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87–048 PDF 2014

MODERNIZING THE AVIATION SYSTEM: 

LEVERAGING THE ASSETS OF THE FAA’S 

WILLIAM J. HUGHES TECHNICAL CENTER 

(113–58) 

FIELD HEARING 

BEFORE THE

SUBCOMMITTEE ON 

AVIATION 

OF THE

COMMITTEE ON 

TRANSPORTATION AND 

INFRASTRUCTURE 

HOUSE OF REPRESENTATIVES 

ONE HUNDRED THIRTEENTH CONGRESS 

SECOND SESSION 

MARCH 11, 2014 (Egg Harbor Township, New Jersey) 

Printed for the use of the 

Committee on Transportation and Infrastructure 

( 

Available online at: http://www.gpo.gov/fdsys/browse/ 

committee.action?chamber=house&committee=transportation 

(II) 

COMMITTEE ON TRANSPORTATION AND INFRASTRUCTURE 

BILL SHUSTER, Pennsylvania, Chairman 

DON YOUNG, Alaska 

THOMAS E. PETRI, Wisconsin 

HOWARD COBLE, North Carolina 

JOHN J. DUNCAN, JR., Tennessee, 

Vice Chair 

JOHN L. MICA, Florida 

FRANK A. LOBIONDO, New Jersey 

GARY G. MILLER, California 

SAM GRAVES, Missouri 

SHELLEY MOORE CAPITO, West Virginia 

CANDICE S. MILLER, Michigan 

DUNCAN HUNTER, California 

ERIC A. ‘‘RICK’’ CRAWFORD, Arkansas 

LOU BARLETTA, Pennsylvania 

BLAKE FARENTHOLD, Texas 

LARRY BUCSHON, Indiana 

BOB GIBBS, Ohio 

PATRICK MEEHAN, Pennsylvania 

RICHARD L. HANNA, New York 

DANIEL WEBSTER, Florida 

STEVE SOUTHERLAND, II, Florida 

JEFF DENHAM, California 

REID J. RIBBLE, Wisconsin 

THOMAS MASSIE, Kentucky 

STEVE DAINES, Montana 

TOM RICE, South Carolina 

MARKWAYNE MULLIN, Oklahoma 

ROGER WILLIAMS, Texas 

MARK MEADOWS, North Carolina 

SCOTT PERRY, Pennsylvania 

RODNEY DAVIS, Illinois 

MARK SANFORD, South Carolina 

VACANCY 

NICK J. RAHALL, II, West Virginia 

PETER A. DEFAZIO, Oregon 

ELEANOR HOLMES NORTON, District of 

Columbia 

JERROLD NADLER, New York 

CORRINE BROWN, Florida 

EDDIE BERNICE JOHNSON, Texas 

ELIJAH E. CUMMINGS, Maryland 

RICK LARSEN, Washington 

MICHAEL E. CAPUANO, Massachusetts 

TIMOTHY H. BISHOP, New York 

MICHAEL H. MICHAUD, Maine 

GRACE F. NAPOLITANO, California 

DANIEL LIPINSKI, Illinois 

TIMOTHY J. WALZ, Minnesota 

STEVE COHEN, Tennessee 

ALBIO SIRES, New Jersey 

DONNA F. EDWARDS, Maryland 

JOHN GARAMENDI, California 

ANDRE ́ CARSON, Indiana 

JANICE HAHN, California 

RICHARD M. NOLAN, Minnesota 

ANN KIRKPATRICK, Arizona 

DINA TITUS, Nevada 

SEAN PATRICK MALONEY, New York 

ELIZABETH H. ESTY, Connecticut 

LOIS FRANKEL, Florida 

CHERI BUSTOS, Illinois 

SUBCOMMITTEE ON AVIATION

FRANK A. LOBIONDO, New Jersey, Chairman 

THOMAS E. PETRI, Wisconsin 

HOWARD COBLE, North Carolina 

JOHN J. DUNCAN, JR., Tennessee 

SAM GRAVES, Missouri 

BLAKE FARENTHOLD, Texas 

LARRY BUCSHON, Indiana 

PATRICK MEEHAN, Pennsylvania 

DANIEL WEBSTER, Florida 

JEFF DENHAM, California 

REID J. RIBBLE, Wisconsin 

THOMAS MASSIE, Kentucky 

STEVE DAINES, Montana 

ROGER WILLIAMS, Texas 

MARK MEADOWS, North Carolina 

RODNEY DAVIS, Illinois, Vice Chair 

BILL SHUSTER, Pennsylvania (Ex Officio) 

VACANCY 

RICK LARSEN, Washington 

PETER A. DEFAZIO, Oregon 

EDDIE BERNICE JOHNSON, Texas 

MICHAEL E. CAPUANO, Massachusetts 

DANIEL LIPINSKI, Illinois 

STEVE COHEN, Tennessee 

ANDRE ́ CARSON, Indiana 

RICHARD M. NOLAN, Minnesota 

DINA TITUS, Nevada 

SEAN PATRICK MALONEY, New York 

CHERI BUSTOS, Illinois 

CORRINE BROWN, Florida 

ELIZABETH H. ESTY, Connecticut 

NICK J. RAHALL, II, West Virginia 

(Ex Officio) 

(III) 

CONTENTS Page 

Summary of Subject Matter .................................................................................... iv 

TESTIMONY 

PANEL 1 

Hon. Michael G. Whitaker, Deputy Administrator and Chief NextGen Officer, 

Federal Aviation Administration ........................................................................ 5 

Dennis Filler, director, William J. Hughes Technical Center, Federal Aviation 

Administration ..................................................................................................... 5 

PANEL 2 

Peter F. Dumont, president and CEO, Air Traffic Control Association .............. 13 

Cynthia Castillo, president and CEO, CSSI, Inc. ................................................. 13 

Melvin Davis, national representative for NextGen, National Air Traffic Controllers Association ............................................................................................... 13 

Ben Gielow, general counsel and senior government relations manager, Association for Unmanned Vehicle Systems International ...................................... 13 

PREPARED STATEMENTS SUBMITTED BY WITNESSES 

Hon. Michael G. Whitaker and Dennis Filler, joint statement ............................ 27 

Peter F. Dumont ...................................................................................................... 38 

Cynthia Castillo ....................................................................................................... 46 

Melvin Davis ............................................................................................................ 53 

Ben Gielow ............................................................................................................... 59 

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vi 


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(1) 

MODERNIZING THE AVIATION SYSTEM: 

LEVERAGING THE ASSETS OF THE FAA’S 

WILLIAM J. HUGHES TECHNICAL CENTER 

TUESDAY, MARCH 11, 2014 

HOUSE OF REPRESENTATIVES, 

SUBCOMMITTEE ON AVIATION, 

COMMITTEE ON TRANSPORTATION AND INFRASTRUCTURE, 

Egg Harbor Township, NJ. 

The subcommittee met, pursuant to call, at 1:30 p.m., in William 

J. Hughes Technical Center, Hon. Frank A. LoBiondo (Chairman of 

the subcommittee) presiding. 

Mr. LOBIONDO. The subcommittee will now come to order. 

I would like to thank everyone for being here today. 

Let me start off by saying how Rick and I and the subcommittee, 

our thoughts and prayers are with the families of the missing Malaysian Airlines flight. I know we are all anxiously awaiting to hear 

what happened there, and at this point all we can say is our 

thoughts and prayers are with them. 

Again, let me begin by thanking everyone for being here today 

and everyone that helped organize this hearing. The FAA has been 

a great host and I really appreciate all of their efforts to accommodate us. 

I also want to thank the ranking member, Rick Larsen from the 

State of Washington, for taking time out of his day to see firsthand. 

We had a tour this morning. I think it was your first time here, 

Rick, and got a good opportunity to see why we are the premier facility in the entire United States of America—in fact, the world— 

for safety and security and research and development. Our laboratories are one of a kind, but as great as the laboratories are, it is 

the men and women who work here at the Technical Center who 

make all of this go. The dedication, the enthusiasm, the commitment to excellence is deeply appreciated, and we want to personally 

acknowledge you for that. 

I want to also welcome our witnesses today. We look forward to 

your testimony. 

I have been very fortunate to represent the Technical Center 

during my time in Congress. While I have not always been chairman of the Aviation Subcommittee, I have always been the biggest 

cheerleader and a huge supporter for the work that is done here, 

and I believe the work that goes on here will make such a tremendous difference to our aviation system and the country. 

One example of this is the work that was done here at the Technical Center on the Asiana crash, which was last July, July of 

2 

2013. While the loss of any life is tragic, it could have been much 

worse if the improvements and the safety developments that had 

been worked on here were not implemented into that flight. 

The Technical Center houses the world’s largest aviation test facility. Work here has produced safety improvements, including 

again the most recent aviation slides, fuel tank explosion protection, fire blocking layers in seat cushions. These efforts reduce the 

likelihood of a fire on board an aircraft, and, should one occur, slow 

the spread of fire, giving passengers more time to evacuate an aircraft, and ultimately save lives. 

While I could go on for quite a while talking about the wide 

range of important work that goes on here, today’s hearing is focused on the Technical Center’s role in the development and implementation of the FAA’s air traffic control modernization program, 

known as NextGen. The goal is to ensure the Technical Center’s resources and expertise are being used in a way that makes the most 

sense. 

