CONTROLLER STAFFING AT KEY 

CALIFORNIA AIR TRAFFIC CONTROL 

FACILITIES 

Federal Aviation Administration 

Report Number: AV-2009-047 

Date Issued: April 23, 2009 
U.S. Department of 

Memorandum

Transportation 

Office of the Secretary 

of Transportation 

Office of Inspector General 

Subject: ACTION: Report on Controller Staffing at Key 

California Air Traffic Control Facilities 

Federal Aviation Administration 

Report Number AV-2009-047 

Date: April 23, 2009 

From: 

David A. Dobbs 

Deputy Inspector General 

Reply to 

Attn. of: J-2 

To: FAA Acting Administrator 

This report provides the results of our review of controller staffing at three Federal 

Aviation Administration (FAA) facilities in California: the Los Angeles 

International Airport Traffic Control Tower (LAX), the Southern California 

Terminal Radar Approach Control (TRACON) (SCT), and the Northern California 

TRACON (NCT). 

We conducted this review at the request of Senator Dianne Feinstein of California. 

Senator Feinstein expressed concerns to our office about potential shortages of 

trained and experienced controllers at these locations, which are some of the 

Nation’s busiest facilities. Ensuring these air traffic control facilities remain 

adequately staffed with qualified air traffic controllers is critical to the safety and 

efficiency of the entire National Airspace System. 

Our audit objective was to evaluate FAA’s plans for ensuring adequate air traffic 

controller staffing at the three California air traffic control facilities and to offer 

recommendations as needed. We conducted this review between June 2008 and 

January 2009 in compliance with generally accepted government auditing 

standards. During this review, we visited officials at FAA Headquarters as well as 

managers and National Air Traffic Controllers Association (NATCA) 

representatives at the three facilities. Exhibit A further details our scope and 

methodology. 
 2

BACKGROUND 

FAA is experiencing a long expected surge in controller attrition as the large pool 

of controllers hired after the 1981 strike begin retiring. The retirement wave hit 

record numbers in 2007 and 2008 and is projected to increase through at least 

2012. To address this challenge, FAA plans to hire and train nearly 17,000 new 

controllers nationwide through 2017. This level of hiring has not been seen since 

FAA hired over 8,700 new controllers between 1982 and 1983. However, with the 

surge in attrition and hiring, FAA faces an increasing risk of not having enough 

fully certified controllers in its workforce—with 27 percent of the workforce now 

in training compared to 15 percent in 2004. 

Controllers-in-training include new hires (developmental controllers) and certified 

professional controllers who are in training (CPC-ITs) because they transferred to 

another facility and must learn the airspace of their new facility. Certified 

professional controllers (CPC) are controllers who have achieved full certification 

on all positions within their assigned area. 

FAA has used staffing standard models to determine controller staffing levels 

since the 1970s. Because these were historically calculated at the national level, in 

2005, FAA hired an independent contractor to review air traffic staffing standards 

at each air traffic control facility based on current traffic volume, airspace 

complexity, number of positions, and other factors. The goal of this review was to 

evaluate the existing staffing standards and develop new staffing ranges at the 

facility level in light of those factors. In 2007, FAA completed its efforts to revise 

the standards for towers and en route centers, including LAX, but this work is still 

ongoing at large TRACONs. 

LAX, SCT, and NCT are critical locations within the National Airspace System—

combined they handled nearly 4.5 million operations in 2008. As FAA begins 

hiring and training the large influx of new controllers, it must focus on training 

new controllers to the CPC level at major locations such as these while 

maintaining a sufficient number of veteran CPCs. 

• LAX is the Nation’s fourth busiest airport traffic control tower and 

handled 659,000 operations in 2008. As of December 2008, LAX had 

49 controllers. Controller staffing over the last decade has stayed at or above 

FAA’s validated staffing range for the facility, which is 39 to 47 controllers. 

As of December 2008, 20 percent of LAX’s controller workforce was in 

training. 

• SCT is the Nation’s busiest TRACON and handled nearly 2.25 million 

operations in 2008. As of December 2008, SCT had 237 controllers. With 

the exception of 2005, controller staffing over the last decade at SCT has 
 3

stayed at or above FAA’s un-validated staffing range for the facility, which is 

194 to 237 controllers. As of December 2008, 32 percent of SCT’s controller 

workforce was in training. 

• NCT is the Nation’s fourth busiest TRACON and handled nearly 

1.59 million operations in 2008. As of December 2008, NCT had 

170 controllers. Since NCT became fully operational in 2004, controller 

staffing has remained at or above FAA’s un-validated staffing range for the 

facility, which is 142 to 174 controllers. As of December 2008, 24 percent of 

NCT’s controller workforce was in training. 

RESULTS IN BRIEF 

FAA has taken steps at LAX, SCT, and NCT to offset controller attrition. These 

include offering financial incentives to experienced controllers to transfer to or 

remain at the three locations. Despite these actions, FAA must do more to ensure 

these three critical locations have a sufficient number of fully certified controllers. 

We identified four specific focus areas for FAA: 

• Making SCT and NCT a top priority in FAA’s ongoing efforts to validate 

staffing ranges at its large TRACON facilities. 

• Expanding the use of relocation and retention incentives to maintain a cadre of 

experienced controllers at LAX and SCT. 

• Providing enough instructors and other training resources at all three facilities 

to handle the influx of new controllers, especially at SCT. 

• Ensuring appropriate use of overtime hours at LAX, SCT, and NCT, which 

increased significantly over the last 2 years—by 868, 400, and 120 percent, 

respectively. 

