aircraft Policy Development Workshop was held in Kansas City, Missouri in May 2003– Policy Development put on hold after final draft of

workshop report was released in September 2003• Aviation Safety Program and NAO implementation required

funding not identified in FY04-FY05 budget

– FY04 • NMAO requested FY06 funding through FY06-FY10 PPBES

process for the Aviation Safety Program

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Background

• March 2004 Program Decision Memorandum for FY06-FY10 – “Establish an Aviation Outsourcing Safety Program to

include centralized aviation safety training, safety equipment maintenance and distribution and commercial aviation vendor evaluation. Develop NAO for new program. Fund from within existing resources.”

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Background

• The phrase “fund from within existing resources”– could impact NOAA Programs that use AOC Aircraft

• April and August 2004– NMAO presented to the Platform Allocation Council what

the impact would be to “Base-Funded” aircraft operations– The Allocation Council agreed that safety had to be a cost

of doing business and requested some possible FY05 Line Office/Program funding scenarios to support the Aviation Safety Program

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Background

• Late October 2004– VADM Lautenbacher was provided with talking points for a

presentation he was giving to the Airline Owners and Pilots Association (AOPA)

– He then requested additional information, and ultimately issued the safety stand-down order

• November 19, 2004 – Safety Stand-Down Regarding Use of non-NOAA Aircraft

issued by NOAA Administrator• “provide a policy for NOAA by April 1, 2005”• “stand-down shall remain in effect until a safety program for the

use of non-NOAA aircraft is approved by the NOAA Executive Council”

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Background

• 19 Nov to Mid-December, 2004– NMAO responds to large volume of questions and exemption

requests to the safety stand-down

• Late December 2004– First draft of NOAA Administrative Order (NAO) generated

• January 2005– NAO distributed for limited review – comments incorporated

• February 7, 2005– NAO widely distributed for review

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Background

• March 16-17, 2005– Workshop to resolve comments and redraft Policy

• March 22 – April 8, 2005– Line Office final review of revised Aviation Safety Policy

• July 1, 2005– New deadline for “NEC approved policy”

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Background

• Pre-requisites for Briefing the NOAA Executive Council (NEC)– Schedule briefings and incorporate comments from:

• Safety Council• CFO Council• Platform Allocation Council• NOAA Executive Panel (NEP)

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Background

• May 10, 2005– NOAA Safety Council Briefing

• May 18, 2005– CFO Council Briefing

• May 23, 2005– Platform Allocation Council Briefing

• June 2, 2005– NOAA Executive Panel (NEP) Briefing

• June 15, 2005– NOAA Executive Council (NEC) Briefing

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Federal Regulations

• 41 CFR 102-33 Management of Government Aircraft– Outlines special requirements when contracting for

commercial aviation services (CAS)• CAS agreements must impose civil standards in the federal aviation

regulations, applicable military standards or an agency’s flight program standards

• NOAA has established flight program standards for AOC aircraft, and needs to establish standards for CAS aircraft to ensure that NOAA’s mission requirements can be met.

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Federal Regulations

• Commercial aviation services (CAS) include--

(1) Leasing aircraft for exclusive use or lease-purchasing an aircraft with the intent of taking title;

(2) Chartering or renting aircraft for exclusive use;

(3) Contracting for full services (i.e., aircraft and related aviation services for exclusive use) or obtaining full services through an inter-service support agreement (ISSA); or

(4) Obtaining related aviation services (i.e., services but not aircraft) by commercial contract or ISSA, except those services acquired to support a Federal aircraft.

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Federal Regulations

• Public Aircraft (Title 49 U.S. Code)– § 40125. Qualifications for public aircraft status

• Governmental function. The term “governmental function” means an activity undertaken by a government, such as national defense, intelligence missions, firefighting, search and rescue, law enforcement (including transport of prisoners, detainees, and illegal aliens), aeronautical research, or

biological or geological resource management.