The Technical Center serves as the core FAA research and development facility for NextGen. Looking back, the Technical Center 

has been involved in some of the earliest air traffic control projects, 

including the design and development of the early Air Traffic Control Automation Systems and the first air traffic control tower cab 

mockup to validate controller work areas. These projects served as 

the foundation for our existing system. 

And today, the Technical Center continues to play an integral 

role in the development, testing, and validation of the latest and 

greatest technologies. This includes programs such as satellite 

navigation, text-message-like data communications, and the enabling software to process NextGen technologies and capabilities. 

These programs are essential to NextGen, and the testing and validation work that is being done right here at this facility is unmatched anywhere. 

Further, the Technical Center’s role isn’t over once the new system is deployed in the field. For example, when the En Route Automation Modernization, called ERAM, software experienced site-specific problems as it was being installed in FAA facilities, the problems were relayed to the Technical Center. Here Government and 

industry teams were able to troubleshoot the problem in a simulated environment, develop a solution, and transmit the solution 

back to the air traffic facility for implementation. 

The ability to conduct that type of work is only possible because 

of the integrated laboratories here at the Technical Center. One of 

the key laboratories is the NextGen Integration and Evaluation Capability. Among its many functions, it has the ability to provide a 

combined environment of legacy systems with future technologies 

and capabilities, enabling it to support the transition to NextGen. 

Given the considerable challenges with the ongoing transition to 

NextGen, we must examine every available resource here at the 

Technical Center and ensure they are being adequately utilized, especially the world-class expertise of the Technical Center employees. 

Finally, as part of the transition to NextGen, the FAA, in partnership with industry stakeholders, must also safely integrate unmanned aircraft systems or UAS into the National Airspace SysVerDate Aug 31 2005 10:55 Oct 20, 2014 Jkt 000000 PO 00000 Frm 00010 Fmt 6633 Sfmt 6633 P:\HEARINGS\113\AV\3-11-1~1\87048.TXT JEAN
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tem. The Technical Center currently leads the FAA’s Safety Research and Development Program. Through this program the Technical Center continually works with the FAA’s regulatory organization to increase safety and allow for new technologies and ideas, including UAS. And as the committee saw earlier on the tour of the 

NIEC laboratories, the Technical Center has already flown UAS 

using simulation in the National Airspace System. 

The FAA Technical Center will have a key role in helping collect, 

protect, analyze, integrate and validate operational and safety data 

that will become available from the six UAS test ranges established 

by the FAA. This data, along with the other work, is essential for 

the FAA to develop the regulatory program to allow for the safe 

UAS operations in the National Airspace System. We need to make 

sure that the Technical Center has what it needs for that important work. 

I want to just take a moment to say also that we are all pretty 

proud here in New Jersey of the Technical Center for being named 

one of the six national test sites. There was sort of a nationwide 

RFP that was put out. This was a recognition that the technology 

is tremendous with the UAS systems. The application for everyday 

and quality-of-life issues is enormous. But the ability to safely integrate them into our airspace with the proper privacy restraints 

that are put on there is something that we look forward to. 

And being one of only six in the entire United States of America, 

where the New Jersey application, along with Virginia, has made 

it to that final stage is something that we can all be pretty proud 

of, and I think holds a great opportunity. 

With that, I would like to quickly introduce today’s witnesses. 

Our first panel we have the Honorable Michael Whitaker, the 

FAA’s Deputy Administrator and Chief NextGen Officer; and Mr. 

Dennis Filler, director of the Technical Center and the head of research and development. 

On our second panel we have Mr. Pete Dumont, president and 

CEO of the Air Traffic Control Association and cochair of the 

NextGen Institute’s Management Council; Ms. Cynthia Castillo, 

president and CEO of CSSI, Inc.; Melvin Davis, national representative for the NextGen National Air Traffic Controllers Association; 

and Mr. Ben Gielow, general counsel and senior government relations manager for the Association for Unmanned Vehicle Systems 

International. 

On behalf of the subcommittee, we welcome you. We thank you 

in advance for your testimony. We certainly look forward to hearing from each of you and your perspectives on the Technical Center 

and NextGen and UAS-related resources, as well as your vision for 

what the Technical Center’s role might look like into the years 

ahead. 

I now ask unanimous consent that all Members have 5 legislative days to revise and extend their remarks and include extraneous materials for the record. 

Without objection, that is so ordered. 

And now I would like to turn to our ranking member, Mr. Rick 

Larsen. 

Rick, thanks again for being here today. 

Mr. LARSEN. Thanks, Frank. I appreciate it. 

4 

I want to thank Chairman LoBiondo for calling today’s hearing 

to discuss modernizing the aviation system, leveraging the assets 

of the FAA’s William J. Hughes Technical Center. 

It is a pleasure to be here today and to tour this world-class facility and meet some world-class people involved in the research. 

Over the past year that Frank and I have led the subcommittee, 

I have learned a lot through the hearings and in the listening sessions. Frank has done a great job of organizing the work of the subcommittee to be sure that the subcommittee itself is on the cutting 

edge of trying to figure out where the FAA and where the national 

airspace and where the aviation system and industry needs to go. 

I really appreciate his leadership. 

Getting to see some of this new technology today has helped me 

better understand the rapidly evolving landscape for the aviation 

industry. And for those who don’t know my district, if you fly in 

an airplane, it is probably built in my district, to give you a flavor 

of where I come from. There are 200 aerospace, other aerospace 

suppliers in my district, and in Washington State there are over 

1,000 other aerospace suppliers, all operating and working not just 

because of an active aviation industry worldwide but because of a 

lot of the foundational work that takes place in research and development here at the Technical Center. 

So our time here today highlights the ongoing need for a welltrained workforce that understands the complexities of our air system, and the center is a unique place for innovation to advance 

aviation technology, everything from hardware and software that 

you need to get information out to people so they understand what 

the weather is going to be like sooner, to the guys over in the fire 

system who get to blow things up, which is pretty cool as well. 

For over 50 years, the Technical Center has served as a primary 

FAA research and development facility to enhance aviation safety 

and modernize the Nation’s air traffic control system. Most recently, the Technical Center has been a cornerstone for the FAA in 

research and development of major NextGen programs like Automatic Dependent Surveillance, Broadcast and Data Communications, both of which we saw this morning. 

While the implementation of NextGen has been long and challenging, the FAA has made progress, in part because of the ongoing 

work here at the center. The next big challenge facing the FAA is 

ensuring the safe integration of unmanned aircraft systems, or 

UAS, into one of the most complex air traffic systems in the world, 

and the FAA Modernization and Reform Act of 2012 set forth requirements and milestones for the FAA to integrate UAS into the 

national airspace. One of the Act’s provisions required the FAA to 

select six test ranges. These sites are located throughout the country and will begin soon collecting safety and operational data. 

Test site data will assist the agency in developing policies for future commercial and civil use of unmanned aircraft. So today, as 

part of the hearing, I certainly want to hear how the FAA intends 

to work with test sites to ensure that it is able to collect, protect, 

and share the data that it needs. I am also interested to hear how 

the agency will ensure privacy near the test sites. 

Unfortunately, the Technical Center can’t provide the FAA with 

the assets to collect, validate, and analyze all of the data it intends 

5 

to gather. So I hope to hear more about how the FAA intends to 

use its resources here as well to help advance the integration of 

UAS and to advance next-generation air traffic control. 

So I want to thank Chairman LoBiondo again for having me up 

here and having me as a partner on the committee. I really appreciate it very much and look forward to hearing from our witnesses 

today. Thank you. 

Mr. LOBIONDO. Thank you, Rick, very much. 

Now I would like to recognize our first witness of the day, FAA 

Deputy Administrator and Chief NextGen Officer, Mr. Michael 

Whitaker. 

Michael, thank you. 

TESTIMONY OF HON. MICHAEL G. WHITAKER, DEPUTY ADMINISTRATOR AND CHIEF NEXTGEN OFFICER, FEDERAL AVIATION ADMINISTRATION; DENNIS FILLER, DIRECTOR, WILLIAM J. HUGHES TECHNICAL CENTER, FEDERAL AVIATION 

ADMINISTRATION 

Mr. WHITAKER. Thank you. Good afternoon, Chairman LoBiondo, 

Ranking Member Larsen, members of the subcommittee. Thank 

you for the opportunity to testify today. 

Before we begin, I would also like to take a moment on behalf 

of the agency to say that our hearts go out to the families of those 

on Malaysian Air flight 370. On Saturday, the FAA sent representatives as part of the NTSB investigative team supporting the Malaysian Government with the accident investigation. The United 

States Government is in communication across agencies and with 

international officials to provide any additional assistance that may 

be necessary. 

Turning to the matter at hand, to the Technical Center, I am 

pleased to have the opportunity to highlight this facility’s vital role 

in deploying NextGen and in integrating unmanned aircraft into 

our Nation’s airspace. 

Let me start by noting that we are nearly complete with the 

foundation of NextGen. This foundation includes a much needed 

upgrade of the automation in our air traffic control facilities and 

building of ground stations to enable the transition from a radarbased to a satellite-based system. 

Right now, 18 of our 20 en route centers have started running 

ERAM to control traffic in high-altitude airspace. More than half 

are using it exclusively to control air traffic instead of the legacy 

system from the 1960s. All 20 en route centers are expected to be 

running ERAM exclusively by March of next year, which will allow 

us to pull down the legacy host system. 

