Senate Report 105-55
(continued)
SHORE FACILITIES AND AIDS TO NAVIGATION
The program level recommended is $73,000,000.
SHORE FACILITIES AND AIDS TO NAVIGATION
[In thousands of dollars]
Fiscal year 1998 estimate Committee recommendation
Shore--General: 6,000 6,000
Groups/bases/stations/MSO's: 4,000 4,000
Aids to navigation facilities: Waterways aids-to-navigation projects 5,000 5,000
OMEGA termination cost 6,700 6,700
Coast Guard District 1--construct Bayonne pier 4,100 4,100
Integrated support command--Portsmount, VA: 4,700 4,700
Asset sales (9,000) (9,000)
--------------------------- --------------------------
Total 69,000 73,000
Air Stations Brooklyn and Cape May. --The Committee understands that
the Coast Guard has proposed to consolidate Air Station Brooklyn and Air
Station Cape May due to improved operational capabilities of its assets
which result in budgetary savings. However, the Committee remains
concerned about maintaining critically important Coast Guard air rescue
response time in the New York City areas at the level currently provided
by Air Station Brooklyn during the peak boating season. Therefore, the
Committee encourages the Coast Guard to establish and operate a seasonal
air facility in the New York City area to provide helicopter rescue
capability during the period April 15 through October 15.
Kodiak electricity cogeneration .--The Committee encourages the
Coast Guard to explore innovative means of assisting the local
electrical cooperative from which it purchases power in upgrading its
power production capability.
PERSONNEL AND RELATED SUPPORT
The program level recommended is $47,000,000. Within the amount
provided, $500,000 shall be for core acquisition costs.
The Committee has provided the full amount requested for AC&I
personnel and related support.
[In thousands of dollars]
Personnel and related support Fiscal year 1998 estimate Committee recommendation
Direct personnel costs 46,500 46,500
Core acquisition costs 500 500
--------------------------- --------------------------
Total 47,000 47,000
BILL LANGUAGE
Asset sales .--The bill includes a provision which would credit the
proceeds from the sale or lease of surplus Coast Guard real property to
this appropriation. The administration requested this authority which
allows asset sale revenues to be credited to this appropriation as
offsetting collections, but limits the amount of offsetting collections
in fiscal year 1998 to $9,000,000. Any excess proceeds from asset sales
would accrue to the following fiscal year. Accordingly, the Committee
encourages the Coast Guard to explore the auction or sale of the
Governor's Island facility during fiscal year 1998 with an eye toward
supplmenting fiscal year 1999 appropriations. In addition, the bill
includes language that protects the Coast Guard from liability for the
cost of maintaining Governor's Island.
The Coast Guard's closure of Governors Island provides and example of
the cost savings attainable by streamlining the agency's infrastructure
and the potential significant revenue available to the Coast Guard and
the rest of the Federal Government by selling nonessential or
noncritical, high-value assets. The Committee would also like to know
about additional properties of high value in the Coast Guard's real
property portfolio; therefore, the Coast Guard is directed to submit to
the Committee by April 2, 1998, a list of its 25 most valuable
properties. This list should include information on the fair market
value of each property (or an estimate thereof), the amount of land and
the number of buildings, the current use being made of the property, and
the annual operating costs for the activities housed on each property.
The Coast Guard needs funding it can depend upon to carry out
necessary projects. The Senate supports the authority vested in the
Commandant which allows the sale of real property and specified
operational assets, with proceeds to be credited to the ``Acquisition,
construction, and improvements'' appropriation.
Pier space use agreement .--The bill includes language that allows
the Secretary of Transportation, acting through the Commandant of the
Coast Guard, to enter into a long-term use agreement with the city of
Unalaska for dedicated pier space on the municipal dock. This authority
is necessary to support Coast Guard vessels when such vessels call on
the Port of Dutch Harbor, AK. The terms and conditions of the use
agreement shall be develop by the Secretary and the city of Unalaska.
New York search and rescue capability .--The Committee directs the
Department of Defense to provide facilities including runway; hangar;
fire crash and rescue; and support spaces at the Air National Guard site
at the Francis S. Gabreski Airport, Hampton, Long Island, NY, to the
Coast Guard. This facility will provide seasonal search and rescue
capability during the period April 15 through October 15. Support spaces
will consist of suitable operations, berthing, and maintenance spaces.
General provisions .--The Committee has included a general provision
directing the transfer of the U.S.N.S. Edenton to the Coast Guard.
ENVIRONMENTAL COMPLIANCE AND RESTORATION
Appropriations, 1997 $22,000,000
Budget estimate, 1998 21,000,000
Committee recommendation 21,000,000
The Committee recommends funding of $21,000,000 to continue the
environmental restoration and compliance-related actions throughout the
Coast Guard.
These fiscal year 1998 funds will be used to address environmental
problems at former and current Coast Guard units as required by
applicable Federal, State, and local environmental laws and regulations.
Planned expenditures for these funds include major upgrades to petroleum
and regulated-substance storage tanks, restoration of contaminated
ground water and soils, remediation efforts at hazardous substance
disposal sites, and initial site surveys and actions necessary to bring
Coast Guard shore facilities and vessels into compliance with
environmental laws and regulations.
ISC Kodiak remediation funding .--The investigation and potential
cleanup of 34 sites on ISC Kodiak, as per the 1990 Resources
Conservation Recovery Act consent order, goes well. Eight of these sites
have been closed and eight other sites have been approved for no further
action status. Due to reduced levels of contamination anticipated, lower
than expected costs to meet consent order milestones, and successful
ongoing milestone negotiations with the regulatory bodies, annual
requirements for this project have been reduced from past levels of
$4,400,000 to $5,400,000 to about $3,000,000 to $3,500,000. Given
overall budget constraints and other demands placed on the
``Environmental compliance and restoration'' appropriation, these levels
will be adequate to continue this remediation effort in fiscal year
1998.
PORT SAFETY DEVELOPMENT
Appropriations, 1997 $5,000,000
Budget estimate, 1998 ...........................
Committee recommendation ...........................
This appropriation provided funds in 1996 and 1997 for the reduction
of debt incurred by the Port of Portland, OR, from prior infrastructure
development. No funds are requested for 1998.
ALTERATION OF BRIDGES
Appropriations, 1997 $16,000,000
Budget estimate, 1998 ...........................
Committee recommendation 26,000,000
The ``Alteration of bridges'' appropriation provides funds for the
Coast Guard's share of the cost of altering or removing bridges
obstructive to navigation. Under the provisions of the Truman-Hobbs Act
of June 21, 1940, as amended (33 U.S.C. 511 et seq.), the Coast Guard,
as the Federal Government's agent, is required to share with owners the
cost of altering railroad and publicly owned highway bridges which
obstruct the free movement of navigation on navigable waters of the
United States in accordance with the formula established in 33 U.S.C.
516.
The Committee directs that, of the funds provided, $5,000,000 shall
be allocated to the Sand Island Road Tunnel in Honolulu, HI, $3,000,000
shall be allocated to the Florida Avenue railroad/highway combination
bridge in New Orleans, LA, and $18,000,000 shall be allocated to the
Sidney Lanier highway bridge in Brunswick, GA.
RETIRED PAY
Appropriations, 1997 $617,284,000
Budget estimate, 1998 645,696,000
Committee recommendation 653,196,000
The ``Retired pay'' appropriation provides for retired pay of
military personnel of the Coast Guard and Coast Guard Reserve, members
of the former Lighthouse Service, and for annuities payable to
beneficiaries of retired military personnel under the retired
serviceman's family protection plan (10 U.S.C. 1431 1446) and survivor
benefit plan (10 U.S.C. 1447 1455), and for medical care of retired
personnel and their dependents under the Dependents Medical Care Act.
The average number of personnel on the retired rolls is estimated to be
31,279 in fiscal year 1998, as compared with an estimated 30,433 in
fiscal year 1997 and 29,650 in fiscal year 1996.
The bill includes $653,196,000 for retired pay, consistent with the
budget request, adjusted by $6,100,000 to annualize fiscal year 1997
supplemental funding. This is scored as a mandatory appropriation in the
congressional budget process.
In addition, this funding level includes $1,400,000 in anticipation
of congressional action to extend partial veteran benefits to Merchant
Mariners who served between August 16, 1945, and December 31, 1946. The
Committee recommends the additional funds for the Coast Guard to process
up to 50,000 applications in fiscal year 1998.