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Federal Regulations

• 41 CFR 102-33 Management of Government Aircraft– Contains requirements for Flight Program Standards:

• The standards that must be addressed:– Basic qualifications and currency requirements for pilots, other crew,

and mission-related personnel

– Flight-following procedures

– Dissemination of Disclosure Statement (Public Aircraft Operations)– Flight Safety (appoint safety managers)– Risk Analysis and Risk Management– Disseminating Accident Prevention Information– Aviation Safety Council– Aviation Safety Awards Program– Responding to Aircraft Accidents– Aviation Accident and Incident Reporting Requirements

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• Interagency Committee for Aviation Policy (ICAP)

– “There is a need, and to great extent, an obligation for Executive Agencies of the Federal Government to ensure their CAS are safe and efficient operations.” ICAP MOU

ICAP CAS Guidelines

–“The Commercial Aviation Services Quality and Safety Guidelines are intended to assist each Executive Agency of the Federal Government to develop a program to screen contract aviation providers and ensure adequate safety and quality oversight of their CAS providers.” Guidelines

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Safety Program Concept

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• Build an Aviation Safety Program modeled after other Federal Agency Programs (DOI, DOE) that meets NOAA’s unique Mission needs. – No need to reinvent the wheel!


• Train and properly equip NOAA personnel to survive an aviation mishap.

• Bring NOAA into compliance with the Federal Regulations.

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• Aviation Safety Policy– NOAA Administrative Order (governing document)

• NOAA Aircraft Operator Database– DOI approved Vendors http://www.oas.gov/source/airqbe.asp

AM A/C Source List

– DOE approved Vendors http://www.ma.mbe.doe.gov/aviation/acdb/fetchall.cfmSummary All Current Operators, Accepted Aircraft Operator Database

– Others added after evaluation by NOAA• Aviation Consulting Firm hired to evaluate vendors using NOAA

checklists

http://www.oas.gov/source/airqbe.asp

http://www.ma.mbe.doe.gov/aviation/acdb/fetchall.cfm

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• Scope of NAO– Grants and Cooperative Agreements included

• Right Whale Survey Plane Crash in 2003• Marine Mammal Observer Colleagues


– Contracts for data collection• Air Chemistry Sampling

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• Contract and Agreement Language– Standardized contract language– Training for NOAA Contracting Officials

• Responsibility for Aviation Safety– Organizational Safety Management

• NOAA Aviation Safety Board• Line Office Safety Officer• Unit Aviation Supervisor• Field Unit Supervisor• Employee (NOAA Personnel)

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• POV Aircraft– Federal Travel Regulations authorize use and

reimbursement for “TRAVEL ONLY”

• NOAA Scientists/Pilots– NWS Designated Pilot Program– Other Line Office authorization of LO Employee/Pilot

flights

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• Aviation Safety Training for Personnel– Basic Aviation Safety and Aviation Safety Manager

Training• NOAA E-Learning Modules http://e-learning.doc.gov/noaa

• Modeled after DOI and DOE on-line training http://iat.nifc.gov/ Interagency Aviation Training

– Missions Requiring “hands-on” training receive:• Aviation Safety – working in and around various aircraft types• Basic Survival – shelter, signaling, water, food• Water Survival Training – egress from submerged aircraft,

hypothermia, life raft, life vest• Arctic (Cold Weather) Survival Training

– Training Provided at Annual Safety Conference

http://e-learning.doc.gov/noaa

http://iat.nifc.gov/

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• Medical Screening– Reasons for screening

• Physiologic affects of flying can exploit unknown or masked medical conditions

– Proposed Screening Forms/Standards• DD Form 2807 • SF 93 • FAA Third Class Medical

– Other Agency Policy• NASA latest draft policy

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• Transportation vs. Mission Operations – Transportation

• Falls under FAA Part 135 or 121

– “Air transportation of persons or property for compensation

or hire” – Mission Operations

• Flights for purposes other than transportation

• Observer Participation– One-time participation in Mission Operations flights

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• Aviation Life Support Equipment– Central Acquisition, Distribution and Maintenance– Standardized Equipment

• NOAA Dive Program Model

• Unit Aviation Operations Manual– Manual developed by Aviation Safety Program

• UAS Modify to suit Unit-Specific Policies and Procedures

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• Operational Risk Management– Risk Assessment Tools developed by Aviation Safety

Program– Matrix used by UAS for Pre-Mission planning – Pocket-Risk Assessment Tool (checklist) used by FUS

for daily operations

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• Mishap Response Plan– Plan developed by

Aviation Safety Program– Local Emergency

Contact Information

Inserted into Emergency

Response Checklist by

UAS

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• Accident/Incident Reporting and Investigation– Required by the NTSB, and 41 CFR 102-33.445– Non-Punitive

• Not a ‘fault-finding’ exercise!