These actions are particularly critical at SCT, which is facing the most significant 

staffing issues. SCT is FAA’s busiest TRACON, has the highest percentage of 

existing and planned new controllers of the three facilities, and has experienced a 

sharp decline in CPCs over the last 5 years. A significant issue is that SCT 

expects to have over 100 controllers in training later this year—which is more than 

40 percent of its workforce and could overwhelm SCT’s training capacity. That 

percentage will also far exceed FAA’s overall national average of 27 percent of a 

facility’s controller workforce in training. 

FAA Should Make SCT and NCT a Top Priority in Its Ongoing Efforts To 

Validate Staffing at Large TRACON Facilities 

SCT and NCT have controller staffing ranges of 194 to 237 and 142 to 174, 

respectively. While both have kept staffing levels within those ranges, FAA has 

not yet validated those ranges and therefore cannot ensure they truly represent the 
 4

facilities’ needs. In 2007, FAA revised ranges for tower and en route centers 

based on its independent contractor review of staffing standards. FAA expects the 

contractor to complete its review of TRACON staffing ranges later this year. 

However, we are concerned because, although SCT is the Nation’s busiest 

TRACON and NCT is the fourth busiest, these two facilities are among the last 

scheduled for review. Further, at SCT, the number of operations per controller

has increased by 19 percent since 1997. In our opinion, FAA should make these 

two critical facilities a top priority for review. 

FAA Should Expand the Use of Relocation and Retention Incentives To 

Maintain a Cadre of Experienced Controllers, Particularly at LAX and SCT 

LAX: A growing concern for LAX is retaining newly hired controllers and 

attracting experienced controllers. In 2007 and 2008, LAX gained 16 new hires 

and 3 experienced transfers but then lost 7 of them because they either failed 

training, relocated, or chose another career. As of December 2008, LAX had 

20 percent of its 49 total controllers in training—still below the national average 

of 27 percent. However, because LAX will receive more new controllers in 2009 

and 2010, FAA must continually work to gain experienced transfers so the facility 

can maintain a proper balance of CPCs and trainees. 

SCT: Retaining experienced controllers is an even more critical issue at SCT, 

where the number of CPCs has sharply declined since 2004—from 236 to 161 (a 

decline of 32 percent)—while the number of developmental controllers has 

increased. As of December 2008, SCT had 32 percent of its 237 total controllers 

in training, which is well above the national average of 27 percent. However, 

FAA plans to hire 34 new controllers this year (to offset a loss of 26), which 

means that percentage could climb to more than 40 percent. 

NCT: At NCT, the balance of CPCs to controllers in training is not an immediate 

concern. As of December 2008, the facility had 24 percent of its 170 total 

controllers in training. However, as these controllers finish their training, NCT 

expects to receive 46 controllers by 2010 to offset a loss of 39. Maintaining the 

right balance of CPCs to trainees will be a watch area at NCT in the 2010 to 2011 

time frame. 

To maintain a workforce of experienced controllers, FAA has begun offering 

financial incentives at selected facilities. These include relocation allowances of 

up to $27,000 for controllers who transfer to LAX. FAA has also offered retention 

bonuses of up to $25,000 at SCT for retirees who extend their employment for 1 

year. In FY 2008, 6 controllers at LAX and 17 controllers at SCT accepted 

incentives. FAA is not offering incentives at NCT. While FAA’s incentives are 

clearly responsive to the rising attrition and hiring, it should expand them at LAX 

and SCT to entice more experienced controllers to accept positions or defer 

retirements at those two locations. 
 5

FAA Must Provide Enough Instructors and Training Resources To Handle 

the Large Influx of New Controllers, Especially at SCT 

While FAA must ensure that the LAX and NCT have adequate training resources 

for their new controllers planned for 2010, this issue is already critical at SCT. 

SCT now has 32 percent of its controller workforce in training. However, this 

percentage could soon grow to more than 40 percent in FY 2009 given FAA’s 

plans to add 34 new controllers to the 76 already in training. If this occurs, the 

facility will have more than 100 controllers in training. We are concerned that this 

will overwhelm the facility’s training resources, especially since SCT only has 

9 contract instructors and 16 radar screens for use during facility training. 

Training over 100 controllers will require significant resources and time. 

Therefore, as the number of new controllers increases, FAA must ensure SCT has 

enough instructors, classroom space (including off-site locations if needed), and 

simulator tools so that managers can effectively train the high number of new 

controllers. FAA should also ensure new trainees are evenly distributed 

throughout the year at the facility to prevent a “bottle-neck” in controller training. 

FAA Should Ensure Appropriate Use of Scheduled Overtime Hours at LAX, 

SCT, and NCT 

We found that overtime hours for controllers (which are paid at “time-and-a-half”) 

had increased significantly at all three facilities over the last 2 years (see table 1). 

Yet, according to FAA, controllers at all three facilities worked an average of less 

than 40 hours per week. 

Table 1. Increased Overtime at LAX, SCT, and NCT 

Over 2 Years

Facility Overtime Hours 

in FY 2006 

Overtime Hours 

in FY 2008 

LAX 606 5,866 (+868%) 

SCT 7,300 36,700 (+400%) 

NCT 5,685 12,511 (+120%) 

For example, at SCT, 141 of 223 controllers worked overtime during 1 pay period. 

However, of those 141 controllers, 116 (82 percent) took leave during the same 

pay period. Like most Federal employees, controllers may take leave during a 

scheduled 6-day week but still receive overtime pay if they actually work the 

scheduled overtime shift. 