RESERVE TRAINING
Appropriations, 1997 $65,890,000
Budget estimate, 1998 65,000,000
Committee recommendation 65,535,000
Under the provisions of 14 U.S.C. 145, the Secretary of
Transportation is required to adequately support the development and
training of a Reserve force to ensure that the Coast Guard will be
sufficiently organized, manned, and equipped to fully perform its
wartime missions. The purpose of the Reserve training program is to
provide trained units and qualified persons for active duty in the Coast
Guard in time of war or national emergency, or at such other times as
the national security requires. Coast Guard reservists must also train
for mobilization assignments that are unique to the Coast Guard in times
of war, such as port security operations associated with the Coast
Guard's Maritime Defense Zone [MDZ] mission and include deployable port
security units.
The Committee has provided $65,535,000 for Reserve training. The
amount provided is $535,000 above the President's request.
The Coast Guard is provided Reserve training funding as follows:
[In thousands of dollars]
Functional program element Fiscal year 1997 levels President's request (7,600 SELRES) Committee recommendation (8,000 SELRES)
Drill pay and benefits 26,763 26,203 26,763
Full-time support personnel 20,904 21,013 21,013
Annual training program 11,665 11,467 11,467
District administration/training 2,315 2,250 2,250
Recruiting 2,051 2,066 2,066
O/M support to training facilities 1,532 1,316 1,316
Headquarters administration 660 685 660
------------------------- ------------------------------------ -----------------------------------------
Total 65,890 65,000 65,535
RESEARCH, DEVELOPMENT, TEST, AND EVALUATION
General Trust Total
Appropriations, 1997 $14,180,000 $5,020,000 $19,200,000
Budget estimate, 1998 15,500,000 3,500,000 19,000,000
Committee recommendation 16,500,000 3,500,000 20,000,000
The Coast Guard's Research and Development Program seeks to improve
the tools and techniques with which Coast Guard carries out its varied
operational missions and to increase the knowledge base upon which it
depends to fulfill its regulatory responsibilities.
The bill includes $20,000,000 for research, development, test, and
evaluation, which is $1,000,000 above the budget request.
The Committee recommendation for funding distribution is as follows:
[In thousands of dollars]
Fiscal year 1997 Fiscal year 1998 estimate Committee recommendation
Program areas: 1,872 1,875 1,875
------------------ --------------------------- --------------------------
Total 19,200 19,000 20,000
The Committee has made a slight adjustment to the fiscal year 1998
request for research and development. In the marine environmental
protection area, the Committee has provided the amount requested for the
aquatic nuisance species program, which is $1,529,000 and increased the
funding for this activity by $1,000,000 to further research effects into
a nonchemical interim ballast management practice for fully loaded
vessels to prevent the ballast-mediated transfer of species. This
research should focus in particular on vessels reporting no ballast on
board [NOBOB]. In addition, this funding is also intended to assist the
Coast Guard's other efforts consistent with the National Invasive
Species Act.
BOAT SAFETY
(aquatic resources trust fund)
Appropriations, 1997 $35,000,00006
Budget estimate, 1998\1\ (55,000,000)
Committee recommendation 35,000,00006
\1\The President's budget proposed, contingent on enactment of
legislation, that $55,000,000 be available as a direct (mandatory)
program and no discretionary funds.
This account provides financial assistance for a coordinated National
Recreational Boating Safety Program for the several States. Title 46,
United States Code, section 13106, establishes a ``Boat safety'' account
from which the Secretary may allocate and distribute matching funds to
assist in the development, administration, and financing of qualifying
State programs. The ``Boat safety'' account consists of amounts
transferred from the highway trust fund which are derived from the
motorboat fuel tax (18.4 cents per gallon).
The President's budget requests no discretionary funding in 1998.
Instead, the President's budget proposes to provide all funding for the
State boating safety grant program by providing $35,000,000 from the
aquatic resources trust fund, together with $20,000,000 from the
7E``Sport fish restoration'' account as authorized under the Clean
Vessel Act of 1992 (title V of the Oceans Act of 1992).
The Committee cannot support the administration's proposal to convert
this program to mandatory spending. After highway fatalities,
recreational boating accidents result in the highest number of
transportation fatalities annually. The number of boats is increasing
each year and the National Transportation Safety Board continues to list
boating safety as one of the areas most in need of safety improvement.
Annual congressional review and guidance is necessary for timely
implementation of boating safety initiatives.
FEDERAL AVIATION ADMINISTRATION
SUMMARY OF FISCAL YEAR 1998 PROGRAM
The Federal Aviation Administration traces its origins to the Air
Commerce Act of 1926, but more recently to the Federal Aviation Act of
1958 which established the independent Federal Aviation Agency from
functions which had resided in the Airways Modernization Board, the
Civil Aeronautics Administration, and parts of the Civil Aeronautics
Board. FAA became an administration of the Department of Transportation
on April 1, 1967, pursuant to the Department of Transportation Act
(October 15, 1966).
The total recommended program level for the FAA for fiscal year 1998
amounts to $9,179,154,883 including $50,000,000 in user fees credited to
the ``Operations'' appropriation and a $1,700,000,000 obligation
limitation on the use of contract authority for the Airport Grants
Program. The following table summarizes the Committee's recommendations:
[In thousands of dollars]
Program Fiscal year 1997 enacted Fiscal year 1998 budget estimate Committee recommendation
Operations \1\4,957,900 5,086,100 5,375,900
User fees: \2\(75,000) -50,000 -50,000
Facilities and equipment 1,937,700 1,875,000 1,889,005
Research, engineering, and development 208,412 200,000 214,250
Grants-in-aid for airports\4\ 1,460,000 1,000,000 1,700,000
National Civil Aviation Review Commission 2,400
-------------------------- ---------------------------------- --------------------------
Total 8,491,412 8,411,100 9,129,155
\1\Excludes reductions for TASC and awards pursuant to sections 321 and 346 of Public Law 104 205.
\2\Reflects maximum amount provided in Public Law 104 205. FAA estimates collections of only $20,000,000 in fiscal year 1997.
\3\Proposed user fees.
\4\Limitation on obligations.
OPERATIONS
General Trust User fees Total
Appropriations, 1997 $3,182,500,000 $1,700,400,000 $75,000,000 $4,957,900,000
Budget estimate, 1998 1,611,100,000 3,425,000,000 350,000,000 5,386,100,000
Committee recommendation 3,424,272,000 1,901,628,000 50,000,000 5,375,900,000
FAA's ``Operations'' appropriation provides funds for the operation,
maintenance, communications, and logistic support of the air traffic
control and navigation systems and activities. It also covers the
administration and management of the regulatory, airports, commercial
space, medical and engineering, and development programs.
User fees. --The administration proposed collecting $400,000,000 in
user fees in fiscal year 1998. Of these fees, $100,000,000 is available
without Appropriations Committee action, including $50,000,000 for the
essential air service program and rural airport safety and $50,000,000
for FAA expenses.
The bill includes a total of $5,325,900,000 for the operations
activities of the Federal Aviation Administration, of which
$1,901,628,000 shall be derived from the airport and airway trust fund.
An additional $50,000,000 for FAA operations will be derived from user
fees.
As in past years, FAA is directed to report immediately to the
Committees on Appropriations in the event resources are insufficient to
operate a safe and effective air traffic control system.
The activities of the operations accounts comprise eight main areas
consistent with FAA's reorganization to bring together functions and
activities that support the provision of a single, major service and to
establish a single executive responsible for that service.
Air traffic services. --The operations and maintenance of the
national air traffic control and navigation system and the installation
of air traffic and navigation equipment. Air traffic services consists
of five subactivities: air traffic, NAS logistics, systems maintenance,
leased telecommunications, and flight inspections.
Aviation regulation and certifications.-- Promotes aviation safety
and ensures compliance with safety and certification standards for air
carriers, commercial operators, air agencies, airmen, and civil
aircraft, including aircraft registration; develops and administers
safety standards for airworthiness of aircraft and components. Includes
accident investigation, aviation medicine, aviation rulemaking, and the
suspected unapproved parts office.
Civil aviation security .--Provides for the overall planning,
direction, management, evaluation, and enforcement of civil aviation
security; supports efforts covering the investigation and interdiction
of illegal drugs and the assessment of foreign airports.
Research and acquisition.-- Responsible for all research,
prototyping, system development, and acquisition activities. Includes
the William J. Hughes Technical Center.
Administration of airports. --Provides for the administration of
airport grants and the safety inspection and certification of the
Nation's airports.
Commercial space transportation. --Facilitates and promotes
commercial space launches by the U.S. private sector and licenses and
regulates commercial launches, launch site operations, and certain
payloads.
