Results Reportedly Withheld By The Agency For Years

A study conducted by NASA at the request of the FAA shows that air traffic controllers' work schedules can lead to chronic fatigue, which could endanger the flying public.

The Associated Press reports that the study was conducted several years ago, having obtained a draft report dated Dec 2011. The final report posted Monday to the FAA website carries a date of December 2012, and has few variations from the draft report.

The study was undertaken after the NTSB made recommendations to the FAA and NATCA concerning controller schedules, saying that they should assure that controllers "obtain sufficient restorative sleep."

According to the executive summary posted online, the FAA said that fatigue countermeasures for the midnight shift are necessary to maintain controller performance.

Sample research topics related to controller performance on the midnight shift may include instituting a later start time for the early shift prior to the midnight shift, which could enable controllers to accumulate sleep reserve to better cope with the midnight shift.

The study also found that field study findings and other sleep research indicates that increasing the minimum numbers of hours off (currently 9) between afternoon and morning shifts would allow for longer recovery sleep opportunities and potentially improve controller alertness.

The agency should investigate the circumstances requiring 6-day work schedules and ways to reduce the frequency of 6-day work schedules (i.e., those with mandatory overtime).

The study also found that approximately 8% of ATC respondents in this sample reported fatigue associated with sleep disorders. NASA recommended in the report that the FAA should encourage affected controllers to seek diagnosis and treatment of sleep disorders.

The AP reports that NASA undertook the study after multiple well-publicized incidents of controllers falling asleep on the job. In the 270 pages, there are 17 recommendations to the FAA.

FAA spokeswoman Laura Brown said in an email to the AP that the agency now requires two controllers to be on duty after midnight, and that they be given at least nine hours between shifts. Controllers can now take more "recuperative breaks" during their shifts if the workload allows them the time.

Previously, the report found, controllers were allowed to work a complicated schedule of rotating shifts that often allowed only eight hours between shifts. Controllers said they liked that arrangement because it would allow them to have more three-day weekends.

On its website, the FAA says that in 2012, the agency implemented a comprehensive Fatigue Risk Management System to manage controller fatigue. This Fatigue Risk Management System includes policy and practice changes, along with fatigue education to raise awareness about the personal responsibilities associated with managing fatigue.
 
Some of the changes the FAA has made as part of the Fatigue Risk Management System include:

• Allowing for recuperative breaks when no duties are assigned
• Requiring nine hours off duty where a day shift follows an evening shift
• Requiring positive confirmation of air traffic hand-offs during midnight operations
• Restricting consecutive midnight shifts
• Restricting 10-hour midnight shifts
• Restricting the start time of early morning day shifts that precede a midnight shift
• Allowing controllers to self-declare fatigue and take time off if needed to recuperate

The agency updated its policy on napping in 2012. "Based on staffing and workload – and when no duties are assigned – we offer employees break opportunities to attend to personal needs, rejuvenate their mental acuity, and other similar activities. These break opportunities are available on all work shifts, including overnight shifts," the FAA said.
 
The FAA says it makes a practice of staffing at least two controllers on midnight shifts. There could be situations in which an individual calls in sick, but that is not standard. On those rare occasions, we have implemented additional procedures to ensure controller alertness.
 
The agency has also changed its scheduling policies and practices. These changes include:

• Requiring nine hours off duty where a day shift follows an evening shift
• Restricting consecutive midnight shifts
• Restricting the number of 10-hour midnight shifts
• Restricting the start time of early morning day shifts that precede a midnight shift to ensure night time sleep opportunities

The minimum nine hours off between work shifts is an ongoing requirement under Joint Order 7210.3. It doesn’t apply to all shifts. It applies to all schedules where a day shift follows an evening shift (this protects nighttime sleep opportunity).
 
The agency says it believes the fatigue problem has improved. "Although fatigue is an issue in any 24/7 operation, the FAA has taken many positive steps to minimize fatigue. The fatigue modeling we’ve done shows that there is greater alertness using these updated scheduling practices," the agency said on its website.

FMI: Controller Fatigue Study