I 

117TH CONGRESS 

2D SESSION H. R. 6976 

To improve technology and address human factors in aviation safety, and 

for other purposes. 

IN THE HOUSE OF REPRESENTATIVES 

MARCH 8, 2022 

Mr. DESAULNIER introduced the following bill; which was referred to the 

Committee on Transportation and Infrastructure, and in addition to the 

Committee on Science, Space, and Technology, for a period to be subsequently determined by the Speaker, in each case for consideration of such 

provisions as fall within the jurisdiction of the committee concerned 

A BILL 

To improve technology and address human factors in aviation 

safety, and for other purposes. 

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 SECTION 1. SHORT TITLE. 

4 This Act may be cited as the ‘‘Safe Landings Act’’. 

5 SEC. 2. FINDINGS. 

6 Congress finds the following: 

7 (1) Given that the United States enjoys an ex8 ceptionally safe aviation system with an exceedingly 

9 low frequency of airline accidents, efforts to improve 


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1 aviation safety should examine nonaccident safety 

2 incidents for all possible insights. 

3 (2) Aviation safety should not be taken for 

4 granted, and even with so few accidents, the U.S. 

5 Aerospace System should proactively address safety 

6 concerns that emerge from our dynamic and evolving 

7 economic conditions, technology, aviation industry, 

8 and other factors. 

9 (3) Preventing accidents from occurring in the 

10 airport runway environment remains an objective re11 quiring continued effort, and incidents of runway 

12 confusion, defined as the subset of runway incur13 sions in which an aircraft unintentionally takes off 

14 or lands on a taxiway or incorrect runway, should be 

15 carefully monitored, reviewed, and studied for in16 sights to improve safety. 

17 (4) While technology continues to advance and 

18 new opportunities to use technology to address safe19 ty risks in aviation are examined and pursued, the 

20 evolving role of technology and the expanding use of 

21 automation should not be used as justification to di22 minish attention to and prioritization of the human 

23 contribution to aviation safety. The aviation industry 

24 and the Government must ensure that training pro25 grams for flight crews and other personnel are apVerDate Sep 11 2014 06:21 Apr 07, 2022 Jkt 029200 PO 00000 Frm 00002 Fmt 6652 Sfmt 6201 E:\BILLS\H6976.IH H6976

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1 propriately evolving, that training standards and ex2 pectations remain rigorous, and that risks and con3 cerns associated with the interaction between hu4 mans, technology, and automated systems are identi5 fied, studied, and addressed in a timely manner. 

6 SEC. 3. IMPLEMENTATION OF NTSB RECOMMENDATIONS. 

7 (a) NAVIGATIONAL RADIOS.—The Administrator 

8 shall implement the recommendation of the National 

9 Transportation Safety Board numbered as A–18–23 and 

10 issued on October 11, 2018, with respect to the tuning 

11 of navigational radios to assist flight crews in managing 

12 the flight path of aircraft on visual approaches. The Ad13 ministrator shall work with part 121 air carriers on imple14 mentation of this recommendation, and, not later than 1 

15 year after the enactment of this Act, the Administrator 

16 shall issue to Congress a report on air carrier compliance 

17 rate. 

18 (b) NTSB RECOMMENDATION.— 

19 (1) IN GENERAL.—The Administrator shall im20 plement the recommendation of the National Trans21 portation Safety Board numbered as A–18–25 and 

22 issued on October 11, 2018, and, not later than 1 

23 year after the enactment of this Act, the Adminis24 trator shall issue to Congress a report on the status 

25 of the implementation. 


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1 (2) CONSIDERATION.—In implementing this 

2 recommendation, the Administrator shall consider 

3 any relevant findings identified pursuant to section 

4 334 of the FAA Reauthorization Act of 2018 (Pub5 lic Law 115–254). 

6 (c) PILOT ALERTS.—The Administrator shall— 

7 (1) collaborate with aircraft and avionics manu8 facturers, labor organizations representing pilots op9 erating under part 121 of title 14, Code of Federal 

10 Regulations, and software developers to develop the 

11 technology for a cockpit system that provides an 

12 alert to pilots when an airplane is not aligned with 

13 the intended runway surface; 

14 (2) once such technology described in para15 graph (1) is available, establish a requirement for 

16 the technology to be installed on aircraft operating 

17 under part 121 of title 14, Code of Federal Regula18 tions, landing at airports within Class B and Class 

19 C airspace and certified under part 139 of title 14, 

20 Code of Federal Regulations; 

21 (3) in establishing the requirement as described 

22 in paragraph (2), consider any relevant findings 

23 identified pursuant to section 334 of the FAA Reau24 thorization Act of 2018 (Public Law 115–254); and 


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1 (4) not later than 1 year after the date of en2 actment of this Act, issue to Congress a report on 

3 the progress of the work described in paragraph (1). 

4 (d) NTSB RECOMMENDATION.— 

5 (1) IN GENERAL.—The Administrator shall im6 plement the recommendation of the National Trans7 portation Safety Board numbered as A–18–27 and 

8 issued on October 11, 2018, and, not later than 1 

9 year after the enactment of this Act, the Adminis10 trator shall issue to Congress a report on the status 

11 of the implementation. 