FAA managers at SCT stated that they must schedule overtime in advance to 

ensure adequate coverage although they would prefer to call controllers in for 

overtime as needed, based on traffic and weather patterns. However, they said 

controllers usually do not respond to the “call-in.” 
 6

As a result, they were forced to schedule overtime in advance regardless of traffic 

or weather conditions. While there are various reasons for the dramatic increases 

in overtime at all three locations, the drastic increase in overtime hours may 

indicate systemic problems in scheduling practices. 

Our recommendations to FAA focus on actions needed to maintain a sufficient 

number of certified controllers at LAX, SCT, and NCT and include a 

recommendation to analyze overtime scheduling practices at all three locations to 

determine if the amount of overtime is appropriate, needed, and effectively 

utilized. FAA agreed with our recommendations listed on page 15. 
 7

FINDINGS 

We evaluated LAX, SCT, and NCT across five areas: staffing levels, workforce 

composition, overtime worked, incentives, and hiring plans over the next 2 years. 

Table 2 below summarizes our assessment of controller staffing issues at all three 

facilities. Based on our analysis, we assigned an assessment of risk and 

corresponding timeframe for actions needed. A green rating indicates that FAA 

action will likely not be required this year or next. A yellow rating indicates that 

FAA action will be needed in the 2010 timeframe. A red rating indicates that 

immediate FAA action is needed. 

Table 2. OIG Assessment of FAA’s Plans for Ensuring Adequate 

Controller Staffing at LAX, SCT, and NCT

Concern LAX SCT NCT Staff Levels 

•At or above authorized staffing 

levels. 

•Operations have declined. 

• FAA needs to validate staffing 

ranges for large TRACONs. 

• Operations have increased. 

• FAA needs to validate staffing 

ranges for large TRACONs. 

• Operations have remained 

constant. 

Workforce 

Composition 

• Currently has 10 (20%) 

controllers-in-training, but will 

change in 2010 based on hiring 

plans. 

• Under the national average. 

• Currently has 76 (32%) 

controllers-in-training. 

• Over the national average. 

• Currently has 41 (24%) 

controllers-in-training, but will 

change in 2010 based on hiring 

plans. 

• Under the national average. 

Overtime 

Worked per 6-

Day Weeks 

• Increased by 868% since FY 

2006. 

• Controllers working 33.05 to 

37.37 total hours. 

• Increased by 400% since FY 

2006. 

• Controllers working 31.43 to 

36.97 total hours. 

• Increased by 120% since FY 

2006. 

• Controllers working 30.88 to 

36.11 total hours. 

Incentives 

• FAA approved 6 relocation 

incentives in FY 2008. 

• FAA approved 17 retention 

bonuses in FY 2008. 

•FAA is not offering incentives. 

Hiring Plans Next 

2 yrs. 

• Will receive 8 new controllers. 

• Will lose 10 controllers. 

• Hiring plans will impact 

workforce composition in 2010. 

• Will receive 66 new 

controllers. 

• Will lose 48 controllers. 

• Hiring plans will impact 

workforce composition in 

2010. 

• Will receive 46 new 

controllers. 

• Will lose 39 controllers. 

• Hiring plans will impact 

workforce composition in 

2010. 

 No FAA action needed now Future FAA action needed Immediate FAA action needed

The following discusses our analysis of these areas at each of the three facilities, 

with the exception of overtime usage, which is discussed separately. 
 8

Los Angeles International Airport Traffic Control Tower (LAX) 

LAX Staffing Levels Have Remained at or Above the Authorized Staffing 

Range 

LAX has been able to maintain its staffing levels well within FAA’s authorized 

staffing range (validated in 2007) of 39 to 47 controllers over the last decade (see 

figure 1 below). This is because LAX has basically maintained the controller 

workforce level (which ranged from 40 to 46) it had during the peak years leading 

up to 2001. 

As of December 2008, LAX had a workforce of 49 controllers. While FAA 

projects that nine controllers will retire in FY 2009 and FY 2010, FAA also 

expects LAX to receive eight new hires during the same period. 

Figure 1. LAX Controller Staffing and Air Traffic Operations 

FY 1997 to FY 2008

44 42 42 42

48 51 51 50

44

40

46 44

0

10

20

30

40

50

60

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008

Fiscal Years

Number of 

Controllers

0

100,000

200,000

300,000

400,000

500,000

600,000

700,000

800,000

900,000

Operations

Number of 

Staff Traffic

FAA Must Retain New Controllers and Attract Experienced Controllers at 

LAX To Maintain a Proper Balance of CPCs and Developmentals 

During 2007 and 2008, LAX received a total of 16 new hires and 3 transferring 

controllers. However, we found that over the past 2 years, LAX has lost 7 of its 

19 new controllers during training, or nearly 37 percent. 

New controllers left the facility because they either failed 

training, chose to pursue other careers, or chose to relocate. In 

addition, the facility is now having difficulty attracting and 

retaining experienced controllers from lower-level facilities. 

From FY 2004 to FY 2006, LAX relied on controllers who 

transferred from another facility to replenish its ranks—it did not 

train new hires. 
 9

However, from 2004 to 2008, the number of CPCs at LAX has decreased by 

13 percent (six controllers). Given LAX’s controller workforce of 49, if the trend 

continues, there would be fewer CPCs to handle traffic and accomplish on the job 

training. Currently, 20 percent of LAX’s total controller workforce is comprised 

of controllers in training, still below the national average of 27 percent (see figure 

2 below). FAA is offering financial incentives to entice controllers to relocate to 

LAX. To date, six controllers have accepted $27,000 in incentives to relocate to 

LAX but are awaiting release from their current facility. FAA has not yet offered 

incentives for retirees to remain on active duty at LAX. 

