NOAA Aviation Safety Program

1. NOAA Aviation Safety Program Lieutenant Commander Debora Barr NOAA Marine and Aviation Operations March 16, 2005

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

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

4. 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

5. 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

6. 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.”

7. 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

8. 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”

9. 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

10. 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”

11. 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)

12. 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

13. 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.

14. 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.

15. 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.

16. 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

17. ICAP CAS Guidelines • 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 • “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

18. Safety Program Concept

19. Safety Program Concept • 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.

20. Safety Program Concept • Aviation Safety Policy • NOAA Administrative Order (governing document) • NOAA Aircraft Operator Database • DOI approved Vendorshttp://www.oas.gov/source/airqbe.aspAM A/C Source List • DOE approved Vendorshttp://www.ma.mbe.doe.gov/aviation/acdb/fetchall.cfm Summary All Current Operators, Accepted Aircraft Operator Database • Others added after evaluation by NOAA • Aviation Consulting Firm hired to evaluate vendors using NOAA checklists

21. Safety Program Concept • 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

22. Safety Program Concept • 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)

23. Safety Program Concept • 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

24. Safety Program Concept • 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

25. Safety Program Concept • Medical Screening • Reasons for screening • Physiologic affects of flying can exploit unknown or masked medical conditions • Other Agency Policy • NASA latest draft policy • Proposed Screening Forms/Standards • DD Form 2807 • SF 93 • FAA Third Class Medical

26. Safety Program Concept • 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

27. Safety Program Concept • 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

28. Safety Program Concept • 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

29. Safety Program Concept • Mishap Response Plan • Plan developed by Aviation Safety Program • Local Emergency Contact Information Inserted into Emergency Response Checklist by UAS

30. Safety Program Concept • Accident/Incident Reporting and Investigation • Required by the NTSB, and 41 CFR 102-33.445 • Non-Punitive • Not a ‘fault-finding’ exercise! • NOAA Forms for reporting • CD 137 Accident Report Form • CD 351 Hazard Report Form • Can’t evaluate procedures/operations to improve safety if we don’t know about incidents and accidents

31. Safety Program Concept • Safety Awards Program and Annual Safety Conference • Reward Safe Aviation Operations • Encourage competition between NOAA Units • Compete for Federal Aviation Awards

32. Safety Program Concept • 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

33. Funding

34. 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)

35. Transition Plan

36. 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

37. 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

38. Next Steps • Work through issues raised about first draft of NAO • Guidance for redraft of NAO for final review Issues to be Resolved.doc • Propose modification of safety stand-down during transition period • 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

39. Next Steps • NMAO briefs the Councils, the NEP, and the NEC • Proceed with the Transition Plan

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

41. NOAA Aviation Safety LCDR Debora Barr NOAA Marine and Aviation Operations 301-713-3435 x103 (office) 240-997-4384 (cell) Debora.R.Barr@noaa.gov http://www.aviationsafety.noaa.gov

42. BACKUP MATERIALS

43. 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

44. Federal Regulations • 41 CFR 102-33 Management of Government Aircraft • 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.

45. Federal Regulations • 41 CFR 102-33 Management of Government Aircraft • 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.

46. Federal Regulations • 41 CFR 102-33 Management of Government Aircraft • 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.

47. Federal Regulations • 41 CFR 102-33 Management of Government Aircraft • 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

48. Federal Regulations • 41 CFR 102-33 Management of Government Aircraft • 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.

49. Federal Regulations • 41 CFR 102-33 Management of Government Aircraft • 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.

50. Federal Regulations • 41 CFR 102-33 Management of Government Aircraft • 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.