12 (2) CONSIDERATION.—In implementing this 

13 recommendation, the Administrator shall consider 

14 any relevant findings identified pursuant to section 

15 334 of the FAA Reauthorization Act of 2018 (Pub16 lic Law 115–254). 

17 SEC. 4. INVESTIGATIONS FOR COVERED EVENTS. 

18 (a) IN GENERAL.—Once implementation of section 

19 3(b) of this Act is complete, the National Transportation 

20 Safety Board may initiate investigations of covered events 

21 to determine risk factors specific to the airport at which 

22 such an event occurred and other elements of the National 

23 Airspace System that may contribute to the cause of the 

24 event. The National Transportation Safety Board may 

25 also elect to consider multiple events in a single report 


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1 as part of a special investigation or study to examine safe2 ty factors contributing to these events. 

3 (b) ADDITIONAL INVESTIGATIVE INFORMATION.—In 

4 addition to any investigation that the National Transpor5 tation Safety Board is conducting with respect to any spe6 cific covered event, the NTSB shall utilize voluntarily pro7 vided safety information in its evaluation of associated risk 

8 in the National Airspace System and protect such infor9 mation from public release in accordance with section 

10 1114(b)(3) of title 49, United States Code. 

11 (c) CONTENT.—The review and analysis shall exam12 ine factors present at the time of any covered event at 

13 such airport, including— 

14 (1) challenges pilots perceive when flying into 

15 and out of the airport; 

16 (2) challenges that air traffic controllers face 

17 when working at the airport; 

18 (3) characteristics of the communications 

19 among and between groups of personnel whose work 

20 relates to the movement of aircraft into and out of 

21 the airport including pilots, air traffic controllers, 

22 maintenance workers, dispatchers, and airline air23 port operations personnel; and 


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1 (4) physical characteristics of the airport and 

2 its facilities, such as the configuration of runways, 

3 runway lighting, and construction activity. 

4 SEC. 5. TASK FORCE ON HUMAN FACTORS IN AVIATION 

5 SAFETY. 

6 (a) IN GENERAL.—Not later than 6 months after the 

7 date of enactment of this Act, the Administrator shall con8 vene an FAA Task Force on Human Factors in Aviation 

9 Safety. 

10 (b) COMPOSITION.—The Task Force shall consist of 

11 members appointed by the Administrator and having ex12 pertise in an operational or academic discipline that is rel13 evant to the analysis of human errors in aviation. The 

14 number of members shall be determined by the Adminis15 trator to ensure sufficient representation of relevant oper16 ational and academic disciplines. 

17 (c) DURATION.— 

18 (1) IN GENERAL.—Members of the Task Force 

19 shall be appointed for the length of the existence of 

20 the Task Force. 

21 (2) LENGTH OF EXISTENCE.— 

22 (A) IN GENERAL.—The Task Force shall 

23 have an initial length of existence of 2 years. 

24 (B) OPTION.—The Administrator may ex25 ercise an option to lengthen the duration of the 


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1 existence of the Task Force for a period of 2 

2 years. 

3 (d) DISCIPLINES.—For purposes of subsection (b), 

4 disciplines may include air carrier operations, line pilot ex5 pertise, air traffic control, technical operations, aero6 nautical information, aircraft maintenance and mechanics 

7 psychology, linguistics, human-machine integration, gen8 eral aviation operations, and organizational behavior and 

9 culture. 

10 (e) EXPERTISE.— 

11 (1) IN GENERAL.—No less than half of the 

12 members shall have expertise in aviation. 

13 (2) ADDITIONAL EXPERTISE.—The Task Force 

14 shall include members with expertise on human fac15 tors but whose experience and training are not in 

16 aviation specifically and who have not previously 

17 been engaged in work related to the FAA or the 

18 aviation industry. The Task Force shall also include 

19 pilot labor organization, certificated mechanic labor 

20 organizations, and at least one member from an air 

21 traffic controller labor organization. 

22 (f) FAA MEMBERS.— 

23 (1) IN GENERAL.—Not more than 4 members 

24 may be employees of the FAA and NTSB, excluding 

25 representatives of the labor representatives of emVerDate Sep 11 2014 06:21 Apr 07, 2022 Jkt 029200 PO 00000 Frm 00008 Fmt 6652 Sfmt 6201 E:\BILLS\H6976.IH H6976

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1 ployees of the air traffic control system. Not more 

2 than 2 members may be employees of the NTSB. 