Figure 2. LAX Controller Staffing Composition, 

FY 2004 - December 2008

10 7

6

3

45

42 37

30

39

39

3 2 5 2 3

0

10

20

30

40

50

60

2004 2005 2006 2007 2008 Dec-08

Fiscal Years

Number of Con trollers

Dev CPCIT CPC

Southern California TRACON (SCT) 

Operations per Controller Have Increased at SCT, but FAA Has Not Yet 

Validated the Facility’s Authorized Staffing Range 

SCT has kept controller staffing within or 

above its staffing range of 194 to 237. As of 

December 2008, SCT had 237 controllers. 

However, FAA has not yet validated SCT’s 

staffing range and therefore cannot ensure it 

truly represents SCT’s workforce needs. 

FAA has hired an independent contractor to 

assess facility staffing ranges and expects to complete its review of TRACONs 

later this year. However, we are concerned because SCT is the Nation’s busiest 

TRACON; yet, it is among the last scheduled for review. Completing this 

assessment is critical at SCT because according to FAA, the number of operations 

per controller has increased by 19 percent (from 8,323 in FY 1997 to 9,942 in FY 

2008). This is because staffing levels dropped during that time (see figure 3 

below). 
 10

Figure 3. SCT Controller Staffing and Air Traffic Operations

(FY 1997 - FY 2008)

273 278 258 281 280 271 255 244 224 222 227 226

0

50

100

150

200

250

300

350

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008

Fiscal Years

Nu mb er of

C ontrollers

0

500,000

1,000,000

1,500,000

2,000,000

2,500,000

3,000,000

Operation

Number of 

s

Staff Traffic

SCT Is Experiencing a Large Influx of New Controllers and a Decrease in 

CPCs 

As shown in figure 4 below, the number of CPCs at SCT has decreased from 

236 to 161 (a 32-percent decline) since FY 2004. During the same period, the 

number of developmental controllers increased from 0 in FY 2004 to 52 as of 

December 2008. Currently, 32 percent of the facility’s controllers are in training, 

which exceeds the national average of 27 percent. Further, given FAA’s hiring 

plans for FY 2009, SCT’s percentage of controllers in training could grow to more 

than 40 percent. 

Figure 4. Composition of SCT Controller Workforce 

FY 2004 to December 2008

38 44 52

8 8

13

16 19

24

236

216 197

173 163

161

12 0

50

100

150

200

250

300

2004 2005 2006 2007 2008 Dec-08

Fiscal Years

Number of Controllers

Dev CPCIT CPC
 11

As of December 8, 2008, FAA planned to assign 34 new controllers to the facility 

during FY 2009. FAA is also projecting that SCT will lose 26 controllers during 

FY 2009—ultimately resulting in a net gain of 8 controllers. However, the 

addition of 34 new controllers to the 76 controllers already in training at the 

facility could overload the facility’s training resources. SCT now has only 

9 contract instructors and 16 radar screens for use during facility training; training 

over 100 new controllers at the same time will require significant resources and 

time. 

As the number of new controllers increases, FAA will need to make corresponding 

adjustments to SCT’s training resources to ensure it has enough contract 

instructors, classroom space (including off-site locations if needed), and simulator 

tools. Otherwise, it will be difficult for facility managers to effectively train the 

high number of new controllers. 

Our prior work has found that placing too many new controllers at a facility at one 

time can overwhelm training capacities.1

 For example, in December 2007, the 

Miami Center had 98 developmental controllers (or 34 percent of the facility’s 

controller workforce). Facility management and the local NATCA representative 

both agreed that the facility lacked the physical capacity to effectively train such a 

large population of developmental controllers, even when they were evenly 

distributed throughout the various stages of facility training. Consequently, 

developmental controllers’ facility training was delayed at that location by as 

much as 9 months. FAA must take steps to ensure this does not occur at SCT. 

FAA Should Continue and Expand Incentives To Retain Experienced 

Controllers at SCT 

Given that SCT could have as much as 40 percent of its controllers in training this 

year, FAA must continually work to ensure the facility has enough experienced 

controllers. FAA initiated an incentive in 2008 where controllers eligible to retire 

could request a 1-year employment extension and, if approved, receive as much as 

$25,000 in cash retention bonuses. FAA has begun increasing the use of this 

incentive at SCT and, as of the end of FY 2008, has approved 17 retention 

bonuses. An additional two requests are pending. In our opinion, FAA needs to 

continue this incentive and use other incentives, such as relocation bonuses, to 

ensure the number of experienced controllers at the facility keeps pace with the 

influx of new hires. 

 

1

 OIG Report Number AV-2008-055, “Review of the Air Traffic Controller Facility Training Program,” June 5, 2008. 

OIG reports are available on our website: www.oig.dot.gov. 
 12

Northern California TRACON (NCT) 

NCT’s Controller Staffing Levels Have Remained Within the Authorized 

Staffing Range, but FAA Has Yet To Validate That Range 

NCT’s annual air traffic levels have remained 

around 1.6 million since the facility began 

operations in FY 2004. NCT handled about 

1,606,500 operations in FY 2004 compared to 

about 1,587,100 in FY 2008 (see figure 5 

below). 

Since 2004, NCT has also experienced a 

10-percent decline in the number of controllers; yet, controller staffing has 

remained at or above the authorized (un-validated) staffing range of 142 to 174. 