We are also upgrading the computer system that runs the lower 

altitude airspace closer to airports. This project, TAMR, requires 

switching out computer processors, screens and software in more 

than 150 TRACON facilities across the country. 

Throughout the United States, we have installed more than 95 

percent of the ground stations for ADS–B, and we will complete the 

baseline installation this month. With this technology we will 

achieve more precise surveillance of aircraft, which will make the 

air traffic system safer and more efficient. 

6 

In addition to this foundation, we continue to implement performance-based navigation procedures. PBN allows aircraft to fly 

on more direct paths across the country and in congested airspace. 

These advanced navigation procedures are cutting flight time and 

reducing fuel burn and emissions. 

This is all good progress, but it is just the beginning. Completing 

NextGen’s foundation will enable new capabilities that will make 

aviation safer, more efficient, and more environmentally friendly. 

NextGen technologies are also making it possible to safely introduce unmanned aircraft into the airspace system, and let me give 

you a few examples of the connection between NextGen and unmanned aircraft systems. 

In order for many unmanned aircraft to operate safely in shared 

airspace, we must develop technologies that enable them to detect 

and avoid other airborne vehicles. The agency is researching and 

developing a collision avoidance system specifically designed for unmanned aircraft. It is a technology called ACAS X–U. The Technical Center will also be aiding this effort by conducting flight testing, as we saw this morning. 

Also, ADS–B can help achieve collision avoidance through more 

precise surveillance and separation of both manned and unmanned 

aircraft in the same vicinity. 

Another NextGen technology that will support unmanned aircraft is NAS Voice System. NVS modernizes the voice communication capabilities that we use for air traffic services. It will enable 

controllers to communicate with the ground pilot of an unmanned 

vehicle even if that pilot is located on the other side of the country. 

With its world-class laboratories and engineering expertise, the 

FAA’s Technical Center plays a central role both in the deployment 

of NextGen and in the safe introduction of unmanned aircraft. As 

you mentioned, this past December we announced the selection of 

six test sites for unmanned aircraft across the country. These test 

sites, which include State governments and public universities, will 

provide data to help us determine the safety certification and navigation requirements for unmanned systems. We expect that a significant portion of the test site data collection and analysis will 

take place at the Technical Center. 

Later this year we will also be conducting simulation modeling 

for the Department of Defense to assist them in standardizing procedures for unmanned aircraft across various branches of the military. The FAA is working with other Government agencies, including NASA and the Department of Homeland Security, on unmanned aircraft projects. By working with other agencies here at 

the Technical Center, we are able to leverage each other’s expertise 

and resources and minimize the duplication of efforts. 

Let me close by saying that NextGen is already delivering benefits across the country. We have made great progress toward completing the foundation of NextGen and we are well positioned to 

reap more benefits in air traffic efficiency, reduce delays, fuel savings, and environmental improvements. The Technical Center is 

enabling us to realize these benefits and enabling us to safely introduce unmanned aircraft. 

Mr. Chairman, that concludes my remarks, and I would be happy 

to take any questions. 

7 

Mr. LOBIONDO. Thank you, Mr. Whitaker. 

Now I would like to recognize the head of research and development for the FAA and the director of the Technical Center, Dennis 

Filler. 

Dennis, the floor is yours. 

Mr. FILLER. Thank you, sir. Good afternoon, Chairman LoBiondo 

and Ranking Member Larsen. Thank you very much for the opportunity to testify before you today. 

As the director of the FAA William J. Hughes Technical Center, 

please let me extend a warm welcome to you. It is certainly an 

honor to have you here with us. 

The Technical Center is the Nation’s premier air transportation 

systems laboratory. We support the development of scientific solutions to both current and future air transportation system challenges. We utilize our one-of-a-kind, world-class laboratory and its 

environments to enable the modernization and sustainment of the 

National Airspace System. 

There is no facility like this anywhere in the world, replicating 

the entire national airspace under one roof with the capability to 

support all aviation systems throughout their complete life cycle. 

The center’s areas of focus include safety, air traffic management, communications, navigation, surveillance, aeronautical information, weather, human factors, flight test, information systems 

security, and airport technologies. The center also provides 24/7 

operational support to FAA field facilities across the Nation. Center 

specialists diagnose and correct problems so that critical systems 

can remain operational. Our efforts have an impact all across the 

world. 

As the Deputy Administrator stated, the center plays a central 

role in both the deployment of NextGen and in the safe integration 

of unmanned aviation systems into our Nation’s airspace. 

Key NextGen foundational programs such as ADS–B, ERAM, 

and datacom have all been developed, tested, or began their nationwide deployment from the Technical Center through our unique engineering, our test and evaluation, and sustainment activities. You 

have had the chance to see some of these technologies in action this 

morning. 

The center will continue to be a key player in unmanned aircraft 

systems, supporting concept exploration, research and development, and ultimately full integration and systems testing. The center replicates the entire NAS by having all the equipment and the 

support systems that exist in the NAS. In addition, we have the 

ability to simulate or emulate any geographic location or set of operating conditions. As a result, it uniquely positions us to be able 

to support exploration of unmanned aircraft systems integration. 

Key NextGen technologies developed right here will enable the 

safe integration of unmanned aircraft systems into our National 

Airspace System. These systems and other transformational programs have the potential to provide UAS, as well as manned aircraft, more information, flexibility, situational awareness, and a 

greater ability to communicate vital information between all users 

of the National Airspace System. 

Beyond NextGen and unmanned aircraft systems, other critical 

safety systems are developed here, including our flame-resistant 

8 

aircraft seats and interior panels which you saw this morning, and 

approved floor and exit lightings, and the standards to which all 

these products are designed and built. 

The implementation of these standards permitted the passengers 

of Asiana Airlines flight 214 the critical time that they needed to 

safely exit the aircraft. Thanks in large part to the contributions 

of Technical Center research, almost everyone survived that crash. 

In addition, we developed and fielded a crushable concrete arresting system that provides a way to quickly and safely stop an 

aircraft as large as a 747 in the event the plane runs off the end 

of the runway. Also, we are currently involved in research to make 

it safer to transport lithium batteries. 

The Technical Center also serves as home base for other aviation-related entities. It is the home of the Federal Air Marshall 

Service Training Program and the Department of Homeland Security’s Transportation Security Laboratory. Also located here are a 

U.S. Coast Guard aviation detachment and the New Jersey Air National Guard, as well as the Atlantic City International Airport. 

These aviation-related entities help create a collaborative aviationcentered campus that provides a real-world operational environment in which to explore future aviation concepts. 

Mr. Chairman, once again, I would like to thank you for the opportunity to testify before you today. At this time, I would be 

happy to answer any questions you may have. Thank you. 

Mr. LOBIONDO. Thank you. 

We will start, Mr. Whitaker, with you. 

With unmanned aerial systems, we know that the Technical Center is going to be very involved. Can you tell us briefly how the 

Technical Center will be involved with the safe integration into the 

National Airspace System? And what role will the Technical Center 

have with the six new congressionally mandated UAS test ranges? 

Mr. WHITAKER. The Technical Center has been involved to this 

point and I think will continue to be involved as really the hub of 

the research that is going on around UAS. The Technical Center 

was involved in administrating the process around selecting the 

test sites, working with the test sites on contracting, and will serve 

as the hub for analyzing data that comes from the research that 

comes out of the test sites. 

There are a number of technologies that we need to understand, 

sense and avoid being one of the key ones. Communications are 

also a key element since the pilot is not with the aircraft in that 

situation. All of those systems will also be tested here and integrated here. I would view the test center as really the hub of the 

technical effort to integrate the UAS into the system. 

Mr. LOBIONDO. Mr. Filler, what would you say would be the top 

five priorities for the Technical Center in 2014? Top three? 

Mr. FILLER. OK, sir. Thank you. 

Mr. WHITAKER. You don’t get the questions in advance. 

[Laughter.] 

Mr. FILLER. No, we don’t. 

First off is sustainment. We have to keep the system operating 

safely, which the center does very routinely. 

Second is development of human capital. We have efforts underway to bring in co-op students and continue to develop our workVerDate Aug 31 2005 10:55 Oct 20, 2014 Jkt 000000 PO 00000 Frm 00016 Fmt 6633 Sfmt 6633 P:\HEARINGS\113\AV\3-11-1~1\87048.TXT JEAN
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force. We, like a lot of Government, have an aging workforce, and 

we are putting a lot of effort into making sure that we can sustain 

the quality of the work that we do here each and every day. 

Third, obviously, is integration of UAS into the National Airspace 

System, understanding where this program is going, how we can 

contribute, and making sure that we have all the resources and the 

capability to go there. 

The last area we are going to concentrate on this year is in the 

area of enterprise cybersecurity—making sure the whole enterprise 

is secure in an electronic sense. 

Mr. LOBIONDO. Mr. Whitaker, is the FAA contemplating another 

strategic reorganization of the NextGen office? And if so, what role 

will the Technical Center have in the new structure? 

Mr. WHITAKER. We don’t anticipate any significant reorganizations at this time. The NextGen organization reports up to me, as 

does the PMO on the ATC side. So I have line of sight over that, 

all aspects of NextGen in that regard. The Technical Center will 

remain in its current status under Dennis, reporting up through 

General Bolton to me. 