Administration. --Funds the administrative functions that establish
policy and direct and develop programs in the areas of FAA aircraft use
and management, building space management, budget and accounting,
business information and consultation, human resource management, and
technical and management training; includes the regional administrators
and the Aeronautical Center Director.
Staff offices. --Funds the Office of the Administrator and the
Deputy Administrator, and offices that report directly to the
Administrator and provide executive direction; operations and
communications control; civil rights; government and industry affairs;
policy, planning, and international aviation; legal counsel; and public
affairs.
The following table summarizes the Committee's recommendation in
comparison to the budget estimate:
[In thousands of dollars]
Fiscal year 1997 program level\1\ Fiscal year 1998 budget estimate Committee recommendations
Air traffic services 3,801,353 4,192,516 4,181,916
Aviation regulation and certification 501,921 613,768 614,168
Aviation security 114,360 98,651 98,651
Research and acquisition 85,767 92,858 92,858
Administration of airports 45,051 48,052 48,052
Commercial space transportation 6,040 6,182 6,182
Administration 330,044 262,143 262,143
Staff offices 70,376 71,930 71,930
Accountwide adjustments ---------------------------------- ---------------------------
-----------------------------------
Total 4,954,912 5,386,100 5,375,900
=================================== ================================== ===========================
User fees 350,000 50,000
Appropriated funds 5,036,100 5,325,900
----------------------------------- ---------------------------------- ---------------------------
Total available funds 5,386,100 5,375,900
\1\Includes reduction for TASC and awards pursuant to sections 321 and 346 of Public Law 104 205.
AIR TRAFFIC SERVICES
The Committee recommends a total of $4,181,916,000 for the operation
and maintenance of the national air traffic control and flight service
system. This is $10,600,000 less than the budget estimate, but
$380,563,000 above the fiscal year 1997 level.
Over the next decade, the Committee expects to see the billions of
dollars of new technology being developed, procured, and implemented
under the ``Facilities and equipment'' account--computers,
communications equipment, and information analysis capability--reflected
in a projected trend toward more productive work forces and, therefore,
lower operations budget estimates.
The major activities include:
Air traffic. --The Committee recommends $2,536,258,000 and 24,581
FTE's. The Committee's recommendation provides a net increase of 500
additional air traffic controllers as request by the administration.
-- Equipment and staffing deficiencies in the New York/New Jersey
region .--The Committee continues to be concerned with the shortage of
adequately trained air traffic controllers as well as persistent
problems with air traffic control equipment at the FAA's air traffic
facilities in the New York/New Jersey metropolitan area. These staffing
shortages and equipment outages have resulted in increased delays and
inefficiencies that have placed an inordinate amount of pressure on the
overtaxed FAA work force, the air carriers serving the region, as well
as the flying public.
The Subcommittee on Transportation held a special hearing on this
topic on June 12, 1997, during which testimony was received from Members
of Congress as well as representatives of the FAA, air carriers, the air
traffic controllers, and technicians unions. The hearing served to
highlight the urgent need for the FAA to expedite staffing of its
facilities in the New York/New Jersey area so that they meet or exceed
authorized staffing levels. It also highlighted the failure of the FAA
to fully utilize all the tools at its disposal, including the tools
granted under its personnel reform authorities, to alleviate critical
staffing shortages at these facilities as expeditiously as possible.
Finally, the hearing highlighted the need for the FAA to expedite the
installation of upgraded and new air traffic control equipment in order
to expedite the replacement of outdated equipment and assist the air
traffic controllers and air carriers serving the region in handling
growing volumes of air traffic, especially during inclement weather.
The Committee is pleased with the FAA's progress over the past year
in increasing the staffing levels at area towers, the New York TRACON
and the New York center. However, the Committee directs the
Administrator to meet the authorized staffing levels for all facilities
in the New York/New Jersey region by the dates identified in the pending
agreements with the pertinent employee organizations. The Administrator
is further directed to inform the Committee immediately if it appears
that those deadlines will not be met. The Committee further requests the
Administrator to use all tools at his or her disposal to rectify the
ongoing problems highlighted during the special hearing held by the
Transportation Subcommittee.
-- Contract tower program .--The Committee recommends $43,700,000 for
the contract tower program, as requested by the administration, and
directs FAA to study traffic at the airports in New Bern and Hickory,
NC, and at the Salisbury/Wicomico County Regional Airport in Maryland,
and, if those airports meet or are projected to meet FAA's benefit/cost
criteria for tower operations within the next 2 years or if tower
operation could be justified under a cost-sharing arrangement, directs
FAA to open contract towers at those airports for service during fiscal
year 1998.
The Committee is aware that FAA has notified 22 airports around the
Nation that the FAA will withdraw funding for towers at those airports
in 2 years unless the benefit/cost ratio at those airports exceeds 1.0
by the end of 1998. The Committee is concerned about the impacts loss of
tower service would have at these 22 airports and will monitor
developments with respect to these airports. The Committee urges FAA to
work with the communities to explore alternatives, such as sharing of
the tower operating costs, to maintain tower operations if the benefit/
cost criteria are unlikely to be satisfied at any of these airports by
the end of 1998.
National airspace system logistics support. --The Committee
recommends $180,833,000 for this subactivity including 1,188 FTE's.
The funding provided for the national airspace system logistics
support activity is the full amount requested by the administration for
fiscal year 1998.
Maintenance of air traffic control system. --The Committee
recommends $1,064,545 and 9,505 FTE's for this budget subactivity, as
requested by the administration. For the reasons discussed below, the
Committee has concluded that FAA is likely to continue to underutilize
its radio communications link [RCL] network in favor of leased
telecommunications. The Committee suggests that FAA accommodate the
$4,000,000 reduction by disposing of a part of its underutilized RCL
network and taking staffing savings.
Leased telecommunication services. --The Committee recommends
$343,339,000 for this budget subactivity. This is a reduction of
$4,000,000 from the request level.
FAA's leased telecommunications request for fiscal year 1998
($347,339,000) represents a $17,077,000 increase over the fiscal year
1997 level. In the report accompanying last year's appropriation bill,
the Committee expressed concern about underutilization of the radio
communications link [RCL], which is owned by FAA and is one of the
largest microwave networks in the country. The alternative to increased
use of the RCL is increased reliance on leased telecommunications costs
for the use of private networks. The Committee directed FAA to transfer
to the radio communications link as much of the existing workload as
possible to better utilize that resource. The Committee understands that
FAA plans to use an additional 2,300 to 2,900 RCL circuits rather than
leasing circuits from a private vendor. Even if FAA adopts this plan, it
would still only be utilizing 56 to 61 percent of its analog circuits
and still have a significant amount of digital capacity sitting idle.
Given that FAA will apparently continue to underutilize the RCL and
prefers leased telecommunications links, the Committee is recommending a
reduction of $4,000,000 from the request for the systems maintenance
subactivity.
Satellite communications technology .--The Committee has added
$400,000 to the air traffic activity to provide a low-earth orbit [LEO]
satellite communication system at Anchorage, AK, to augment present
communications systems. Extensive areas of Alaska are not within present
radio coverage. The LEO system will be available for widespread use in
Alaska within 2 years, and the Committee anticipates that pilots with
the appropriate onboard equipment will be able to use this new
capability to call FAA's flight service stations from such locations
within the State.
Flight inspection. --The Committee recommends $63,942,000 and 579
FTE's for this activity which is the full amount requested.
Accountwide adjustment .--Based upon a GAO analysis of the request
of $51,200,000 for 82 NAS Plan Hand-Off projects that identified 14
percent in excess costs (associated, for example, with project
requirements that had been canceled since the budget estimates were
developed), the Committee believes $7,000,000 can be reduced from air
traffic services with no impact on FAA's ability to field new equipment.
AVIATION REGULATION AND CERTIFICATION
The Committee recommends $614,168,000 and 5,882 FTE's for this activity.
Funding provided for aviation regulation and certification is an
increase of $112,247,000 over fiscal year 1997 and $400,000 over the
administration's request. The Committee fully funds the requested
employment increases for administrative support ( +68), airworthiness
inspectors ( +117), airline operations inspectors ( +118), certification
engineers and pilots ( +17), and manufacturing certification inspectors
( +6).
The Committee has included an additional $400,000 to continue the
human intervention and motivation study [HIMS], a comprehensive
education and training program for alcohol and drug abuse prevention in
the airline industry with emphasis on peer identification and
intervention. Since its inception in 1974, HIMS has been a very
successful program to deal with the problem of alcoholism in the air
transportation workplace and to enhance the safety of air travel. Lack
of funding now threatens to stifle the program at a time when the need
for it is great, especially in the regional airline industry.