Like SCT, NCT is one of the last TRACONs scheduled for review in FAA’s 

staffing range assessment even though it is the Nation’s fourth busiest TRACON. 

As of December 2008, NCT had a workforce of 170 controllers. FAA projects 

that, over the next 2 years, NCT will lose 39 controllers but will gain 46 for a net 

increase of 7. 

Figure 5. NCT Controller Staffing and Air Traffic Operations 

 (FY 2004 - FY 2008)

183 173 163 164 165

0

20

40

60

80

100

120

140

160

180

200

2004 2005 2006 2007 2008

Fiscal Years

Number of

 Controllers

1,000,000

1,100,000

1,200,000

1,300,000

1,400,000

1,500,000

1,600,000

1,700,000

Number of

 Operations

Staff Traffic

 

CPC-ITs Have Decreased and Developmentals Have Increased at NCT 

When several northern California facilities were consolidated in 2004 to create 

NCT, the airspace was redesigned and controllers then had to certify, or crosstrain, on new positions. This resulted in a large number of CPC-ITs in FY 2004 

and FY 2005. As shown in figure 6 below, NCT has seen an increase in 

developmental controllers and a decrease in CPC-ITs since FY 2006. This is a 

result of those controllers completing their cross-training and the increased hiring 
 13

of new controllers. NCT now has 24 percent of its total 170 controllers in 

training—near but still under the national average of 27 percent. However, with 

the planned addition of 46 new controllers by 2010, ensuring that NCT adequately 

prepares its training resources will be a watch area for FAA. 

Figure 6. NCT Controller Staffing Composition

(FY 2004 - December 2008)

15 28 38

90

77

23

19 5

3

90

96

136 130 132 129

0 3 4

20

40

60

80

100

120

140

160

180

200

2004 2005 2006 2007 2008 Dec-08

Fiscal Years

Number of Controllers

Dev CPCIT CPC

Overtime Hours at All Three Facilities Have Drastically Increased 

During the Last 2 Years 

We found that overtime hours for controllers (which are paid at “time-and-a-half”) 

had increased significantly at all three facilities over the last 2 years. This would 

typically indicate that controllers are overworked. Yet, according to FAA, 

controllers at all three facilities worked an average of less than 40 hours each 

week. In our view, this could indicate systemic problems with controller 

scheduling practices. Specifically, we found that: 

• Overtime hours at LAX increased from 606 hours in FY 2006 to 5,866 hours in 

FY 2008 (an 868-percent increase). However, according to FAA, controllers at 

LAX only worked an average of between 33 and 37 hours per week. 

• Overtime hours at SCT increased from more than 7,300 overtime hours in 

FY 2006 to nearly 36,700 hours in FY 2008 (a 400-percent increase). 

However, according to FAA, controllers at SCT still worked an average of 

between 31 and 37 hours per week. 

• Overtime hours at NCT increased from 5,685 hours in FY 2006 to 

12,511 hours in FY 2008 (a 120-percent increase). However, according to 
 14

FAA controllers at NCT only worked an average of between 31 and 36 hours 

per week. 

We found that the controllers were still able to average under 40 hours per week 

because most at each location took leave during the pay period when they worked 

the overtime hours. That is, as long as controllers actually work their assigned 

overtime shift, they can take leave during other days of that 2-week pay period. 

This means they will actually work less than 6 days a week but will still receive 

overtime pay for that shift. 

To determine if the majority of controllers at these facilities typically follow this 

practice, we analyzed a sample of randomly selected pay periods during 2008 at 

LAX and SCT. For example, we found that for pay period 09 in 2008: 

• 73 percent (33 of 45 controllers) of LAX’s controllers worked overtime during 

that pay period. However, 27 (82 percent) of the controllers who worked 

overtime also took leave during the same pay period. 

• 63 percent (141 of 223) of SCT’s controllers worked overtime. However, 116 

(82 percent) of the controllers who worked overtime took leave during the 

same pay period. 

Like most Federal employees, controllers may take leave during a scheduled 6-day 

week and receive overtime pay if they actually work the scheduled overtime shift. 

FAA managers at SCT stated that they must schedule overtime in advance to 

ensure adequate coverage although they would prefer to call controllers in for 

overtime as needed, based on traffic and weather patterns. However, they said 

controllers usually do not respond to the “call-in.” As a result, they were forced to 

schedule overtime in advance regardless of traffic or weather conditions. While 

there are various reasons for the dramatic increases in overtime at all three 

locations, the drastic increase in overtime hours may indicate systemic problems in 

scheduling practices. 

CONCLUSION 

LAX, SCT, and NCT are critical locations within the National Airspace System. 

Ensuring these facilities remain adequately staffed with qualified air traffic 

controllers is vital to the safety and efficiency of the entire system. While FAA 

has taken steps to boost staffing efforts at these locations, all three facilities are 

facing increased numbers of new controllers over the next 2 years. Our analysis 

found that FAA must take a number of actions to maximize its staffing efforts and 

maintain a sufficient number of veteran controllers at these three key facilities. 
 15

RECOMMENDATIONS 

We recommend that FAA: 

1. Complete validation of the staffing ranges for SCT and NCT to ensure their 

staffing levels are sufficient to handle the volume and complexity of air 

traffic at those locations. 

2. Expand the use of relocation, retention, and other incentives to entice more 

experienced controllers to accept positions or defer retirements at LAX and 

SCT. 

3. Provide LAX, SCT, and NCT with enough contract instructors, classroom 

space (including off-site locations as needed), and simulators for the 

expected surge in new controllers—this is particularly critical at SCT. 