Mr. LOBIONDO. OK. And Dennis, as both head of R&D and for 

the FAA as director, what do you think the major challenges are 

that you see for the integration of unmanned aerial systems into 

the national airspace, and what do you think is going to be the 

most important to focus on first? 

Mr. FILLER. The biggest challenge is going to be I think determining the proper starting point, an area of focus. The UAS problem is very broad, very complex. I believe that we have to start 

with a solvable management problem that has industry and Government backing behind it and focus on that and concentrate our 

resources on solving that problem, getting a good entryway of UAS 

into the national airspace. 

The biggest barrier is going to be on, I think, the community 

coming together to say, yes, this is problem number one and this 

is where we should focus our resources. Everyone has different perspectives and different interests, but I believe that if we can find 

that first problem and we can all work together to solve that first 

problem rather than trying to solve UAS flying from low altitudes 

all the way through 60,000 feet and beyond, maybe concentrate in 

an agricultural area or some solvable, manageable problem, then 

we can focus our resources there, learn, and then we can expand 

and go into other domains. 

Mr. LOBIONDO. Thanks. 

Rick? 

Mr. LARSEN. Thanks. 

First for Mr. Whitaker. On the tour today we heard about the 

progress in ADS–B installations, and you mentioned it today, saying 95 percent of ground stations for ADS–B are installed, and this 

month at some point it will be 100 percent, and that would set a 

baseline. I think you used the term it would be the baseline for 

ADS–B. Can you explain what you mean by that, as opposed to 

when does the switch turn on? 

Mr. WHITAKER. Once the installations are in, then the ADS–B 

system needs to be integrated with the new automation systems 

that are going to be running in the centers, particularly the ERAM 

10 

high-altitude centers. So as ERAM finishes up in the spring of next 

year, the ADS–B has to be integrated into that system. 

This morning the term ‘‘system of systems’’ was used on a couple 

of occasions. These are two systems that have to be integrated together as part of the process going forward. 

Mr. LARSEN. And you mentioned I think in your testimony 18 of 

20 of the centers have ERAM running? 

Mr. WHITAKER. About half of them run it full time with no 

backup in use. The others are in extended runs. So they may do 

a 72-hour run to look for bugs, go back to the old system, off and 

on. So 18 of them are in some form of running it. Over half of them 

are running it 24/7, and the others are still in this on and off 

phase. Within the next year we will have all 20 of them running 

it full time. 

Mr. LARSEN. So a couple of weeks ago we had a roundtable and 

the chairman had asked you to outline a set of milestones by May 

21st in regards to implementing the Tier 1A recommendations from 

the NAC—NextGen Advisory Committee. Can you sketch out what 

your thinking has been in the last couple of weeks to get us to that 

May 21st date? 

Mr. WHITAKER. As we have looked at this, there were two 

groupings of Tier 1 capabilities. The first grouping deals with PBN, 

multiple runway operations and surface data. That grouping—and 

I believe there are six of them—were identified as being very important and on the verge of being completed and should get high 

priority. We think those are the right ones for our immediate attention. We have had some conversations with the NAC subcommittee 

about that, and we believe that they agree with that. 

With respect to the date, we have a full NAC meeting in June. 

I am not sure of the date. I think it is early June. I think we have 

some concern that we ought to be validating the complete work 

with the NAC before it goes public. So we will talk with your offices about the timing of whether that would be an appropriate 

date or mid-May. But we believe we can be on track certainly with 

the work, and we will continue to talk with your folks about when 

to make that public. 

Mr. LARSEN. Great. 

For Dr.—are you a doctor? Merely a mister like me? 

[Laughter.] 

Mr. LARSEN. All right. Well, you ought to be a doctor. 

Mr. FILLER. Thank you, sir. 

Mr. LOBIONDO. So ordered. 

[Laughter.] 

Mr. LARSEN. Can you talk about what R&D activities this budget 

of $158.8 million does fund here at the Technical Center, and do 

any of those dollars specifically focus on UAS? 

Mr. FILLER. So to answer the second part, the answer is yes. 

About half of the dollars that are in the UAS, in the ballpark of 

around $3.7 million, are supporting activities that are ongoing here 

at the center. Of the R&D budget of $158 million, $62 million or 

$63 million is work that is done specifically here at the center. A 

lot of the areas you saw this morning out at Research Row as I call 

it, those activities out there are supported by the R&D dollars. 

11 

Mr. LARSEN. How much flexibility do you have here at the center 

or as director of research to be flexible with those dollars, to move 

them from one bucket to the next bucket if you need to do that? 

Mr. FILLER. We have very little authority to do that, sir. Basically, I have about a 2-percent reserve that I maintain to be able 

to help programs of that window. But again, those are budget line 

items, and we execute them as so programmed. 

Mr. LARSEN. Right. In other words, Congress says that you have 

to spend X amount of dollars on this budget line item in research, 

and Y amount of dollars on that line item. 

Mr. FILLER. That is what we do, sir. 

Mr. LARSEN. And we would expect nothing less and nothing 

more. 

[Laughter.] 

Mr. LARSEN. Obviously. But if someone were to ask you directly 

if you needed even a little bit more flexibility, how would you respond to that? 

Mr. FILLER. So, 10 to 15 percent flexibility to be able to handle 

more tactical R&D needs. The planning for the R&D budget is a 

3-year window to the future. By the time we get to execute, again, 

we are working on a 3-year-old plan. So the ability to adapt, just 

like technology today is very quickly changing, to meet those popup needs and the changes in our environment I think would be 

greatly appreciated. 

Mr. LARSEN. Today on the tour we saw an example of an unmanned aerial system that technically qualified as a small system, 

but because of how far it flies, it flies like a large system. So how 

are you going to approach that as we are looking at the test sites? 

How do you answer this question about small UAS and their application when it might look small but it acts big? 

Mr. FILLER. I don’t know how to answer the question, sir. Forgive me, but that is more of a policy kind of topic. 

Mr. WHITAKER. I think with UAS we have a segmented approach. We would like to, if you will, release as much as we can 

as quickly as we can. So the focus of the small UAS rule is to move 

more quickly on a category of UAS that we think poses the least 

amount of safety risk, which is likely to include line of sight as one 

of the characteristics. So a model such as we viewed this morning 

would not be characterized as small to the extent it was operated 

beyond the line of sight. 

Mr. LARSEN. Thank you. I yield back. 

Mr. LOBIONDO. For Mr. Whitaker, I understand the FAA intends 

to appeal the administrative law judge’s decision on small UAS 

oversight authority issued last Friday. Can you tell us, is the FAA 

also planning to conduct an expedited emergency rulemaking for 

small UAS? 

Mr. WHITAKER. We are appealing that ruling, and because it is 

an active matter, I can’t really comment on the substance of that. 

But I will say that we do view this as a serious safety issue and 

we are looking at our options to make sure that we keep the NAS 

safe during the appeal. The appeal will stay the ruling, so in that 

sense it won’t take effect. But an emergency rulemaking is one of 

the options that we are looking at. 

12 

Mr. LOBIONDO. Mr. Filler, we talked about this a little bit, of the 

work that is being done here. What sort of research and development, if you can expand a little bit more than what you already 

said, is the Technical Center doing with common airborne sense 

and avoidance technologies? And are you working with the DOD on 

any of this research? 

Mr. FILLER. We do work jointly with the Department of Defense 

and NASA, as well as industry. I can’t at this moment recall the 

specific tests that are ongoing, but as you can see, we do a lot of 

testing that is going on here. But I do know that we do have routine flights of our test fleet to ensure that new systems are being 

safely integrated. This last summer, we did fly the ACAS–X system, which is again a collision avoidance system, to test out new 

logic. This coming summer we will, in fact, be flying variants of it 

that will be dedicated in using logic that we expect the small UAS 

to conform to. 

Mr. LOBIONDO. Thanks, Dennis. 

Rick, do you have anything else? 

Mr. LARSEN. Yes. Back to sense and avoidance, I am just curious 

because last year, a year and a half ago, I went up with one of the 

contractors who developed sense and avoid, and we actually flew 

ourselves towards Mount Constitution on Orcas Island. I got close 

enough that it set off the alarm system. I don’t advise that for anybody. 

[Laughter.] 

Mr. LARSEN. But they wanted to show how it works, and that 

was obviously a pilot in the flight deck. So I am curious about what 

the difference between a sense and avoidance system is on a 

manned system would be compared to an unmanned system, if it 

is something that operates automatically given an obstruction in 

the air inside a certain envelope. 

Mr. FILLER. So, the term we use here is the ‘‘mark one eyeball.’’ 

Obviously, the pilot has the responsibility to see and avoid. So, barring the absence of all electronic systems, we still rely on the eyeball and the visual cues. They are very, very hard to, in fact, emulate in the electronic systems. So, again, you don’t have the pilot 

and his ability to discern to know that is not a real target, that is 

not something I am worried about. As we go into UAV operations, 

or even commercial GA, being a pilot at the moment, it is very difficult to see those aircraft out there. So not all the objects out there 

have active transmitters necessarily on board them yet so that we 

can actually see them. It is not a very trivial problem to solve. It 

still requires a lot of research. 