– Can’t evaluate procedures/operations to improve safety if we don’t know about incidents and accidents

– NOAA Forms for reporting• CD 137 Accident Report Form• CD 351 Hazard Report Form

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• Safety Awards Program and Annual Safety Conference– Reward Safe Aviation Operations

– Encourage competition between NOAA Units

– Compete for Federal Aviation Awards

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• Aviation Safety Program Staff– NMAO Headquarters - Silver Spring Maryland

• Program Manager


• Program Analyst– Coordinate Aviation Safety Training– Coordinate Aircraft Operator Evaluations– Coordinate/Plan Annual Safety Conference

• Contract Specialist– Review and assist with Statements of Work/Objectives– COTR for training vendors/aviation consulting firms

evaluating vendors– Aircraft Operations Center - Tampa Florida

• Aviation Life Support Equipment Technician– Purchase, Maintain, Distribute ALSE

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Funding

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Funding

• Requires comprehensive information from Line Offices– How many personnel require training and what types?– How many personnel require ALSE and what types?– Which Aircraft Operators need to be evaluated?

• NMAO will prepare funding options for NOAA Management (CFO Council)

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Transition Plan

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Transition Plan

• Required to get NOAA from current “Safety Stand-down” mode to implementation of new Aviation Safety Policy (estimate 15 -18 months – Target October 2006)– Secure Funding for the Program– Hire Staff– Aviation Safety Board – charter and membership– Develop Unit Aviation Operations Manual– Develop Mishap Response Plan– Develop Risk Assessment Tools

– Develop Accident/Incident Reporting Database– Evaluate aircraft operators

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Transition Plan

• Transition Plan Tasks (continued)– Develop and populate NOAA Aircraft Operator

Database– Purchase and distribute ALSE

– Train personnel– Develop contract/agreement language

– Develop Aviation Safety Awards Program

– First Annual Aviation Safety Conference

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Next Steps

• Work through issues raised about first draft of NAO– Guidance for redraft of NAO for final review Issues to be Resolved.doc

– Line Offices provide NMAO with accurate survey data for cost estimate

• Number of personnel requiring aviation safety training• Number and types of ALSE required• List of aviation vendors to be evaluated for inclusion on NOAA

Aircraft Operator Database

– Line Offices provide NMAO with final comments on revised NAO

– Propose modification of safety stand-down during transition period

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Next Steps

• NMAO briefs the Councils, the NEP, and the NEC

• Proceed with the Transition Plan

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“In 2003 I challenged NOAA to reach high and achieve the goal of being ‘best in class’ in our safety program”

Best in Class

“Now is the time to make safety a core value and priority in NOAA”

Conrad C. Lautenbacher, Jr.

Vice Admiral, U.S. Navy (Ret.)

Undersecretary of Commerce for Oceans and Atmosphere

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LCDR Debora BarrNOAA Marine and Aviation Operations

301-713-3435 x103 (office)240-997-4384 (cell)

[email protected] http://www.aviationsafety.noaa.gov

NOAA Aviation Safety

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BACKUP MATERIALS

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Federal Regulations

• 41 CFR 102-33 Management of Government Aircraft

• 102-33.105 What special requirements must we put into our CAS contracts?

At a minimum, your contracts and agreements must require that any provider of CAS comply with--

(a) Civil standards in the Federal Aviation Regulations (14 CFR chapter I) applicable to the type of operations you are asking the contractor to conduct;

(b) Applicable military standards; or

(c) Your agency's Flight Program Standards

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• 102-33.140 What are Flight Program Standards?

Standards specific to your agency's aviation operations, including your commercial aviation services (CAS) contracts. Your Flight Program Standards must meet the requirements in sections 102-33.155 through 102-33.185, and they must meet or exceed applicable civil or military rules. When civil or military rules do not apply, you must use risk management techniques to develop Flight Program Standards specifically for your program.

Federal Regulations

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• 102-33.155 How must we establish Flight Program Standards?

You must write, publish (as appropriate), implement, and comply with detailed, agency-specific standards, which establish or require (contractually, where applicable) policies and procedures for--

(a) Management/administration of your flight program (in this part, "flight program" includes CAS contracts)…

(d) Training for your flight program personnel; and

(e) Safety of your flight program.

Federal Regulations

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• 102-33.165 What standards must we establish or require (contractually, where applicable) for operation of our flight program?

You must establish or require (contractually, where applicable) the following:

(a) Basic qualifications and currency requirements for your pilots and other crewmembers, maintenance personnel, and other mission-related personnel…

(d) Flight-following procedures to notify management and initiate search and rescue operations for lost or downed aircraft.

