Consideration of how humans will use modernized air traffic control systems is best done before deploying them, according to a Government Accountability Office report dated August 6.

The Federal Aviation Administration did not fully think through "human factors" considerations when developing the En Route Automation Modernization system, for example, the GAO report finds. ERAM is a $2.1 billion effort to replace primary air traffic control computers at the FAA's 20 en route air traffic control centers. The primary contractor is Lockheed Martin and the project is a key supporting system for the FAA's $40 billion NextGen effort to automate air traffic control with satellite-based location data.

ERAM has experienced software-related problems and delays in its roll out; the FAA has said it is unlikely that all 20 ERAM systems will be fielded and operational by the original December 2010 deadline.

Air traffic controllers involved in initial operations capabilities tests in the Salt Lake City center have said they found the system "cumbersome, confusing and difficult to navigate," the GAO report states. As a result, the FAA must ensure better human-ERAM interaction before it deploys the new system across the nation, possibly leading to extra costs or delay. FAA officials told GAO auditors that human factor engineering design was extensive in ERAM development and characterized current problems with ERAM as one of information quality.

However, the GAO report also cites other systems where human factor considerations may have received short shrift, including the Operational and Supportability Implementation System (OASIS) weather and flight plan system and the Standard Terminal Automation Replacement System (STARS), which replaces against FAA and Defense Department terminal systems. FAA failure to provide adequate attention to human factors issues when implementing STARS "resulted in schedule slips and a significant cost increase of $500 million," the GAO report states.

Since fiscal 2008, the FAA has set aside dedicated funding for human factors research and development, but "it remains to be seen" whether the added emphasis on human factors research and development will be fully integrated into future NextGen components, the report states.

Among the challenges to better consideration of human factors is a vacancy for the position of chief systems engineer for human factors. FAA officials told the GAO that the position has remained empty due to a hiring freeze, and "uncertainty as to which unit to put the position." FAA has since resolved those issues and aims to fill the position by the close of this fiscal year, which ends Sept. 30, the FAA told the GAO.

The report finds that coordination with NASA over human factors R&D has improved but still lacks a cross-agency plan to guide the two agencies. The FAA has put together a list describing all past, current and future NextGen human factors R&D project, but the list is not a plan since it lacks things that plans generally include, such as goals, time frames, and definitions of respective roles.

For more:
- Read the report, GAO-10-824 (.pdf)

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