Now, as ADS–B is implemented on almost everything that is on 

an airport or that flies, then we will have active beacons that are 

telling us where all these objects are in time and space, and we will 

have better situational awareness. But until the ADS–B is implemented throughout the national airspace, we still have to deal with 

the limitations of human vision. 

Mr. LARSEN. Thanks. Thank you. 

Mr. LOBIONDO. Well, Mr. Whitaker and Mr. Filler, thank you 

very much. 

13 

We will now adjourn from the first panel and ask the second 

panel to come up, take just a little recess, as long as it takes to 

get set up for the second panel. 

[Recess.] 

Mr. LOBIONDO. We are ready to get started with the second 

panel. 

I would first like to welcome Mr. Pete Dumont, president and 

CEO of the Air Traffic Control Association. 

Pete, thank you for being here. 

TESTIMONY OF PETER F. DUMONT, PRESIDENT AND CEO, AIR 

TRAFFIC CONTROL ASSOCIATION; CYNTHIA CASTILLO, 

PRESIDENT AND CEO, CSSI, INC.; MELVIN DAVIS, NATIONAL 

REPRESENTATIVE FOR NEXTGEN, NATIONAL AIR TRAFFIC 

CONTROLLERS ASSOCIATION; BEN GIELOW, GENERAL 

COUNSEL AND SENIOR GOVERNMENT RELATIONS MANAGER, ASSOCIATION FOR UNMANNED VEHICLE SYSTEMS 

INTERNATIONAL 

Mr. DUMONT. Thank you. Chairman LoBiondo, Ranking Member 

Larsen, members of the committee, thank you for the opportunity 

to speak to you today. 

I am speaking on behalf of the Air Traffic Control Association. 

ATCA was formed almost 60 years ago. We currently have more 

than 3,000 members from all sectors of aviation. ATCA has 

partnered in one way or another with the Technical Center for the 

last 50 years. ATCA’s primary mission is to promote the science of 

air traffic control. 

As you know, NextGen is a complex, all-encompassing transformation of our current NAS. It requires a technology refresh, as 

well as procedural and policy changes. To accomplish such a large, 

complex project, the right management structure with the right capabilities must be in place. In recent months, the administration 

has appointed a new Deputy Administrator, who you just heard 

from, and the FAA selected an Associate Administrator for 

NextGen, Mr. Ed Bolton. This is certainly a step in the right direction. With this new management structure an evaluation of current 

assets and alignments must certainly occur. 

Any strategic realignment or reorganization of the NextGen organization must surely include the Technical Center. We are encouraged that Mr. Bolton, in his short time at the FAA, has already visited the Technical Center on five separate occasions. The last time 

he was here, he used a simulator to gain some intel prior to taking 

a familiarization flight on an Airbus in preparation for a NAC 

meeting. Mr. Bolton seems to understand the value of the center 

and the critical role that it must play in the implementation of 

NextGen. 

The Technical Center has many capabilities to move NextGen 

forward, as I am sure you saw on your tour of the facility today. 

I have outlined a number of those capabilities in my written testimony and would be glad to answer any questions regarding that 

testimony. 

The Technical Center is currently performing NextGen work on 

datacom with Harris Corporation and with Exelis on ADS–B. These 

are but two models in which the Technical Center is partnering 

14 

with industry to move NextGen forward. The models are very different—one incorporates the use of industry personnel on-site at 

the Technical Center to work directly with the labs. The other collects data in the field for verification and validation by and at the 

Technical Center. I use these two examples to show the different 

models available. There are many industry partners and ATCA 

members performing indispensable work on NextGen for the FAA. 

We believe one role for the Technical Center would be as the collection facility for all of the UAS test data from the six recently 

identified test sites throughout the U.S. The Technical Center 

could analyze and report out on the work being done at these facilities. Verification and validation both against specification and requirements cannot occur independently at six different sites. The 

lack of one central location will lead to duplication of efforts, siloed 

results, increased costs, and a multitude of other inefficiencies. 

This is only one of the ways the Technical Center can help move 

NextGen forward. I was pleased to hear that the FAA supports this 

approach. 

The Technical Center requires both external and internal collaboration to be successful. For all of the state-of-the-art technology, 

people and processes in place, they are resource constrained and 

cannot do it alone. They must collaborate and partner to accomplish the goal of NextGen implementation. 

This collaboration must occur both internally with different departments within the FAA, and externally with industry, academia, 

users, associations, and other Government agencies. 

Internally, the Government must partner with program managers of individual pieces of the NextGen solution, as well as operators, through the union and facility management. These are the experts on requirements. 

Externally, the FAA must continue to collaborate with industry 

to not only integrate new equipment and technologies but new regulations and procedures. Industry has the expertise to augment the 

skills and talents within the FAA at the Technical Center and to 

fill in the holes where the expertise is lacking. Industry already 

brings lessons learned to the table from large-scale integration and 

transformation programs in other industries, as well as within the 

FAA. 

The Technical Center must also continue to partner with academia, as they have with the 14 universities taking part in a new 

10-year research effort into alternative aviation fields, another area 

of NextGen. 

And the Technical Center must continue to partner with associations, like ATCA, to ensure an open and frank discussion of solutions, planned and in progress, with the entire aviation community. 

This will enable the industry experts, users, and other association 

groups to understand exactly what the FAA needs in terms of resources, research, expertise and funding. Every significant air traffic control challenge the aviation industry has faced in the last 58 

years has been discussed and debated at ATCA symposiums. 

The Technical Center must itself be a NextGen facility, fully 

scalable both up and down. As the demands for support increase, 

the center must be able to expand to handle the workload, and as 

the workload decreases, the opposite must occur. This will require 

15 

additional support from contractors for personnel, as well as FAA 

employees. NextGen must move forward, and the Technical Center 

plays a vital role in its development and implementation. 

I will be glad to answer any questions you may have regarding 

this opening statement or my testimony. Thank you very much. 

Mr. LOBIONDO. Thank you, Pete. 

Now we will turn to our next witness, Ms. Cynthia Castillo, 

president and CEO of CSSI, Inc. 

You are recognized. 

Ms. CASTILLO. Thank you and good afternoon. First I wanted to 

thank Congressman LoBiondo and members of the subcommittee 

for the opportunity to speak here today. I am specifically very 

proud to represent industry. 

CSSI works with Government and commercial clients to ensure 

transportation systems are designed and equipped to safely and efficiently move people and materials. We leverage our deep roots in 

aviation to pioneer innovative analytics and best practices that 

maximize system capacity, decrease costs, and improve safety. 

CSSI has participated firsthand in the evolution of the aviation 

industry over the last two decades. We have driven over 140 operational improvements as direct results of corrective actions taken 

based on our voluntary safety reporting programs. We have maximized the prospects of safety aviation travel with newer, stronger 

safety standards. We have helped thousands of aircraft meet RVSM 

certification requirements, therefore maximizing airspace capacity, 

reducing fuel burn, and saving millions of dollars in fuel costs. 

In addition, we drive research, test and evaluation efforts to 

identify how unmanned aircraft systems can safely be integrated 

into the NAS, and we have supported NextGen initiatives that cut 

flight miles and increase fuel savings. 

The Technical Center is one of our key partners. Most of the 

work we do at the Technical Center directly contributes to the aviation modernization efforts and drives results in three key areas: 

improving aviation safety; the safe integration of the UAS into the 

NAS; and NextGen. 

Safety, as you know, Mr. Chairman, is the aviation industry’s top 

priority, and improvement initiatives are prevalent throughout all 

aviation modernization efforts. 

CSSI has fostered the development of safety management systems that enforce newer and stronger standards for managing safety risk and accountability, and minimizing the risk of safety incidents occurring. We also drive the development of nonpunitive safety reporting programs and industrywide information sharing programs. 

A cornerstone of our aviation safety work at the Technical Center 

is the development and implementation of global and regional separation and performance-based standards. As part of our role, we 

work with the international regulators and participate in every 

step of the international standardization process. 

Our work in separation standards includes the successful implementation of reduced separation standards for specific types of aircraft in the New York Oceanic Flight Information Region. In addition, as part of the North Atlantic Datalink Mandate, we have increased the percentage of flights that use future air navigation sysVerDate Aug 31 2005 10:55 Oct 20, 2014 Jkt 000000 PO 00000 Frm 00023 Fmt 6633 Sfmt 6633 P:\HEARINGS\113\AV\3-11-1~1\87048.TXT JEAN
16 

tems and text-message-like communications between pilots and 

controllers, resulting in enhanced operational safety in the North 

Atlantic. 

Introducing UAS into the Nation’s airspace is challenging for 

both the FAA and the aviation community. CSSI works with the 

Technical Center to bring a real-world perspective to modeling and 

simulation scenarios that emulate this complex air traffic control 

environment. The lessons learned can be relied upon to accurately 

characterize the workloads expected in a NextGen environment. 

Maximizing the safe and efficient use of airspace in airports is 

critical to accommodate future aviation demand. The aviation industry is working hard to meet the challenge of FAA forecasts that 

predict 1 billion passengers by 2015. To meet this challenge, CSSI 

works closely with the Technical Center in support of NextGen concepts such as testing and implementing pilot projects under the 

Runway Incursion Reduction Program and optimizing airspace and 

procedures in the metroplex in 8 of the 21 regions, with 10 more 

planned. 