CIVIL AVIATION SECURITY
The Committee recommends $98,651,000 and 1,109 FTE's for this budget
activity. The Committee has fully funded the civil aviation security
program.
RESEARCH AND ACQUISITION
The Committee recommends $92,858,000 and 809 FTE's for this budget
activity as requested by the administration. This is an 8-percent
increase over the fiscal year 1997 enacted level.
ADMINISTRATION OF AIRPORTS
The Committee recommends $48,052,000 and 495 FTE's for this activity,
the same as the administration's request.
COMMERCIAL SPACE TRANSPORTATION
The Committee recommends $6,182,000 and 34 FTE's for this activity.
The Committee's recommendation for the Commercial Space
Transportation Office is the same as the administration's request.
ADMINISTRATION
The Committee recommends $262,143,000 and 1,987 FTE's for this budget
activity. The Committee has fully funded the administration's request
for fiscal year 1998 in the administration activity level.
STAFF OFFICES
The Committee recommends $71,930,000 and 591 FTE's for this budget
activity, the same as the requested amount.
BILL LANGUAGE
Second career training program .--The Committee has included bill
language which was included in the President's budget request which
prohibits the use of appropriated funds for the second career training
program. This prohibition has been carried in annual appropriations acts
for many years.
Sunday premium pay .--The bill retains a provision, first included
in the fiscal year 1995 appropriations bill, which prohibits FAA from
paying Sunday premium pay, except in those cases where the individual
actually worked on a Sunday. This provision is identical to that which
was in effect for fiscal years 1995, 1996, and 1997. It was requested by
the administration for fiscal year 1998.
Manned auxiliary flight service stations .--The Committee has
retained bill language which was requested by the administration to
prohibit the use of funds for operating a manned auxiliary flight
service station in the contiguous United States. There is no funding
provided in the ``Operations'' account for such stations in fiscal year
1998.
Commercial space transportation .--The Committee has retained
language which prohibits the use of any funds from the airport and
airway trust fund for the support of the operations and activities of
the Associate Administrator for Commercial Space Transportation. This
prohibition was requested by the administration.
OTHER
GPS nonprecision approaches .--The Committee urges FAA to establish
a global positioning system [GPS] nonprecision instrument approach at
Atka, AK, along with appropriate weather, communications, and lighting
equipment.
The Committee also urges the FAA to seriously consider developing, in
conjunction with the Pennsylvania Department of Transportation, Bureau
of Aviation, 200 helicopter-only GPS approach systems to support
emergency air medical services in Pennsylvania.
User fees .--The administration's request included $300,000,000 in
new aviation user fees to be appropriated for operations. The Committee
does not recommend such an approach. Instead, the Committee recommends
an appropriation of $5,325,900,000, which will be supplemented by
$50,000,000 in user fees that were authorized last year and should be
available for operations expenses in fiscal year 1998.
Last year the Committee approved an administration request for
$75,000,000 in new user fees in order to offset a portion of FAA
operations costs. In approving these new user fees the Committee made
clear this was on a trial basis only and further noted that expansion of
the user fee concept in future years would depend upon whether a
consultative process had been developed in concert with specific fee
schedules. At this point, that standard has not been met. Based on the
FAA's first attempt to craft such a rule (the foreign overflight fee),
which has resulted in concerns being raised in Congress, the U.S.
Department of State, and the U.S. Court of Appeals for the District of
Columbia, it is apparent to the Committee that Congress should be very
wary of providing the FAA with such authority in the future.
House and Senate committees have made clear to FAA that, for safety
reasons, Congress did not intend to authorize foreign overflight fees on
general aviation when it granted FAA authority to establish overflight
fees. In addition, the Committee believes general aviation operations
should be exempted from the rule since the administrative cost of
including such operations likely would exceed the anticipated fees from
general aviation sources. To date, FAA has failed to follow the
direction of Congress in this matter.
The Committee also believes Canada-to-Canada and Mexico-to-Mexico
overflights should be exempted, provided those two countries do not
impose similar charges on flights operated by United States citizens.
The Committee is concerned that, absent such an exemption, Mexico and
Canada will be forced to impose similar overflight fees on United States
airlines that presently are not charged for such services. A fee which
invites retaliation by a foreign government is nothing more than a
hidden tax on the American people. Further, such fees may have the
perverse effect of influencing airlines' choice of airspace or takeoff
and landing preferences which may have a deleterious impact on safety.
In addition, since there are more American domestic operations that
transit foreign airspace, the financial impact on United States airlines
will be greater than that on foreign airlines, so the Committee also
questions the FAA's interim final rule approach from a national interest
vantage.
The Committee is concerned that the FAA's interim final rule fails to
comply with international law and bilateral aviation obligations of the
United States. The Committee understands the U.S. Department of State
has received diplomatic correspondence from many countries expressing
concern that the FAA, inconsistent with our international commitments,
failed to provide meaningful advance consultation. Specifically, these
governments assert that the cost allocation materials made available in
support of the interim final rule were insufficient to permit an
accurate review or analysis of the reasonableness of the overflight
charges and that FAA failed to adequately respond to questions raised
about the rule. The Committee expects that the FAA will be responsive to
U.S. Department of State's entreaties that FAA address the concerns of
the international community. To date the rule has been formally objected
to by Canada, the United Kingdom, Hong Kong, and Austria. In addition, a
combined diplomatic note was presented to the Department of State by the
Embassies of Australia, Belgium, Canada, Denmark, Finland, France,
Germany, Greece, Iceland, Ireland, Italy, Japan, the Netherlands, New
Zealand, Norway, Portugal, Spain, Sweden, Switzerland, the United
Kingdom, and the Commission of the European Union. These concerns are
currently the subject of pending litigation in the U.S. Court of Appeals
for the District of Columbia.
The Committee rejects the FAA's contention to the international
community that the United States' obligation to provide prior
consultations can be fully met by giving affected parties an opportunity
to comment after a rule has gone into effect. We expect foreign
countries to engage in meaningful prior consultations with U.S. airlines
before they impose any fees and, accordingly, expect nothing less from
the FAA with respect to affected foreign parties. The Committee does not
share FAA's cavalier attitude about complying with the United States'
international law and bilateral aviation obligations. The Committee is
disappointed that, to this point, FAA has failed to develop an adequate
consultative process and, based on FAA's performance in establishing
foreign overflight fees, is skeptical of FAA's ability to administer a
more comprehensive user fee system.
FACILITIES AND EQUIPMENT
(Airport and Airway Trust Fund)
Appropriations, 1997 $1,937,700,000
Budget estimate, 1998 1,875,000,000
Committee recommendation 1,889,004,883
Under the ``Facilities and equipment'' appropriation, safety,
capacity and efficiency of the Federal airway system are improved by the
procurement and installation of new equipment and the construction and
modernization of facilities to keep pace with aeronautical activity and
in accordance with the Federal Aviation Administration's comprehensive
capital investment plan [CIP], formerly called the national airspace
system [NAS] plan.
CIP MILESTONES FOR MAJOR SYSTEM ACQUISITIONS
System name Year of first-site implementation Year of last-site implementation
1983 NAS plan 1991 CIP 1993 CIP 1996 CIP 1997 CIP 1983 NAS plan 1991 CIP 1993 CIP 1996 CIP 1997 CIP
Advanced automation system [AAS] 1990 1991 1991 (\1\) (\1\) 1994 2001 2004 (\1\) (\1\)
Air route surveillance radar [ARSR 4] 1988 1993 1994 1996 1996 1991 1996 1996 1997 (\6\)
Airport surface detection equipment [ASDE 3] 1987 1992 1993 1993 1993 1990 1994 1996 1999 1999
Automated weather observing system [AWOS] 1986 1989 1989 1989 1989 1990 1997 1997 2000 2001
Central weather processor [CWP] 1990 1991 1991 1991 1991 1991 1998 \7\1992 \7\1993 \7\1993
Flight service automation system [FSAS] 1984 1991 1991 1991 1991 1989 1995 1994 1995 1995
Mode S 1988 1993 1994 1994 1994 1993 1996 1996 1998 1999
Radio microwave link [RML] replacement and expansion 1985 1986 1986 1986 1986 1989 1994 1993 1993 1993
Terminal doppler weather radar [TDWR] (\8\) 1993 1994 1994 1994 (\8\) 1996 1996 (\9\) (\9\)
Voice switching and control system [VSCS] 1989 1995 1995 1995 1995 1992 1997 1997 1997 1997
\1\The AAS Program has been restructured into three areas: En route [DSR], terminal [STARS], and tower [TAP].