4. Evenly distribute the placement of new trainees to SCT throughout the year 

to avoid training “bottlenecks.” 

5. Conduct an independent analysis of overtime scheduling practices at LAX, 

SCT, and NCT to determine if the amount of overtime is appropriate, needed, 

and effectively utilized. 

AGENCY COMMENTS AND OFFICE OF INSPECTOR GENERAL 

RESPONSE 

We provided FAA with our draft report on March 25, 2009, and received its 

response on April 10, 2009. In its response, FAA agreed with our 

recommendations and has either taken or planned acceptable corrective actions. 

FAA’s entire response is included at the appendix to this report. 

ACTIONS REQUIRED 

In accordance with Department of Transportation Order 8000.1C, we are closing 

recommendations 1, 2, 3, and 4 based on the actions taken by FAA. We consider 

recommendation 5 addressed but open pending completion of FAA’s planned 

action by December 31, 2009. 

We appreciate the courtesies and cooperation of FAA representatives during this 

audit. If you have any questions concerning this report, please contact me at (202) 

366-6767 or Dan Raville, Program Director, at (202) 366-1405. 

# 

cc: Martin Gertel, M-100 
 16

EXHIBIT A. SCOPE AND METHODOLOGY 

We conducted this performance audit in accordance with generally accepted 

government auditing standards. Those standards require that we plan and perform the 

audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our 

findings and conclusions based on our audit objective. We believe that the evidence 

obtained provides a reasonable basis for our findings and conclusions based on our 

audit objective. 

We conducted the audit between June 2008 and January 2009 and visited FAA 

Headquarters, the National Air Traffic Controllers Association Headquarters, and the 

three California air traffic control facilities: Los Angeles Air Traffic Control Tower, 

Southern California TRACON, and Northern California TRACON. 

To determine if FAA has developed plans for ensuring adequate air traffic controller 

staffing at LAX, SCT, and NCT, we interviewed officials from FAA Headquarters 

(ATO-Finance and ATO-Terminal) and obtained, reviewed, and analyzed controller 

staffing documentation. The staffing documentation included historical staffing data, 

future projections for retirements and new hires, staffing composition, overtime hours, 

relocation/retirement incentives, and number of operations at each facility. We 

reviewed and analyzed FAA’s December 2004 Controller Workforce Plan and its 

associated updates. 

We also conducted site visits and interviewed FAA Air Traffic Control Managers and 

the National Air Traffic Controllers Association (NATCA) representatives from each 

facility and obtained, reviewed, and analyzed controller staffing documentation. The 

staffing documentation included the number of on-the-job training instructors (OJTI), 

controller staff composition, controllers eligible for retirement, training assets, and 

retention/relocation incentives. 

We also met with NATCA representatives in Washington, DC, to identify specific 

concerns the union has with controller staffing at the three California facilities. 

Exhibit A. Scope and Methodology 
 17

EXHIBIT B. MAJOR CONTRIBUTORS TO THIS REPORT 

Name Title 

Dan Raville Program Director 

Robert Romich Program Manager 

Katherine Yutzey Senior Analyst 

Mi Hwa Button Analyst 

Andrew Olsen Auditor 

Andrea Nossaman Writer/Editor 

Exhibit B. Major Contributors to This Report 
 18

APPENDIX. AGENCY COMMENTS 

Federal Aviation 

Administration 

Memorandum 

Date: April 10, 2009 

To: Lou Dixon, Assistant Inspector General for Aviation and Special Program 

Audits 

From: Ramesh K. Punwani, Assistant Administrator for Financial Services/CFO 

Prepared by: Anthony Williams, x79000 

Subject: OIG Draft Report: Controller Staffing at Key California Air Traffic Control 

Facilities, Federal Aviation Administration 

Thank you for the opportunity to review and comment on the findings and recommendations of 

the subject report dated March 25. The FAA concurs with Recommendations 1,3,4, and 5, and 

partially concurs with Recommendation 2. 

The following is FAA’s response to each of the recommendations. 

OIG Recommendation 1: Complete validation of the staffing ranges for SCT and NCT to 

ensure their staffing levels are sufficient to handle the volume and complexity of air traffic at 

those locations. 

FAA Response: Concur. FAA completed validation of staffing ranges for the Southern 

California Terminal Radar Approach Control (TRACON) (SCT) and the Northern California 

TRACON (NCT) on March 31. Both facility staffing ranges were increased slightly over fiscal 

year (FY) 2008 ranges. 

OIG Recommendation 2: Expand the use of relocation, retention, and other incentives to entice 

more experienced controllers to accept positions or defer retirements at LAX and SCT. 

FAA Response: Partially Concur. The FAA will continue to use incentives to retain and draw 

experienced personnel into SCT. Last year, the FAA successfully used incentives to retain 

21 employees and attract 13 experienced personnel into SCT. 

Although the FAA may offer some retention bonuses at Los Angeles International Airport Traffic 

Control Tower (LAX), the agency is not planning to offer incentive bonuses to bring more staff 

Appendix. Agency Comments 
 19

Appendix. Agency Comments 

into the facility. The existing and projected controller levels at LAX are well within their 

prescribed staffing range, and more than adequate in meeting air traffic demand. 

OIG Recommendation 3: Provide LAX, SCT, and NCT with enough contract instructors and 

classroom space (including off-site locations as needed), and simulators for the expected surge in 

new controllers—this is particularly critical at SCT. 