The FAA is working tirelessly to modernize what is already the 

safest and most progressive aviation system in the world. At CSSI, 

we are proud of how we have partnered with the Technical Center 

to integrate new technologies into the NAS, all of which will enhance safety, save fuel, reduce delays, and increase capacity. 

Government and industry must continue to collaborate closely to 

achieve NextGen milestones in the face of tight deadlines and 

budget challenges. It is imperative for the future of air transportation and for our Nation’s economy. 

Mr. Chairman, this is why it is so important for the FAA and the 

Technical Center to receive the support they need to stay at the 

leading edge of aviation technology and to contribute to set the gold 

standard for the rest of the world. The traveling public deserves 

nothing less. 

This concludes my testimony. 

Mr. LOBIONDO. Thank you, Cynthia. 

Our next witness is Mr. Melvin Davis, National Representative 

for the NextGen National Air Traffic Controllers Association. 

Thank you for being here. 

Mr. MELVIN DAVIS. Mr. Chairman, Chairman LoBiondo and 

Ranking Member Larsen, thank you very much for the opportunity 

to be here. NATCA is honored to have this opportunity to address 

the committee on this fine afternoon in New Jersey. 

NATCA takes seriously its responsibility to represent the 20,000 

bargaining unit members around the country, some of who are stationed here at the William J. Hughes Technical Center. We embrace the Technical Center’s role in the research, development, 

testing, integration, sustainment, and modernization of the components of the National Airspace System. 

The aviation industry has collectively recognized that the transition to a next-generation air transportation system will not happen 

all at once. Progress will be methodical, and it will be iterative. It 

will require new systems and capabilities to be deployed alongside 

legacy systems. 

The Technical Center is essentially a miniaturized version of a 

complete legacy National Airspace System in one location. With 

17 

ATOP, micro-EARTS, TAMR, ERAM, TFMS, TBFM, SWIM, and 

the voice switches all located in one place and maintained at the 

same readiness level as those systems deployed across the Nation, 

the Technical Center truly represents a one-stop shopping opportunity to test and initially deploy the next-generation systems in 

conjunction with our now-gen systems. This physical capability, 

combined with the technical experts from many of the different 

aviation domains working here, enabled by relevant Federal acquisition and operational policies, represent a truly unique national 

asset. 

The Technical Center is the location where many of our current 

air-traffic controllers come to interact with both the FAA technical 

staff and the civilian team members from the various vendors, contracted by the Government, to produce the systems currently deployed across the NAS. These interactions within the FAA firewall 

with equivalent systems to those which they operate daily back 

home are invaluable to the current sustainment and future 

progress of the NAS. This value is directly measurable in three 

ways. 

First, by increased efficiency from current systems. An example 

of this is the second-level support that extends the lifespan and expands on latent capabilities of current systems. So, as we deploy 

NextGen systems alongside the legacy equipment, the second-level 

maintainers here in New Jersey assist with resolving the inevitable 

interactivity issues that crop up. 

Second, by reducing problem reports with systems during the deployment phase. For example, operational test and evaluation combined with verification and validation expedite resolution of problem reports. The problem reports are a tracking mechanism used 

by controllers and maintainers to resolve issues associated with the 

deployment of new systems such as ADS–B or time-based flow 

management. 

The third way we can measure these enhancements is by reducing the risk of fielding new systems. An example of this is the 

human factors community, work done by the human factors researchers to detect and resolve conflicts between humans and machines, referred to as human-machine interface or computer-human 

interface. This work is essential to ensuring that the capabilities 

like data communications will function as intended once deployed. 

Another significant capability resident here at the William J. 

Hughes Technical Center is the scientific community that supports 

the wake turbulence programs. The scientific evaluation of wake 

turbulence, which is very in-depth and very specific, has produced 

relatively simple solutions derived from that body of work which 

was conducted mainly here at the Technical Center and has recently been deployed within the NAS. The result of these deployments have had dramatic effects, creating significant capacity enhancements both safely and efficiently. 

I would like to close my verbal testimony by stating that all of 

these things that I have described are the result of a harmonious 

relationship between Government, labor, scientists, technicians, 

and private vendors, made possible by the common understanding 

that the whole is greater than the sum of its parts. 

18 

On behalf of NATCA, I would like to thank you again for the opportunity, and I look forward to your questions. 

Mr. LOBIONDO. Thank you, Melvin. 

Our next and final witness is Mr. Ben Gielow, the general counsel and senior government relations manager for the Association of 

Unmanned Vehicles. 

Ben, thank you for being here. 

Mr. GIELOW. Chairman LoBiondo, Ranking Member Larsen, 

thank you for this opportunity to speak to you today. It really is 

a true honor for me as a few years ago I was staffing then-Congressman Vern Ehlers on this committee, which happened to be his 

favorite committee. So it is a real pleasure to be here. 

Today I am speaking on behalf of the Association for Unmanned 

Vehicle Systems International, AUVSI. We are the world’s largest 

nonprofit organization devoted to the advancement of unmanned 

systems. 

As you know, unmanned aircraft systems, or UAS, increase 

human potential, allowing us to execute dangerous or difficult 

tasks safely and efficiently. This technology also has the potential 

to create tens of thousands of jobs and tens of billions of dollars in 

economic impact. 

Because of costs and rapidly advancing capabilities of small UAS, 

such as this 2-pound quad copter that I brought for show and tell, 

it will comprise a majority of the developing commercial market. 

Most of these operations will be conducted below 500 feet, with limited need to fly above 1,500 feet. 

However, the current pace of UAS integration specifically for 

small UAS is simply unacceptable. The FAA has been working on 

a rule for small UAS since 2009, which should have been finalized 

in 2011. Unfortunately, the FAA does not plan on releasing this 

rule now until the fall, which means it likely won’t be finalized 

until sometime in at least 2015. The longer the FAA takes to write 

these regulations, the greater the risk to aviation safety because 

people are already flying these systems, as a simple YouTube or 

Google search will be evidence of that. 

The need for this rule became even more evident last Thursday 

when a judge with the NTSB ruled that the FAA has no authority 

to regulate model aircraft or unmanned aircraft systems because 

they have not gone through formal rulemaking. As was stated earlier, the FAA has already appealed this decision and it may, in 

fact, issue an emergency rule. That is all yet to be determined. We 

hope that if an emergency rule is issued, that it will not be overly 

restrictive on small UAS. 

Regarding work at the Technical Center, the FAA has long complained that it needs data to safely integrate unmanned aircraft 

systems, and the Technical Center is the logical place to do that 

data work. However, the UAS research department at the Technical Center is understaffed, it is under-resourced, and its current 

research is not based on a strategic plan to integrate unmanned 

aircraft systems into the NAS. 

Although the FAA’s UAS research budget has grown in recent 

years from approximately $4 million in 2013 to $8 million in 2014, 

and possibly $9 million in 2015, there is currently less than five 

full-time UAS researchers here at the Technical Center. The rest 

19 

of the researchers are either contractors or on loan from other departments. We would like to see this core team expanded. 

Currently, all UAS research at the Technical Center is funded 

through the FAA’s research and engineering and development 

budget, which provides very little flexibility on how funds can be 

used. I think that was addressed a little bit earlier. In this research budget, all FAA research programs have to compete against 

one another, and it is the FAA’s technical community representative groups that makes the final decisions on what projects do, in 

fact, get funded. 

In 2014, six UAS projects were approved by the TCRG, with a 

total budget of approximately $8 million. Interestingly, none of 

them were for UAS test site data management. However, now that 

the sites have been selected, the FAA is in need of a location to 

store and analyze the data, as well as resources to do that data 

analysis. Because no new money is available in the research budget 

because of inflexibility, the FAA was forced to cancel one of its existing projects and use about half of that amount, roughly 

$500,000, to initiate the test site data work. 

In our opinion, if the FAA is committed to using the test sites 

to collect and analyze data, $500,000 is going to be inadequate. 

Furthermore, according to the FAA, because they were not given 

money to start up or manage the test sites, the FAA is unable to 

direct any research work at these test sites. So this begs the question, what type of data will the test sites collect? Will everyone be 

speaking the same data language? Where will the data go? We assume here at the Technical Center. How will proprietary information be protected? How will the data be used? How will duplicative 

work be avoided? 

The FAA hopes to iron out these details when it brings the six 

sites together here at the Technical Center later this month. 

Lastly, we would like to request that the committee closely monitor the FAA’s compliance with a provision in the 2014 defense bill 

that requires a report to Congress this summer on the resource requirements needed to implement the UAS roadmap. Understanding 

how much it will cost to integrate unmanned aircraft into the national airspace will help us to understand the size and the scope 

of this problem. If, for whatever reason, the FAA can’t meet that 

deadline, then we suggest the GAO possibly be tasked with it. 

UAS offers great promise, but before this industry can take off, 

we need the safety rules, and it is in all of our best interests to 

help the FAA get the data it needs to write the safety regulations. 

The Technical Center, along with industry, Government, and others, are willing to do that work. 

So again, thank you for this opportunity. I am happy to answer 

any questions. 

Mr. LOBIONDO. Thank you. 

Just for clarification, what you have in front of you is not a 

model? It is actually a working size? 