Federal Regulations

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• 102-33.165 What standards must we establish or require (contractually, where applicable) for operation of our flight program? (Continued)

(e) Dissemination, as your agency determines appropriate, of a disclosure statement to all crewmembers and qualified non-crewmembers who fly aboard your agency's Government aircraft, as follows:

– Disclosure Statement for Crewmembers and QualifiedNon-Crewmembers Flying on Board Government Aircraft Operated as Public Aircraft

Federal Regulations

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• 102-33.175 What standards must we establish or require (contractually, where applicable) to train our flight program personnel?

You must establish or require (contractually, where applicable) an instructional program to train your flight program personnel, initially and on a recurrent basis, in their responsibilities and in the operational skills relevant to the types of operations that you conduct.

Federal Regulations

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• 102-33.180 What standards must we establish or require (contractually, where applicable) for flight program safety?

You must establish or require (contractually, where applicable) the following:

(a) The appointment of qualified aviation safety managers (i.e., those individuals who are responsible for an agency's aviation safety program, regardless of title), who must be--

(1) Experienced as pilots or crewmembers or in aviation operations management/flight program management; and

(2) Graduated from an aviation safety officer course provided by a recognized training provider and authority in aviation safety before appointment or within one year after appointment.

Federal Regulations

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• 102-33.180 What standards must we establish or require (contractually, where applicable) for flight program safety?(Continued)

(b) Risk analysis and risk management to identify and mitigate hazards and provide procedures for managing risk to an optimum level.

(c) Use of independent oversight and assessments (i.e., unbiased inspections) to verify compliance with the standards called for in this part.

(d) Procedures for reporting unsafe operations to senior aviation safety managers.

(e) A system to collect and report information on aircraft accidents and incidents.

Federal Regulations

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• 102-33.180 What standards must we establish or require (contractually, where applicable) for flight program safety?(Continued)

(f) A program for preventing accidents, which includes--

(1) Measurable accident prevention procedures (e.g., pilot proficiency evaluations, fire drills, hazard analyses);

(2) A system for disseminating accident-prevention information;

(3) Safety training;

(4) An aviation safety awards program; and

(5) For Federal aircraft-owning agencies, a safety council.

Federal Regulations

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• 102-33.185 What standards must we establish or require (contractually, where applicable) for responding to aircraft accidents and incidents?

For responding to aircraft accidents and incidents, you must establish or require (contractually, where applicable) the following:

(a) An aircraft accident/incident reporting capability to ensure that you will comply with the NTSB's regulations (in 49 CFR parts 830 and 831), including notifying NTSB immediately when you have an aircraft accident or an incident as defined in 49 CFR 830.5.

(b) An accident/incident response plan, modeled on the NTSB's "Federal Plan for Aviation Accidents Involving Aircraft Operated by or Chartered by Federal Agencies," and periodic disaster response exercises to test your plan.

Federal Regulations

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• 102-33.185 What standards must we establish or require (contractually, where applicable) for responding to aircraft accidents and incidents? (Continued)

(c) Procedures (see 49 CFR 831.11) for participating as a party in NTSB's investigations of accidents or incidents involving aircraft that your agency owns or hires and for conducting parallel investigations, as appropriate.

(d) Training in investigating accidents/incidents for your agency's personnel who may be asked to participate in NTSB investigations.

(e) Procedures for disseminating, in the event of an aviation disaster that involves one of your Government aircraft, information about eligibility for benefits that is contained in the disclosure statement in section 102-33.165(e) to anyone injured, to injured or deceased persons' points of contact (listed on the manifest), and to the families of injured or deceased crewmembers and qualified non-crewmembers.

Federal Regulations

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• 102-33.390 What information must we report on Government aircraft?

(a) You must report the following information to GSA, Aircraft Management Policy Division (MTA), 1800 F Street, NW., Washington, DC 20405…

(3) Cost and utilization data on CAS aircraft and related aviation services through FAIRS.

(4) Accident and incident data through the ICAP Aircraft Accident Incident Reporting System (AAIRS).

Federal Regulations

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• 102-33.445 What accident and incident data must we report?

You must report within 14 calendar days to GSA, Aircraft Management Policy Division (MTA), 1800 F Street, NW., Washington, DC 20405, all aviation accidents and incidents that your agency is required to report to the NTSB. You may also report other incident information. The GSA and the ICAP will use the collected accident/incident information in conjunction with FAIRS' data, such as flying hours and missions, to calculate safety statistics for the Federal aviation community and to share safety lessons-learned.

Federal Regulations

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