FAA Response: Concur. Controller training is a priority for the FAA. The agency is committed 

to providing resources that ensure the most efficient and practical training methods are used. In 

December 2008, the FAA instituted the facility monthly work plan. This on-going monthly plan 

streamlines the process for identifying and documenting facility training needs, and allows 

resources to be dispatched more efficiently across the country. 

OIG Recommendation 4: Evenly distribute the placement of new trainees to SCT throughout 

the year to avoid training “bottlenecks.” 

FAA Response: Concur. In October 2008, Terminal Services began a process that evenly 

distributes new hires through the year. This metering process offers a range of how many new 

hires a facility can accommodate at one time, and the rate of acceptance. 

The metering process complies with an earlier Office of Inspector General’s recommendation to 

consider facility training resources when allocating new hires. For FY 2009, 134 of 292 Terminal 

facilities requested grouping and time intervals for their planned new hires. Terminal Services 

tracks and evaluates the metering results, and facilities are able to request adjustments to 

metering as needed. 

OIG Recommendation 5: Conduct an independent analysis of overtime scheduling practices at 

LAX, SCT, and NCT to determine if the amount of overtime is appropriate, needed, and 

effectively utilized. 

FAA Response: Concur. Terminal Services is in the process of conducting an independent 

analysis of overtime scheduling practices at SCT, LAX, and NCT to determine where 

inefficiencies exist, and what factors are driving these issues. We anticipate a completion date of 

December 31, 2009. 
The following pages contain textual versions of the graphs and charts found in this 

document. These pages were not in the original document but have been added 

here to accommodate assistive technology. 
Controller Staffing at Key California Air Traffic Control Facilities 

Section 508 Compliant Presentation 

Table 1. Increased Overtime at LAX, SCT, and NCT Over 2 Years

At LAX, overtime hours in fiscal year 2006 were 606. In fiscal year 2008, 

overtime hours at LAX were 5,866—an increase of 868 percent. 

At SCT, overtime hours in fiscal year 2006 were 7,300. In fiscal year 2008, 

overtime hours at SCT were 36,700—an increase of 400 percent. 

At NCT, overtime hours in fiscal year 2006 were 5,685. In fiscal year 2008, 

overtime hours at NCT were 12,511—an increase of 120 percent. 

Table 2. OIG Assessment of FAA’s Plans for Ensuring Adequate Controller 

Staffing at LAX, SCT, and NCT

We evaluated LAX, SCT, and NCT across five areas: staffing levels, workforce 

composition, overtime worked, incentives, and hiring plans over the next 2 years. 

Table 2 summarizes our assessment of controller staffing issues at all three 

facilities. 

Area 1: Staffing Levels:

• LAX: No FAA action needed now. LAX is at or above authorized staffing 

levels, and its operations have declined. 

• SCT: Immediate FAA action needed. FAA needs to validate staffing 

ranges for large TRACONs. SCT’s operations have increased. 

• NCT: Immediate FAA action needed. FAA needs to validate staffing 

ranges for large TRACONs. NCT’s operations have remained constant. 

Area 2: Workforce Composition:

• LAX: Future FAA action needed. LAX currently has 10 (20 percent) 

controllers-in-training, but that will change in 2010 based on hiring plans. 

LAX’s percentage of controllers-in-training is still under the national 

average. 

• SCT: Immediate FAA action needed. SCT currently has 76 (32 percent) 

controllers-in-training. SCT’s percentage of controllers-in-training is over 

the national average. 
• NCT: Future FAA action needed. NCT currently has 41 (24 percent) 

controllers-in-training, but that will change in 2010 based on hiring plans. 

NCT’s percentage of controllers-in-training is still under the national 

average. 

Area 3: Overtime Worked Per 6-Day Week:

• LAX: Immediate FAA action needed. Overtime hours increased by 868 

percent since fiscal year 2006. LAX controllers are working 33.05 to 37.37 

total hours per 6-day week. 

• SCT: Immediate FAA action needed. Overtime hoursincreased by 400 

percent since fiscal year 2006. SCT controllers are working 31.43 to 36.97 

total hours per 6-day week. 

• NCT: Immediate FAA action needed. Overtime hours increased by 120 

percent since fiscal year 2006. NCT controllers are working 30.88 to 36.11 

total hours per 6-day week. 

Area 4: Incentives

• LAX: Future FAA action needed. FAA approved 6 relocation incentives 

in fiscal year 2008. 

• SCT: Future FAA action needed. FAA approved 17 retention bonuses in 

FY 2008. 

• NCT: No FAA action needed now. FAA is not offering incentives at NCT. 

Area 5: Hiring Plans Over the Next 2 Years

• LAX: No FAA action needed now. LAX will receive 8 new controllers 

and lose 10 controllers. Hiring plans will impact workforce composition in 

2010. 

• SCT: No FAA action needed now. SCT will receive 66 new controllers 

and lose 48 controllers. Hiring plans will impact workforce composition in 

2010. 

• NCT: No FAA action needed now. NCT will receive 46 new controllers 

and lose 39 controllers. Hiring plans will impact workforce composition in 

2010. 
Figure 1. LAX Controller Staffing and Air Traffic Operations, Fiscal Year 

1997 to Fiscal Year 2008 

In fiscal year 1997, LAX controller staffing was 44, and LAX air traffic operations 

were 767,352. 

In fiscal year 1998, LAX controller staffing was 42, and LAX air traffic operations 

were 786,364. 

In fiscal year 1999, LAX controller staffing was 42, and LAX air traffic operations 

were 771,337. 