Mr. GIELOW. So the only thing that differentiates a model aircraft with an unmanned aircraft is the intent of flight. So you could 

buy this system yourself, Mr. Chairman, and fly it, and as long as 

you are doing it for recreation or for fun, if you have a smile on 

20 

your face, you would be considered a modeler. You would not have 

to comply with FAA regulations. 

Mr. LOBIONDO. What you have in front of you actually can fly? 

Mr. GIELOW. Yes, yes. This is an actual system. They did not give 

me the ground control station, so I can’t fly it, but it does have a 

system underneath here. If you were to use those pictures and sell 

those pictures, the FAA would deem that a commercial activity and 

that would be prohibited. 

Mr. LOBIONDO. Prohibited. OK. Thank you. 

The first question is sort of a multipart question for anyone on 

the panel who would like to take a shot at it. What do you see are 

the major challenges to integration of UAS into the national airspace? What area do you think is going to be the most important 

to focus on first? And based on your knowledge of the Technical 

Center, how can the resources and expertise of the Technical Center be leveraged to help meet the challenge? 

Who wants to take the first shot at that? 

Mr. GIELOW. I will go ahead and jump in and take this first. So 

the challenges for integration, there are a lot of them. I mean, this 

is a huge challenge, and as was talked about in the first panel, you 

know, systems like this that weigh 2 pounds, all the way up to the 

systems that weigh 30,000 pounds, this should not be a one-sizefits-all kind of solution that is needed. 

I think, to emphasize what Director Filler said, if we focus on 

things that we could do now—for instance, small UAS operations 

over farms or some kind of activity where there is a minimal safety 

risk—to get some sort of commercial activities now will alleviate a 

lot of the built-up pressure faced by the industry today, which is 

currently prohibited from flying at all. So I think if we bite off a 

little bit, that would help. 

As far as the work that the Technical Center can do, they are 

doing good work. They are doing a lot of sense and avoid work, 

some command and control stuff. But the Technical Center has 

never done research work in small, unmanned aircraft. All of their 

work has been focused on the big stuff, flying in Class A airspace. 

The reality is the commercial market is in small UAS. 

Mr. MELVIN DAVIS. Mr. Chairman, as an air traffic controller, obviously it goes without saying clearly where our hearts are in the 

matter. There are some inferences automatically when you start 

talking about unmanned systems or autonomous systems, that 

there is an inherent lack of viability to control what it does, being 

no actual pilot. So there are clear concerns there, but those again 

are just kind of built in. We will need to work through those. We 

will need to work with the UAS committee on those. 

But what I would say as far as major challenges in general as 

far as integrating UAS into NAS is kind of back to that air traffic 

control aspect. Is there going to be a pilot that is operating it, or 

is it just an operator? 

So one of the things that happens in the system, in this system 

today, is there are humans that have procedures and training, and 

generally when things go well, we are following the procedures and 

training to the tee, and when things go bad, there are fallback procedures and there is fallback training. So I think when you start 

to get down a little bit lower into the operator category, if we are 

21 

not ensuring that those procedures and training are there or built 

in or regulated, we could see some challenges there. 

So that goes back to the first part of your question, what is a 

major challenge. 

Another one is what the role of the Technical Center will be and 

what role it could play. I think that the Technical Center is uniquely situated to greatly assist the effort to integrate UAS in the NAS 

for two reasons. One is because of all of the resident systems that 

are already here that represent what is operating already in the 

NAS. In addition to that, there has been some wisdom applied to 

it to bring in UAS capabilities into the NIEC lab. That was an investment by the Federal Government to deploy a lab here that had 

NextGen systems in it and that also put UAS systems into it. 

So I think we have a neat opportunity there on the NIEC lab. 

The second piece of that, though, as Mr. Gielow mentioned, the 

proprietary data, the ability of the Federal Government to bring in 

multiple vendors to share information and have a firewall to protect it, and then we could evaluate that information and make decisions without a vendor necessarily losing a competitive advantage. 

Mr. LOBIONDO. Anybody else? 

Mr. DUMONT. Yes, Mr. Chairman. Integrating UAS into the National Airspace System is probably the most difficult task we have 

ever attempted since the beginning of flight. Normally it has been 

faster and larger aircraft which have their own issues integrating 

into the NAS. The problem with UAS integration is there are so 

many different kinds with so many capabilities and so many different missions. 

You spoke of sense and avoid and how you will have piloted aircraft. Well, piloted aircraft, a Global Hawk, which is an unpiloted 

aircraft, have a large payload capability, and they can have the 

equipment on board for sense and avoid. To have sense and avoid 

on this particular UAS right here, that would be much more difficult. 

How the Technical Center can help us with those types of issues 

is to partner with industry, bring industry in to find out what their 

needs are, what their capabilities are, what type of vehicles actually want to fly in the airspace, and develop a concept of operations 

which many industry partners have done on many different types 

of projects. So they could be very helpful in that. And then use the 

NIEC, like Mel was referring to, to model, simulate the flying of 

these different types of UAS in different types of airspace to see 

what the results would be so that we can integrate them successfully into the airspace. 

Ms. CASTILLO. I would like to just expand on some of the challenges that were already addressed, specifically with the standards 

and procedures of operating in the NAS. In integrating UAS, I believe some of the work that the Technical Center does today specifically with modeling and simulation, realistic scenarios of how UAS 

integrated into the NAS operate within the NAS, continuation with 

the work that they do provide here, a lot of the modeling and simulation, CSSI has been very intimate with that. 

Mr. LOBIONDO. Rick? 

22 

Mr. LARSEN. Mr. Davis, has the FAA or has NATCA contemplated new training or procedures for air traffic controllers as 

UAS is integrated into the national airspace? 

Mr. MELVIN DAVIS. Yes, Ranking Member Larsen. The good news 

is—and I should have stated it foremost in my initial response to 

Chairman LoBiondo’s question—the good news is that there is an 

incredible amount of UAS operations occurring daily in the NAS 

with multiple partners and with tons of actual piloted aircraft 

interactions and controllers involved. Somehow or another, in spite 

of all the delay and bureaucracy that goes on, there is a lot of 

learning that is going along with that. 

So I can say that if we look back in 2, 3, 5 years or so, are we 

smarter now than we were then? Yes. Are we capturing those lessons and applying them and starting to lay down some of the basics? The answer is yes. 

Could we be doing it better and more methodically in addition to 

all the other work that is going on? Absolutely. Could there be 

progress? Could we be expanding and doing it better? We could. 

But the good news is that, yes, through that concept of partnership, I will just take for just a moment and expand on the scenario 

that has been deployed across the NAS for the last couple of years. 

It is called a trust culture, and it was an effort by the Federal Government to actually trust the employees, both on the airline side 

and the controller side, to say tell us what is going on so that we 

don’t have to look back at an accident, which is a risk-based view. 

We can look forward at problems via a predictive mode. 

So we have employees that fill out extensive reports about something that didn’t result in an accident, but it was an incident, and 

it would not have borne the full investigative arm but it encourages 

people to tell the truth and to tell deeply and specifically what happened so that we can put it into a database and then later mine 

that database to find hot spots where things might occur. 

That is a classic example of, again, wisdom and forward-thinking 

and trust, and we are able to mine those databases for both training and for predictive safety measures and those types of things. 

So that will bear immense fruit as we move forward, and that program is called Aviation Safety, et cetera—ASIAS. 

[Laughter.] 

Mr. MELVIN DAVIS. It is awesome. 

Mr. LARSEN. Frank and I both know this, and some folks. This 

may be your first hearing you ever participated in ever, even 

watching. There is just a lot of abbreviations and acronyms, and 

we get a little too used to it, and we apologize. 

Mr. MELVIN DAVIS. You are very gracious. Thank you. 

Mr. LARSEN. Mr. Dumont, with regard to the symposia that 

ATCA has, have you developed a consensus on UAS? And second, 

have you developed a consensus on what the next big question is 

for ATCA to address? What is the next one? 

Mr. DUMONT. Have we developed a consensus on—— 

Mr. LARSEN. A solution on how to approach things. I mean, you 

have symposia. I know they are in Atlantic City, and I know it is 

not just for fun. You say you struggle with the questions. You have 

the input. Do you come up with consensus recommendations as an 

23 

industry through symposia on what to do about any of the big 

questions that we are facing? 

Mr. DUMONT. Oh, we do, yes. I thought you were talking about 

just UAS. And, no, it is not just for fun. We do a lot of work in 

ATCA. As a matter of fact, one of the comments I get at our 3-day 

symposium here in Atlantic City with the Technical Center is that 

we get 6 months of business done in 3 days. 

We have come to consensus on a lot of different issues. What we 

normally do when we come here to the Technical Center, it is a 

technical exchange of information. My members, a majority of 

them, want to know what is going on here at the Technical Center, 

and as they get briefed on it and they understand all the programs 

that are in place here, they walk away with ways that they can 

help the Technical Center and then come back and work with the 

Technical Center to help them advance their mission. 

Mr. LARSEN. What is the next big question for us, then? Dealing 

with UAS? Working through NextGen? UAS is a big question. Do 

you know what the next big one is? 

Mr. DUMONT. I don’t know what the next big one is. I mean, as 

far as UAS is concerned, concept of operations. That is a very important thing, and we need to get that straight. 

Mr. LARSEN. On data sharing, have you all as an association 

group come to conclusions on data sharing? One question we hear 

in the discussion about UAS and getting the data from test sites 

is the proprietary nature of some of the data. 