\2\STARS schedule was being rebaselined in keeping with new acquisition strategy.
\3\TCCC schedule was being rebaselined to reflect the incorporation of surface management advisor [SMA].
\4\TCCC has been replaced by the Tower Automaton Program [TAP].
\5\The Tower Automation Program [TAP] schedule is currently under review.
\6\ARSR 4 last-site implementation date has not been determined due to environmental issues at Ajo, AZ.
\7\Dates denoted are for MWP I only. The CWP RWP segment has been eliminated as a continuation of the CWP Program, and has been merged with MWP II into the Weather and Radar Processor [WARP] Program.
\8\The TDWR was not included in the 1983 NAS plan.
\9\TDWR last-site implementation indefinite due to site availability and land acquisition problems.
Source: FAA 1983 NAS plan, 1991, 1993, 1995 CIP, 1997 GAO ``Status of the FAA's Modernization Program.''
REASONS FOR DELAY AND COST INCREASES IN CIP PROJECTS
System name Reasons for delay
Advanced automation system [AAS] In general, AAS delays were due to an overly ambitious plan, inadequate FAA oversight of the contractor, and ineffective resolution of requirements issues. The AAS Program has been restructured into three areas: En route, terminal, and tower.
Air route surveillance radar [ARSR 4] Problems with the radar's development and site preparation delayed first-site implementation. Testing took longer than originally expected. Delays have also occurred due to changes in system design, interface problems with other ATC systems, and slips in site construction. The last-site implementation change in the 1997 CIP is due to the environmental assessment having to be reaccomplished at Ajo, AZ.
Airport surface detection equipment [ASDE 3] Original delays occurred because FAA and the contractor underestimated software complexity. FAA changed some requirements, and testing uncovered some performance problems. Software development, establishing remote towers, site selection/preparation, and the addition of seven systems have delayed the program.
Automated weather observing system [AWOS] Site prep, installation, and maintenance problems, as well as delays in receiving Government-furnished equipment contributed to original delays. Last-site implementation delay occurred because of communications funding shortfalls and installation delays of the communications infrastructure to deliver weather information. The last-site implementation change in the 1997 CIP is due to the addition of ASOS systems per fiscal year 1997 congressional direction.
Central weather processor [CWP] Early software development problems and software discrepancies during testing delayed the system in early stages. The program was descoped to just the CWP-MWP I segment, which is now fully implemented.
Flight service automation system [FSAS] Original delays occurred because of software development and testing problems with the Model I system. Program implementation is complete.
Mode S Problems in developing hardware and software during initial phases delayed the system, and software problems caused a delay in first-site implementation. Implementation of the last site has been moved due to en route interface requirements. The last-site implementation change in the 1997 CIP is due to site preparation delays.
Radar microwave link [RML] replacement and expansion In the early stages, site acquisition and prep problems delayed the system. Other delays occurred because of a change in the prime contractor and due to problems encountered during operational test and evaluation. Program implementation is complete.
Terminal doppler weather radar [TDWR] Site availability and land acquisition problems have delayed last-site implementation. Last-site implementation remains indefinite. TDWR has experienced schedule delays because of site availability and land acquisition problems.
Voice switching and control system [VSCS] Early delays were due to the two prototype contractors having technical difficulties in meeting FAA's requirements for system reliability. Additional delays occurred because of software development and integration problems during the upgrade of the prototype to a production model. The implementation schedule has not changed since the 1991 CIP. The last-site implementation was achieved on schedule in February 1997.
The bill includes an appropriation of $1,889,004,883 for the
facilities and equipment of the Federal Aviation Administration. The
Committee's recommended distributions of the funds for each of the major
accounts are as follows:
FACILITIES AND EQUIPMENT
Projects Fiscal year 1998 budget estimate Committee recommendation
Engineering, development, test, and evaluation:
En route programs:
Aviation weather services improvements $23,000,000 $23,000,000
Oceanic automation system 32,000,000 32,000,000
Next generation VHF air/ground communication system 7,400,000 7,400,000
Air traffic management 18,240,000 18,240,000
---------------------------------- --------------------------
Subtotal, en route programs 80,640,000 80,640,000
================================== ==========================
Terminal programs:
Terminal digital radar (ASR 11) 42,200,000 35,800,000
Terminal Automation Program 68,000,000 68,000,000
Weather systems processor [WSP] 6,200,000 5,200,000
---------------------------------- --------------------------
Subtotal, terminal programs 116,400,000 109,000,000
================================== ==========================
Landing and navigational aids programs:
Local area augmentation system [LAAS] for GPS 6,500,000 6,500,000
Wide area augmentation system [WAAS] 101,530,000 101,530,000
---------------------------------- --------------------------
Subtotal, landing and navigational aids programs 108,030,000 108,030,000
================================== ==========================
Research, test, and evaluation equipment and facilities:
Independent operational test and evaluation [IOT&E] sup 3,200,000 3,200,000
FAA Technical Center facility--technical building lease 5,290,000 5,290,000
NAS improvement of system support laboratory 2,000,000 2,000,000
Technical Center facilities 7,000,000 7,000,000
Infrared heating for aircraft deicing 970,000
---------------------------------- --------------------------
Subtotal, research, test, and evaluation equipment and facilities 17,490,000 18,460,000
---------------------------------- --------------------------
Total, engineering, development, test, and evaluation 322,560,000 316,130,000
================================== ==========================
Air traffic control facilities and equipment:
En route programs:
Long Range Radar [LRR] Program--replace/establish 6,600,000 6,600,000
En Route Automation Program 214,240,000 214,240,000
Next generation weather radar [Nexrad] 3,000,000 3,000,000
Air traffic operations management system [ATOMS] 1,000,000 1,000,000
Weather and radar processor [WARP] 24,400,000 24,400,000
Aeronautical data link [ADL] applications 8,000,000 4,000,000
ARTCC building improvements/plant improvements 98,551,700 98,551,700
Voice switching and control system [VSCS] 50,700,000 50,700,000
Remote communication facilities [RCF's]--expand/relocate 1,440,000 3,140,000
Air traffic management [ATM] 44,200,000 44,200,000
Data multiplexing network [DMN] 3,900,000 3,900,000
Critical communications support 4,300,000 4,300,000
DOD base closure--facility transfer 2,200,000 2,200,000
Backup emergency communications [BUUEC]--interim 8,500,000 8,500,000
Air/ground communication radio frequency interference 2,000,000 2,000,000
ATC beacon interrogator [ATCBI] replacement 7,400,000 7,400,000
Low density radio communicaters link 29,840,000 23,840,000
ATC en route radar facilities 6,748,300 6,748,300
En route communications and control facilities 918,295 918,295
Volcano monitor 2,000,000
---------------------------------- --------------------------
Subtotal, en route programs 517,938,295 511,638,295
================================== ==========================
Terminal programs:
Terminal doppler weather radar [TDWR]--provide 4,800,000 2,300,000
Terminal Automation Program 40,000,000 40,000,000
Terminal air traffic control facilities--replace 62,000,000 70,000,000
Air traffic control tower [ATCT]/TRACON facilites--improve 18,631,115
Terminal voice switch replacement [TVSR]/enhanced terminal voice switch 9,940,000 1,640,000
Radio control equipment 3,000,000 3,000,000
Employee safety/OSHA and environmental standards compliance 43,700,000 43,700,000
Chicago TRACON 4,700,000 4,700,000
New Austin Airport at Bergstrom 3,700,000
Potomac (Dulles) TRACON 2,600,000 2,600,000
Denver TRACON 1,200,000 1,200,000
Northern California TRACON 21,700,000 21,700,000
Atlanta TRACON 15,600,000 15,600,000
Tower Automation Program 2,000,000
Voice Recorder Replacement Program [VRRP] 3,000,000 3,000,000
NAS infrastructure management systems [NIMS] 26,750,000 25,350,000
Airport surveillance radar [ASR 9] 23,700,000 23,700,000
Terminal radar [ASR]--improve 3,240,550 3,240,550
Terminal communications improvements 2,189,002
---------------------------------- --------------------------
Subtotal, terminal programs 292,450,667 261,730,550
================================== ==========================
Flight service programs:
Automated surface observing system [ASOS] 14,850,000 24,850,000
FSAS operational and supportability implementation system [OASIS] 4,900,000 4,900,000
Digital altimeter setting indicators [DASI] 1,600,000 1,600,000
Flight services facilities improvement 1,418,500 1,418,500
---------------------------------- --------------------------
Subtotal, flight services 22,768,500 32,768,500