In fiscal year 2000, LAX controller staffing was 42, and LAX air traffic operations 

were 781,418. 

In fiscal year 2001, LAX controller staffing was 48, and LAX air traffic operations 

were 783,160. 

In fiscal year 2002, LAX controller staffing was 51, and LAX air traffic operations 

were 637,588. 

In fiscal year 2003, LAX controller staffing was 51, and LAX air traffic operations 

were 630,755. 

In fiscal year 2004, LAX controller staffing was 50, and LAX air traffic operations 

were 646,919. 

In fiscal year 2005, LAX controller staffing was 44, and LAX air traffic operations 

were 653,534. 

In fiscal year 2006, LAX controller staffing was 40, and LAX air traffic operations 

were 653,181. 

In fiscal year 2007, LAX controller staffing was 46, and LAX air traffic operations 

were 672,245. 

In fiscal year 2008, LAX controller staffing was 44, and LAX air traffic operations 

were 659,221. 
Figure 2. LAX Controller Staffing Composition, Fiscal Year 2004 through 

December 2008 

In fiscal year 2004, LAX had 5 certified professional controllers in training and 45 

certified professional controllers. 

In fiscal year 2005, LAX had 2 certified professional controllers in training and 42 

certified professional controllers. 

In fiscal year 2006, LAX had 3 certified professional controllers in training and 37 

certified professional controllers. 

In fiscal year 2007, LAX had 10 developmental controllers, 6 certified 

professional controllers in training, and 30 certified professional controllers. 

In fiscal year 2008, LAX had 2 developmental controllers, 3 certified professional 

controllers in training, and 39 certified professional controllers. 

In December 2008, LAX had 7 developmental controllers, 3 certified professional 

controllers in training, and 39 certified professional controllers. 

Figure 3. SCT Controller Staffing and Air Traffic Operations, Fiscal Year 

1997 through Fiscal Year 2008 

In fiscal year 1997, SCT controller staffing was 273, and SCT air traffic 

operations were 2,272,135. 

In fiscal year 1998, SCT controller staffing was 278, and SCT air traffic 

operations were 2,239,477. 

In fiscal year 1999, SCT controller staffing was 258, and SCT air traffic 

operations were 2,290,048. 

In fiscal year 2000, SCT controller staffing was 281, and SCT air traffic 

operations were 2,456,065. 

In fiscal year 2001, SCT controller staffing was 280, and SCT air traffic 

operations were 2,359,052. 

In fiscal year 2002, SCT controller staffing was 271, and SCT air traffic 

operations were 2,143,429. 
In fiscal year 2003, SCT controller staffing was 255, and SCT air traffic 

operations were 2,075,308. 

In fiscal year 2004, SCT controller staffing was 244, and SCT air traffic 

operations were 2,119,851. 

In fiscal year 2005, SCT controller staffing was 224, and SCT air traffic 

operations were 2,119,708. 

In fiscal year 2006, SCT controller staffing was 222, and SCT air traffic 

operations were 2,128,347. 

In fiscal year 2007, SCT controller staffing was 227, and SCT air traffic 

operations were 2,216,604. 

In fiscal year 2008, SCT controller staffing was 224, and SCT air traffic 

operations were 2,246,877. 

Figure 4. Composition of SCT Controller Workforce, Fiscal Year 2004 to 

December 2008 

In fiscal year 2004, SCT had 8 certified professional controllers in training and 

236 certified professional controllers. 

In fiscal year 2005, SCT had 8 certified professional controllers in training and 

216 certified professional controllers. 

In fiscal year 2006, SCT had 12 developmental controllers, 13 certified 

professional controllers in training and 197 certified professional controllers. 

In fiscal year 2007, SCT had 38 developmental controllers, 16 certified 

professional controllers in training and 173 certified professional controllers. 

In fiscal year 2008, SCT had 44 developmental controllers, 19 certified 

professional controllers in training and 163 certified professional controllers. 

In December 2008, SCT had 52 developmental controllers, 24 certified 

professional controllers in training and 161 certified professional controllers. 
Figure 5. NCT Controller Staffing and Air Traffic Operations, Fiscal Year 

2004 through Fiscal Year 2008 

In fiscal year 2004, NCT controller staffing was 183, and NCT air traffic 

operations were 1,606,516. 

In fiscal year 2005, NCT controller staffing was 173, and NCT air traffic 

operations were 1,560,357. 

In fiscal year 2006, NCT controller staffing was 163, and NCT air traffic 

operations were 1,622,068. 

In fiscal year 2007, NCT controller staffing was 164, and NCT air traffic 

operations were 1,616,204. 

In fiscal year 2008, NCT controller staffing was 165, and NCT air traffic 

operations were 1,587,161. 

Figure 6. NCT Controller Staffing Composition, Fiscal Year 2004 through 

December 2008 

In fiscal year 2004, NCT had 3 developmental controllers, 90 certified 

professional controllers in training and 90 certified professional controllers. 

In fiscal year 2005, NCT had 77 certified professional controllers in training and 

96 certified professional controllers. 

In fiscal year 2006, NCT had 4 developmental controllers, 23 certified 

professional controllers in training and 136 certified professional controllers. 

In fiscal year 2007, NCT had 15 developmental controllers, 19 certified 

professional controllers in training, and 130 certified professional controllers. 

In fiscal year 2008, NCT had 28 developmental controllers, 5 certified 

professional controllers in training, and 132 certified professional controllers. 

In December 2008, NCT had 38 developmental controllers, 3 certified 

professional controllers in training, and 129 certified professional controllers.