Mr. DUMONT. Right. 

Mr. LARSEN. Have you all as an association group come to some 

conclusion about how the Technical Center or FAA should address 

that proprietary data? 

Mr. DUMONT. Well, no, because there really is no solution yet. 

We haven’t been told how the data collection is going to occur. Is 

it going to be at individual sites? Is it going to be shared and collected here at the Technical Center? Which we think is the right 

model. 

I think, Ben, you have some information about data sharing? 

Mr. LARSEN. Go ahead, Ben. 

Mr. GIELOW. If I may, right now I don’t think there is a data 

plan for the U.S. test sites. I mean, when they bring all six together here at the Technical Center, I think they are going to hash 

it out. But again, because the FAA doesn’t have any funding for 

this, the FAA can’t really tell the sites what testing to do. So hopefully everyone will come to an agreement on the bits that they need 

to collect and they can all speak that same data language, which 

I am terrible at. I hope I don’t have to get too much deeper. 

Mr. MELVIN DAVIS. I have one point that I believe is relevant to 

the data sharing question and something that I have just experienced within the last 4 or 5 months in the NextGen, the broader 

NextGen effort, and it kind of goes back to a statement that I made 

earlier about trust and about the ASIAS program is a trust-based 

program and it is a partnership between the Federal Government 

and the operators within the NAS. 

At the NextGen Advisory Committee level, there has been a renaissance, if you will, on the thought of data sharing on behalf of 

the airlines. There is fuel data sharing and operational data sharVerDate Aug 31 2005 10:55 Oct 20, 2014 Jkt 000000 PO 00000 Frm 00031 Fmt 6633 Sfmt 6633 P:\HEARINGS\113\AV\3-11-1~1\87048.TXT JEAN
24 

ing to go back and prove the benefits of NextGen, and I firmly believe that it is because of the trust that has been built that the 

NextGen Advisory Committee, those relationships between Government and vendors that sit in a room together once every 3 months 

and work out the details and say, you know what, as an aviation 

community, we have to work together to improve the community; 

whereas I think before, prior to that trust being built, there was 

a standoffish attitude that said I am going to protect my data, even 

if it is to my detriment. 

So I see that renaissance there, and I think there is an opportunity to potentially establish relationships with the UAS operators 

and leverage that trust. 

Mr. LARSEN. And finally, Ms. Castillo, could you pick one of the 

projects that your company has worked on and be more specific 

about the role that you all played in supporting the Technical Center? 

Ms. CASTILLO. Sure. I was thinking of that question. I will stick 

with separation standards. I know a lot of the conversation today 

has centered around the UAS, and in my belief the same separation standards will always be a priority of the FAA. 

We have worked closely with our Technical Center partners, and 

specifically with global and regional separation standards components, and through our work we have helped thousands of aircraft 

achieve RBS–M requirements. So we have helped through really all 

aspects of reduced vertical separations minima RBS–M requirements, from development and implementation to the assisting with 

approval of flying in that airspace, and I am really proud of the 

work that we have done with our partners here in separation. 

Mr. LARSEN. So what does that work entail? 

Ms. CASTILLO. So, a lot of the work of the safe separation of aircraft which, when you are introducing other obstacles or other demand for users in aviation, we have to always look at how those 

things are safely integrated in addition to how aircraft and things 

integrated in the NAS are safely separated. So to me, it is all about 

increasing, maximizing the capacity of airspace. So we look at models and concepts of airspace redesign, and it specifically touches a 

lot of the performance-based navigation. 

So to me, it is about maximizing capacity of airspace, thereby reducing fuel costs and fuel burn and emissions, if you will, and saving a lot of dollars for the flying public. 

Mr. LARSEN. I yield back. 

Mr. LOBIONDO. This is also a question for any one of the panel. 

What role will partnerships between FAA, industry, labor, and academia play in the future of NextGen, and what role do you see the 

Technical Center playing in developing and utilizing these partnerships? 

Ms. CASTILLO. I will start. I appreciated the first panel talking 

about the partnerships because collaboration is going to be key to 

our continued understanding of how certain impacts to the NAS 

will occur. 

CSSI, my company, has been partnered with the FAA for over 23 

years, but specifically with the FAA Technical Center for about 20 

years, and we feel that CSSI and companies like CSSI augment 

and complement a lot of the talent, the technical talent here at the 

25 

Technical Center in skill sets, as well as capabilities, to, if you will, 

show up in a broader, deeper way as a team, taking on the challenges or the initiatives that are at hand. 

And I think recently in some of the challenging times of budget 

constraints, companies, contractors, industry can provide the skill 

sets, the specialized skill sets to perform duties, whether they are 

long- or short-term. So we have readily available resources to come 

in and work a task, whether it be 3 months or so. 

So I think augmenting and complementing the skill sets here, 

the partnerships with universities certainly is an avenue for recruitment and the future operators in leadership, if you will, of 

what will be running and operating the FAA and all of the challenges that we are dealing with today. 

Mr. DUMONT. There are multiple partnerships, internal and external partnerships that have to occur, internal partnerships with 

the users, the operators, the program managers, as I mentioned in 

my opening statement. That is to define the requirements and 

make sure we get them right. Then we need to partner with industry to bring some of those solutions to the table that we might not 

have thought of within the industry. They fill the holes that we 

don’t have expertise-wise, and they bring experience to the table 

from multiple programs in different industries so that we can learn 

from that what we might not have thought of. That helps us to address the requirements and produce outcomes that are 

measureable so that we can measure our success. 

Mr. MELVIN DAVIS. So, one of the things that I have been blessed 

with is the opportunity to work in the Federal Government in a 

time of no partnership, in a time of very strong and deep partnership. I can tell you, based on the deep relationships that I had before we went into those times and those relationships I was able 

to maintain and then enhance afterwards, it is a very passionate 

point of mine that I would like to make that the value of 

partnering with the human capital, ensuring that there is clear 

and open communication on the human side, especially as we move 

into these complex systems of systems, there are interactions that 

will occur that no one will be able to understand and you will not 

be able to map back and clearly explain exactly what went wrong. 

But with the value of those strong partnerships, of being able to 

have honest and open dialogue, to be able to at least bracket certain corners of what happened and say, OK, we don’t want to go 

there again because of those complexities, but to be able to understand as much as we can about them will prove invaluable as we 

continue to deploy systems that overlay each other and interact 

with each other. 

Mr. GIELOW. I would just like to add that the test sites themselves would like to see the Technical Center more involved. Our 

members would like to see the Technical Center more involved. In 

fact, I think some of our members had actually either loaned unmanned aircraft to the Technical Center or simulators for the Technical Center to use in some of their UAS work because this was 

obviously very new to them. I think that our members are interested in continuing that relationship. 

Mr. LOBIONDO. Mr. Dumont, this one is for you. We think one 

of the biggest challenges currently facing us in the short term for 

26 

NextGen implementation is rewriting the controller handbook to 

allow the use of NextGen procedures in a mixed-equipment environment. Do you think that the Technical Center can use tools like 

the NIEC to help facilitate that, or any other suggestions to help 

facilitate that? 

Mr. DUMONT. OK. I think those are two separate questions, actually. So I think we absolutely need to use the NIEC. As we talked 

about briefly, the NIEC is very important in its role of being able 

to simulate the current environment, introduce new technologies, 

see how those new technologies work in different simulated scenarios, whether it be a busy timeframe or a not-busy timeframe. 

What works at JFK might not work in Seattle. So that is important. 

But the role of the NIEC would be to develop a solution that can 

be implemented in the airspace. And then once that solution has 

been developed, you will need to rewrite the handbook so that the 

controllers are aware of what the procedures, rules and regulations 

are to be able to use that new technology and implementation. 

Mr. MELVIN DAVIS. I think, Mr. Chairman, if you don’t mind, actually on the specific controller handbook, 7110.65, my handbook—— 

Mr. LOBIONDO. What was that again? 

[Laughter.] 

Mr. MELVIN DAVIS. I would say that there was the previous chief 

operating officer at FAA, David Griswold, identified very accurately 

a lag in the deployment of technology and the waiver of the use of 

that technology, and then the institutionalization of that within the 

7110.65. So there was a workgroup that started that was hyper-effective at lasering in and getting those changes into the 7110.65 

and able to make up that lag in a very short period of time. It 

would be unfortunate to see that lag come back. 

As far as the NIEC is concerned, specifically we could front load 

that process, right? And predict what we need to change in the .65, 

some of the use of the capabilities built into the NIEC. And I think 

it goes back to your original question, Ranking Member Larsen, to 

Mr. Filler, about having some flexibility within his budget to be 

able to say, listen, I know I am going to need to do something at 

that NIEC within the next 3 years; I am not sure what, so give me 

some room to maneuver in the meantime, and we can use that 

flexibility to make sure we are ready when the time comes. 

Mr. LOBIONDO. Thank you. 

Well, I want to thank our panelists, both panels very much. This 

is obviously a very important issue. I would like to thank our host, 

the FAA, and once again to most importantly thank the men and 

women of the Technical Center who, on a day-in and day-out basis, 

have a commitment to excellence and are producing such great 

work here. 

So, with that, the committee stands adjourned. 

[Whereupon, at 3:34 p.m., the subcommittee was adjourned.] 

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