================================== ==========================
Landing and Navigational Aids Program:
Very high frequency omnidirectional radio range [VOR] with distance measuring equipment 2,445,000 2,445,000
Instrument landing system [ILS]--establish/upgrade 3,000,000 23,000,000
ILS replace 2,200,000 2,200,000
Low level windshear alert system [LLWAS]--upgrade 4,300,000 4,300,000
Runway visual range [RVR]--establish 3,500,000 3,500,000
Gulf of Mexico Offshore Program 3,200,000 3,200,000
Instrument landing system [ILS]--replace Wilcox Cat II/III 2,745,000 2,745,000
Wide area augmentation system [WAAS] 51,300,000 51,300,000
Nondirectional beacon [NDB] 1,400,000 1,400,000
Navigational and landing aids--improve 2,402,538 3,357,538
Tactical landing systems 10,000,000
Precision approach path indicators [PAPI] 5,000,000
Juneau, AK 3,500,000
---------------------------------- --------------------------
Subtotal, landing and navigational aids 76,492,538 115,947,538
================================== ==========================
Other ATC facilities programs:
Alaskan NAS interfacility communications system [ANICS] 8,600,000 8,600,000
Fuel storage tank replacement and monitoring 30,000,000 30,000,000
FAA buildings and equipment--improve/modernize 10,000,000 10,000,000
Electrical power systems--sustain/support 16,200,000 20,200,000
Air navigational aids and air traffic control facilities (local projects) 2,000,000 2,000,000
Airport cable loop systems 500,000 500,000
Computer-aided engineering graphics [CAEG] replacement 1,000,000 1,000,000
Aircraft and Related Equipment Program 2,000,000 2,000,000
Aircraft fleet modernization 2,701,000 18,951,000
---------------------------------- --------------------------
Subtotal, other ATC facility programs 73,001,000 93,251,000
---------------------------------- --------------------------
Total, air traffic control facilities and equipment 982,651,000 1,015,335,883
================================== ==========================
Nonair traffic control facilities and equipment:
Support equipment:
NAS Management Automation Program [NASMAP] 1,000,000 1,000,000
Hazardous materials management 20,000,000 7,000,000
Aviation safety analysis system [ASAS] 16,800,000 16,800,000
Operational data management system [ODMS] 1,600,000 1,600,000
Logistics support systems and facilities [LSSF] 9,749,000 9,749,000
Test equipment--maintenance support for replacement 500,000 500,000
Integrated flight quality assurance 4,000,000 4,000,000
Safety performance analysis system [SPAS] 4,100,000 4,100,000
Performance enhancement system [PENS] 11,000,000 11,000,000
National Aviation Safety Data Analysis Center [NASDAC] 2,000,000 2,000,000
---------------------------------- --------------------------
Subtotal, support equipment 70,749,000 57,749,000
================================== ==========================
Training, equipment, and facilities:
Distance learning 5,500,000 5,500,000
National airspace system [NAS] training facilities 1,500,000 1,500,000
Aeronautical Center training and support facilities 6,000,000 6,000,000
Airport firefighting training [RMESTC] 750,000
---------------------------------- --------------------------
Subtotal, training, equipment, and facilities 13,000,000 13,750,000
---------------------------------- --------------------------
Total, nonair traffic control facilities and equipment 83,749,000 71,499,000
================================== ==========================
Mission support:
System support and services:
System engineering and development support 31,930,000 31,930,000
Program support leases 27,500,000 27,500,000
Logistics support services [LSS] 6,000,000 6,000,000
Mike Monroney Aeronautical Center--lease 15,200,000 15,200,000
In-plant national airspace system [NAS] contract support services 2,500,000 2,500,000
Transition engineering support 44,800,000 44,800,000
Frequency and spectrum engineering 1,500,000 1,500,000
Permanent change of station [PCS] moves 3,800,000 3,800,000
FAA corporate system architecture 5,200,000 5,200,000
Technical services support contract [TSSC] 54,700,000 54,700,000
Resource Tracking Program [RTP] 500,000 500,000
Center for Advanced Aviation System Development 55,300,000 55,300,000
Year 2000 date change program 18,000,000 18,000,000
---------------------------------- --------------------------
Total, mission support 266,930,000 266,930,000
================================== ==========================
Personnel and related expenses 219,110,000 219,110,000
---------------------------------- --------------------------
Total, all activities 1,875,000,000 1,889,004,883
engineering, development, test, and evaluation
The Committee recommends $316,130,000 for various engineering,
development, test, and evaluation activities.
En route automation includes the display system replacement [DSR] as
a cost-effective modification to the initial sector suite system [ISSS];
display channel complex rehost [DCCR], a low-risk contingency system;
advanced en route automation [AERA], enhancements providing direct
benefits to airway users; en route software development support [ERSDS],
maintains software in existing system; en route automation equipment,
maintains existing hardware; flight data input/output [FDIO]; and en
route stand alone radar training system [ESARTS].
En route programs
Aviation weather service improvements .--The Committee has included
$23,000,000 as requested by the administration.
The Committee is aware of a plan developed by the Port Authority of
New York and New Jersey in concert with the airports and airlines
serving the New York/New Jersey region to procure with non-Federal funds
a prototype integrated terminal weather system [ITWS] for installation
at the New York TRACON. This installation will act as an interim measure
until FAA installs a production model ITWS at Federal expense at the New
York TRACON in 2001. The Committee strongly encourages the Administrator
to work cooperatively and expeditiously with the Port Authority of New
York and New Jersey and the airports and air carriers serving the New
York/New Jersey region to ensure that this interim equipment is
installed and operational as soon as possible. The Committee further
directs that this interim installation, in no way, cause the FAA to
delay the delivery of the production model ITWS to the New York TRACON.
Oceanic automation system .--The oceanic automation system is a
state-of-the-art platform that would provide improved air traffic
control over the oceans. Of the amount requested, $2,000,000 would be
used for continued development of the data link component, and project,
$6,000,000 for program management, and $24,000,000 for phase 2, which is
new software development replacing flight data processing structure and
software.
Terminal programs
Terminal digital radar (ASR 11). --The Committee has provided
$35,800,000 for the terminal digital radar (ASR 11) program, which is a
joint program with the Department of Defense and the Federal Aviation
Administration. That is $6,400,000 less than the administration's
request of $42,200,000. The administration's request includes
$33,000,000 for procurement of ASR 11 units and associated support costs
and $9,200,000 for digitizers for the ASR 8 systems. The Committee
understands that FAA plans to buy 10 digitizers under the request and
that the leadtime for adding digitizers to the ASR 8's is about 1 year.
FAA's current schedule shows that 7 of the 10 digitizers are designated
for STARS equipment that will not be operational before May 2001.
Therefore, the Committee has reduced the request by $6,400,000, an
amount which can be deferred until fiscal year 1999 with no adverse
impact on the program.
Terminal automation program. --The Committee has provided the
requested $68,000,000 for the terminal automation program, also known as
standard terminal automation replacement system [STARS]. The fiscal year
1998 request is the second year on the STARS contract. The contract was
awarded in September 1996. Fiscal year 1998 funds will be used to test
and enhance commercial-off-the-shelf/nondevelopmental item
[COTS/NDI]-based automated radar terminal systems for initial use in
terminal radar approach control facilities and to develop the final
system capability. The STARS contract is an exceptionally aggressive
contract and one which is heavily dependent on software development
notwithstanding the emphasis on COTS/NDI.
Weather systems processor .--The administration has requested
$6,200,000 for the weather systems processor program. Funds in fiscal
year 1998 would be used to continue limited production activities and to
establish final production baseline. These processors will provide
terminal weather radar capability at those ASR equipped airports that do
not have terminal doppler weather radars. The Committee continues to be
concerned that there are a number of line items in the FAA's facilities
and equipment and research, engineering, and development budgets which
basically are intended to produce the same solution.
The administration's request includes $1,000,000 to develop
specifications and a statement of work for the final production
contract. The Committee understands that the FAA does not plan to award
the final production contract until fiscal year 2001 and so has reduced
$1,000,000 from the request. FAA can defer costs related to the final
production contract until fiscal year 1999, which will allow time to
identify and resolve problems that may occur with the first eight
systems and to decide on whether this technology or another is the best
way to provide a weather radar solution at existing airports.
Landing and navigational aids programs
Local area augmentation system [LAAS] for GPS .--The Committee has
included $6,500,000 as requested by the administration. These funds will
support development of the functional specification for LAAS based on
the architecture to be selected in fiscal year 1997. Hardware and
software fabrication and demonstration will commence to evaluate and
validate the functional specification and minimum operational
performance standards. As development of this system moves forward, the
Committee urges the FAA to give serious consideration to installation of
early production units at Anchorage and Fairbanks International Airports
in Alaska, where they will have significant benefits.
Wide area augmentation system [WAAS]. --Despite serious concerns
about rising projections of the total cost of the WAAS program and
concerns about whether the program is being well managed, the Committee
is including the full request for this program but directs that none of
the fiscal year 1998 funding is to be obligated until the Secretary
reports to the Senate and House Transportation Appropriations
Subcommittees on the status and management of the program. Specifically,
the Secretary should provide a detailed report to the Senate and House
Appropriations Committees, including:
(1) key program milestones and deliverables related to the systems,
communications, software, and fielding components of the program and
plans for developmental and operational testing of the system during the
upcoming fiscal year;
(2) baseline cost, schedule, and performance goals;
(3) the probability of meeting specified milestones and deliverables;
(4) a detailed assessment of the technical risks associated with the
major components of the WAAS program and FAA's plans to mitigate those
risks; and
(5) a certification by the Administrator of the FAA that the fiscal
management controls of the prime contractor and its major subcontractors
meet or exceed accepted U.S. Government standards.
Additionally, FAA shall report quarterly on actual progress made
against the baseline cost, schedule, and performance goals, the
justification for any deviation from the goals, and the impact of any
deviations. Specifically, the FAA shall report:
(1) current cost variances that are 10 percent or more above the
baseline goals, reasons for the variances, and corrective actions that
have or will be taken;
(2) current schedule variances that are 10 percent or more behind the
baseline schedule, reasons for the variances, and corrective actions
that have or will be taken;
(3) variances in performance goals from the baseline, reasons for the
variances, and corrective actions that have or will be taken;
(4) the effect of corrective actions cited above on the overall
program cost, schedule, and performance goals;
(5) an overall progress rating, based on specified criteria, that
indicates whether the contractor is meeting cost, schedule, and
technical requirements for: the total program, systems, communications,
software, fielding, resource management, and program management;
(6) description of any modifications to the WAAS cost, schedule, and
performance baselines; and
(7) the status of contractor staffing.
Not later than March 1, 1998, the Comptroller General shall review
the status of the WAAS program and submit to the Senate and House
Committees on Appropriations a report on the results of the review. The
report shall address the status of cost, schedule, and performance
modifications and include a conclusion regarding whether the WAAS
program is likely to be successfully carried out within the cost and
schedule baseline. Of the funds made available for WAAS in fiscal year
1998, the Committee directs that FAA not obligate more than 70 percent
until the earlier of April 1, 1998, or the date on which the Senate and
House Transportation Appropriations Subcommittees advise the
Administrator that the Administrator may obligate the remaining funds.
If, after reviewing the Department's reports and the Comptroller
General's report, the subcommittees do not have confidence in the
progress of the WAAS contract, they may consider directing reprogramming
of WAAS funds to the air traffic management subactivity to support the
center/TRACON automation system, conflict probe, and collaborative
decisionmaking programs.
Research, test, and evaluation equipment and facilities
Infrared heating for aircraft deicing .--The Committee has added
$970,000 to demonstrate infrared heating for aircraft deicing at the
Rhinelander/Oneida County Airport. This technology has been tested by
the FAA, and that test found that its application appears to be a
cost-effective alternative to glycol for deicing aircraft and that
additional testing is warranted. Infrared heating also offers
environmental benefits in that its use will reduce contamination of the
watershed from airport runoff. Rhinelander/Oneida County Airport
typifies the small commercial airport, and the climate of the region and
the location of the airport in northern Wisconsin are appropriate for
further evaluation of this technology in an operational commercial
environment. The Committee believes this project will move us closer to
making this advanced safety technology available to pilots, airports,
and passengers across the country.
AIR TRAFFIC CONTROL FACILITIES AND EQUIPMENT
En route programs
Aeronautical data link [ADL] applications .--The administration is
requesting $8,000,000 to continue development of ADL, which will provide
the infrastructure necessary to allow the exchange of controller-pilot
communications and flight information services using digital technology
in the en route, terminal, and tower environments. The Committee
understands that the FAA has been scaling back ADL requirements to
design a more cost-effective and affordable project and is assessing the
project's remaining requirements. As of April 1997, the FAA had
obligated only $1,200,000 of the $17,425,000 that Congress appropriated
in fiscal year 1997 and further obligations were pending clarification
of the program's direction.
Because of uncertainty over FAA's priorities and plans for ADL and
the time it will take to obligate available funds once requirement
decisions are made, the Committee is recommending $4,000,000 for this
program in fiscal year 1998, which will allow FAA to spend down
available, unobligated balances.
Air route traffic control center [ARTCC] improvement/plant
modernization/space expansion.-- FAA is requesting $98,551,700 to
perform needed modernization and expansion at its ARTCC's to accommodate
new equipment that will modernize controller displays and communications
systems. The Committee has provided the full request.
Honolulu CERAP .--For the relocation of the Honolulu Combined Center
radar approach control [CERAP], the Committee has included $12,100,000.
The FAA has made the determination to relocate the CERAP to the Honolulu
air traffic control tower/terminal radar approach control at the
Honolulu International Airport. According to the FAA, the design and
construction of the new facility will be completed in July 1999. After
construction of the new facility, it will take approximately 1 year to
install and test the communications and radar equipment and an
additional 6 months to train the controllers. The CERAP at Honolulu
International Airport is scheduled to be operational on January 1, 2001.
The Committee has supported this relocation effort in the past and
expects the FAA to meet its January 1, 2001, deadline. Any further delay
of this relocation project is unacceptable to the Committee.
Remote communications facilities [RCF's]--expand/create .--RCF's
enable pilots to communicate with air traffic controllers and flight
service stations in areas where normal radio communications are not
possible. The administration requested $1,440,000 to expand or relocate
five existing RCF's. The Committee has added $1,700,000 to establish new
remote communication outlets in five Alaska sites where air/ground
communications are nonexistent and aviation safety is threatened.
Low density radio communications link .--Congress enacted
legislation that has resulted in the sale of aeronautical radio spectrum
used for operation of FAA long-range radars and FAA microwave radio
communications links. As a result of these sales, FAA must relinquish
operation of some of its communication and radar systems effective
January 1, 1999. FAA is the largest single Government user of radio
spectrum, and each frequency assignment supports safety, capacity, and
efficiency. Therefore, the loss of such spectrum required for existing
and future airspace operations could have serious impacts on the
aviation traffic services provided. The fiscal year 1998 request of
$29,840,000 is to continue conversion of FAA communication facilities to
higher frequencies.
The Committee understands that about $10,000,000 of the request is to
install filters on long-range radars and that, of this amount, FAA plans
to obligate about $4,000,000 during fiscal year 1998 to install filters
on newer radars and $6,000,000 on older radars. Before that can occur,
however, the Committee understands that FAA has to do prototype work to
develop the filters that can work on these radars and that work is
expected to take through July 1998. A contract for filter installation
will likely not be awarded until about February 1999. Therefore, the
Committee has reduced the request by $6,000,000 for filter installation
that can be deferred until fiscal year 1999.
Volcano monitor .--The Committee has included an additional
$2,000,000 for the Alaska Volcano Observatory for equipment and data
transmission facilities on suspect volcanoes across the Alaska peninsula
and the Aleutian Islands. The Committee urges the FAA to incorporate
this item in its future budget requests.
Terminal programs
Terminal doppler weather radar [TDWR] .--The administration is
requesting $4,800,000 to complete implementation activities for three
TDWR systems that are currently in storage. Of the request, about
$3,800,000 is for land acquisition, facility construction, equipment
installation and checkout, and other site activities associated with the
San Juan, Chicago-Midway, and New York systems. The Committee
understands that FAA is considering shifting the planned system from
Chicago-Midway to Colorado Springs (in which case, the existing system
at Chicago O'Hare will provide coverage for Chicago-Midway) and that FAA
does not expect to have a final environmental impact statement for the
proposed New York site until December 1997 so that the system is not
expected to be operational until late 1999. Because of the uncertainties
and delays with respect to the Chicago-Midway and New York
installations, the Committee is recommending a $2,500,000 reduction in
the request. If FAA is able to move forward more quickly, it should have
unobligated funds available to proceed.
Terminal automation program .--The administration is requesting
$40,000,000 for this subactivity. This includes $37,500,000 to procure
five STARS systems and six support systems (STARS central support
complex [SCSC] and five operational support facilities [OSF]),
$1,000,000 to replace old television microwave link equipment with video
compression to maintain the integrity of the digital bright radar
indicator tower equipment [DBRITE] signal at affected satellite towers,
and $1,500,000 for terminal software development implementation.
The Committee is very concerned about this important program and
whether the FAA can meet the aggressive schedule it has set. The
Committee is including the full request in order to provide the FAA the
opportunity to demonstrate successful management of this program using
the new acquisition authority the Congress provided last year.
In April 1997, the Department sought approval to reprogram
$10,000,000 in small reductions from a broad range of F&E programs to
the terminal automation program in order to have initial production
items, including the first site (Boston) and support systems (training
and logistics), in place when the STARS software becomes available.
Reprogramming was necessary because, as a result of FAA's new
acquisition process, the contract was awarded and the software was
expected to be available sooner than originally projected. Both the
Senate and House Appropriations Subcommittees on Transportation agreed
on the reprogramming of the $10,000,000, but, as a result of a
disagreement between the subcommittees on another element of the
proposed reprogramming, the FAA did not proceed with the reprogramming
for the terminal automation program. The Committee regrets FAA's failure
to reprogram the $10,000,000 when both subcommittees agreed to that
reprogramming. If a reprogramming is still necessary, the Committee
urges the FAA to reprogram up to $10,000,000 as needed from F&E funds
provided for fiscal year 1998 or prior years to the terminal automation
system in order to meet the needs of the STARS program.
The Committee stands ready to assist the FAA to resolve problems with
this program as they are identified and as solutions are proposed. The
Committee is not sympathetic with an approach that would fund two
simultaneous, alternative approaches in the event one is not successful.
Terminal air traffic control facilities--replace .--The Committee
has included an additional $8,000,000 above the administration's request
of $62,000,000. The Committee intends $5,000,000 of this increase to be
added to $700,000 in the request for a new control tower at North Las
Vegas, NV, in order to accelerate this project and $3,000,000 to be used
for a new control tower at Martin State Airport in Maryland. Martin is a
reliever airport for Baltimore-Washington International Airport with
growing traffic, and its present tower is almost 50 years old.
Airport traffic control tower [ATCT]/TRACON facilities--improve
.--The administration is requesting $18,631,115 to upgrade and improve
various terminal facilities and equipment on a continuing basis to
provide an acceptable level of safe service and to meet current and
future operational requirements. As of March 31, 1997, ATCT/TRACON
facilities improvement had $36,100,000 in unobligated balances. The
Committee understands that FAA plans to obligate only $23,200,000 of
that amount through the end of fiscal year 1998 and to obligate only
$4,800,000 of the requested $18,631,115 in fiscal year 1998. Therefore,
the Committee is recommending no new funding for this program in fiscal
year 1998. FAA should have ample funds from previous years.
Within the amounts available for obligation, the Committee urges the
FAA to seriously consider installation of an upgraded 360-degree air
traffic control simulator at Chicago's O'Hare Airport. The existing
135-degree simulator is ill-equipped to handle the training needed for
the new traffic control tower and, as a result, air traffic controllers
are training on the job, increasing the chance for distractions to
operating controllers and delays to the flying public.
Terminal voice switch replacement/enhancement .--The Committee has
reduced the requested funding for this program by $8,300,000. The
administration's request of $9,940,000 includes $8,300,000 to procure 16
enhanced terminal voice switches [ETVS]. The Committee is recommending a
reduction of $8,300,000 because it understands that it will be at least
July 1997 before FAA completes acceptance testing of the ETVS and FAA
already has funding for the first 100 such switches. If the manufacturer
continues to meet its scheduled milestones, FAA can use prior-year
unobligated funds to continue this effort.
The Committee urges the FAA to replace the outdated communications
system at Charlotte-Douglas Airport in North Carolina with the rapid
deployment voice switch [RDVS], rather than the untested ETVS, as
quickly as possible.
New Austin Airport at Bergstrom .--The city of Austin, TX, is
constructing a new air carrier airport at the former Bergstrom Air Force
Base, which was closed on September 30, 1993. The administration is
requesting $3,700,000 in fiscal year 1998 to complete the establishment
of communications facilities, approach/landing aids, the weather sensor
processor, and to relocate radar and navigation equipment. The Committee
is recommending no new funding for this program in fiscal year 1998
because it understands that FAA's spending plan for funds that have
already been appropriated leave approximately $14,400,000 at the end of
fiscal year 1998, much more than the requested new funding.
Potomac TRACON .--The Committee has provided $2,600,000 for the
Potomac TRACON. The Committee believes that the administration's request
is sufficient to meet proposed program initiatives for the Potomac
TRACON.
Tower automation program .--In today's airport traffic control
towers [ATCT], there is a proliferation of locally procured information
display systems [IDS]. These systems provide airport weather and
environmental information to controllers. These systems also exchange
airport information with airport management, air carriers, and the
National Weather Service. The existing IDS must be maintained and
brought under configuration control in such a way that they can be
sustained as a national program. The administration is requesting
$2,000,000 in fiscal year 1998 to initiate actions to bring the existing
IDS systems under configuration control as a national program and
establish a maintenance program for the existing IDS systems.
The Committee is concerned that FAA has yet to identify the program
office to be responsible for implementing the IDS program or to develop
a schedule baseline for the program. Moreover, the Committee understands
that, after investing $142,800,000 in the tower automation program over
the past 15 years, the FAA decided in February 1997 to end the program
because the agency viewed the program as a low priority. As a result,
FAA has little to show for this multimillion-dollar effort.
The Committee does not intend to provide additional funds for this
program until the FAA develops a sound plan. If the FAA is ready to
proceed in fiscal year 1998, it is the Committee's understanding that it
should have sufficient unobligated funds from previous years to
undertake the planned activities.
NAS infrastructure management systems [NIMS] .--The administration
is requesting $26,750,000 to provide the next generation of tools,
services, and operational philosophies that govern the management,
operation, and maintenance of the NAS infrastructure. The Committee
recommends a reduction of $1,400,000 from the request based on its
understanding that FAA has revised its estimated needs in fiscal year
1998 for wireless communications downward by that amount.
The Committee is concerned that, even after revising its estimated
needs, the FAA is assuming what appear to be very high unit costs for
wireless communication devices--specifically, $400 per pager, $917 per
cell phone, and $4,650 per satellite phone. The Committee directs the
Administrator to provide a justification to the Committee by August 30,
1997, for the unit costs it is assuming for these devices.
Airport surveillance radar [ASR 9] .--The Committee is including
$23,700,000, as requested by the administration. Within the funds
available, the Committee urges the FAA to give serious consideration to
installation of an additional ASR 9 radar at Salt Lake City
International Airport. The current system is inhibited by the
surrounding 10,000- to 12,000-foot mountains. As a result, aircraft
approaching from the south are not seen until they are essentially on
the boundary that separates approach control airspace and Salt Lake City
Center airspace. This creates problems with approach controllers'
ability to gauge how much traffic is coming from the south to blend it
with the traffic arriving from the north.
Terminal communications improvements .--The administration is
requesting $2,189,002 for this program in fiscal year 1998. The
Committee recommends no new funding in view of the large amount of
unobligated funds remaining from prior years.
Flight service programs
Automated surface observing system [ASOS] .--The Committee has
provided $24,850,000 for ASOS, $10,000,000 more than the
administration's request.
The Committee intends that the requested $14,850,000 will be used to
continue commissioning systems procured through fiscal year 1996 and for
related program management costs and the additional $10,000,000 will be
used to procure 50 new ASOS units.
Last year, the Committee discovered that FAA did not adequately fund
the program for several years. Funding was not provided for connectivity
lines, controller equipment, or operation and maintenance funds. That
oversight has left the FAA short of assets to fund ASOS systems for
nontowered airports. The FAA, the National Transportation Safety Board
[NTSB], and user aviation associations have identified over 200 sites
which should be equipped with ASOS.
While the FAA works through previously identified problems, the ASOS
manufacturing line must remain in operation. If the assembly line shuts
down, it will be difficult to restructure the manufacturing team in the
future. The facts relevant to ASOS demonstrate that there is a
requirement for more than 200 units.
The Committee urges the FAA to install one of these new ASOS units at
Mitchell Airport in South Dakota to replace an aged AWOS at that
airport, which has exceeded it design life.
Landing and navigational aids program