3 The FAA and the NTSB members shall be non-vot4 ing. 

5 (2) FAA EMPLOYEES.—Any member who is an 

6 FAA employee shall have expertise in safety. 

7 (g) DUTIES.—In coordination with the Research, En8 gineering, and Development Advisory Committee estab9 lished under section 44508 of title 49, United States Code, 

10 the Task Force shall— 

11 (1) not later than the date on which the Task 

12 Force is no longer in existence, produce a written re13 port that— 

14 (A) to the greatest extent possible, identi15 fies the most significant human factors and 

16 their relative contribution to aviation safety 

17 risk; 

18 (B) identifies new research priorities for 

19 research in human factors in aviation safety; 

20 (C) reviews existing products by other 

21 working groups related to human factors in 

22 aviation safety including the Commercial Avia23 tion Safety Team (CAST)’s work pertaining to 

24 flight crew responses to abnormal events; 


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1 (D) provides recommendations on potential 

2 revisions to any FAA regulations and guidance 

3 pertaining to the certification of aircraft under 

4 part 25 of title 14, Code of Federal Regula5 tions, including sections related to presumed 

6 pilot response times and assumptions about the 

7 reliability of pilot performance during unex8 pected, stressful events; 

9 (E) reviews rules, regulations, or standards 

10 regarding flight crew rest and fatigue, as well 

11 as maintenance personnel rest and fatigue, that 

12 are used by a sample of international air car13 riers, including those deemed to be more strin14 gent and less stringent than the current stand15 ards pertaining to United States air carriers, 

16 and identify risks to the National Airspace Sys17 tem from any such variation in standards 

18 across countries; 

19 (F) reviews pilot training requirements and 

20 recommend any revisions necessary to ensure 

21 adequate understanding of automated systems 

22 on aircraft; 

23 (G) reviews approach and landing mis24 alignment and make any recommendations for 

25 improving these events; and 


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1 (H) identifies ways to enhance instrument 

2 landing system (ILS) maintenance schedules; 

3 determines how a real-time smart system 

4 should be developed that informs the Air Traf5 fic Control System, Airlines, and Airports about 

6 any changes in the state of runway and taxiway 

7 lights; and identifies how this system could be 

8 connected to the FAA’s maintenance system; 

9 (2) produce a written report to Congress not 

10 less than once every 2 years that— 

11 (A) summarizes new research developments 

12 on human factors in aviation safety; 

13 (B) to the greatest extent possible, identi14 fies the most significant human factors and 

15 their relative contribution to aviation safety 

16 risk; and 

17 (C) provides any recommendations for pol18 icy or regulatory action; and 

19 (3) if the Secretary exercises the option de20 scribed in subsection (c)(2)(B), not later than the 

21 date that is 2 years after the date of establishment 

22 of the Task Force, produce an interim report con23 taining the information described in paragraph (1). 


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1 (h) APPLICABLE LAW.—The Federal Advisory Com2 mittee Act (5 U.S.C. App.) shall not apply to the Task 

3 Force. 

4 SEC. 6. RESEARCH AND DEVELOPMENT PROGRAM ON NEW 

5 APPROACHES TO DATA ANALYSIS FOR AVIA6 TION SAFETY. 

7 (a) IN GENERAL.—The Secretary shall establish a 

8 new research and development program to be undertaken 

9 by the FAA’s Consortium in Aviation Operations Research 

10 (NEXTOR II) to investigate and develop new approaches 

11 to data analysis for understanding the factors in aviation 

12 safety incidents and identifying emerging risks of future 

13 safety incidents. 

14 (b) APPROACHES.—The approaches described in sub15 section (a) include the use of new algorithms for analyzing 

16 the text and audio of communications between flight crews 

17 and air traffic controllers and the use of machine learning 

18 or artificial intelligence methods for analyzing a variety 

19 of data sets, including, data on weather, performance of 

20 communication, navigation and surveillance equipment 

21 and facilities, flight delays, safety incidents, flight crew 

22 work schedules, and air traffic and crew member commu23 nications for detecting anomalies in the National Airspace 

24 System. 


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1 (c) COLLABORATION.—In carrying out the research 

2 program established in this section, member institutions 

3 of the Consortium shall collaborate in the sharing of data 

4 for the purpose of testing and demonstrating the potential 

5 effectiveness of new approaches to analysis— 

6 (1) with each other; 

7 (2) with aviation industry partners; 

8 (3) with units within the FAA including groups 

9 within the Air Traffic Organization, NextGen Office, 

10 Office of Airports, and Aviation Safety; and 

11 (4) with the National Aeronautics and Space 

12 Administration’s Aviation Safety Reporting System. 

13 (d) RESEARCH.— 

14 (1) IN GENERAL.—The research undertaken 

15 pursuant to this section shall prioritize under16 standing the ways that various forms of human fac17 tors contribute to aviation safety risk. 

18 (2) FACTORS.—The factors described in para19 graph (1) may include fatigue and distraction during 

20 critical phases of work among pilots or other avia21 tion personnel, tasks and workload, organizational 

22 structure and culture, communication among per23 sonnel, adherence to safety procedures, and any 

24 other relevant factors that are the cause or potential 

25 cause of human error in aviation operations. 


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1 (3) HIGHLY AUTOMATED AIRCRAFT.—Research 

2 should seek ways to improve the design of highly 

3 automated aircraft to reduce instances of mode con4 fusion and to combat problems of reduced awareness 

5 of basic flight parameters resulting from compla6 cency about automated systems. 

7 (e) AUTHORIZATION OF APPROPRIATIONS.—There is 

8 authorized to be appropriated $20,000,000 for carrying 

9 out the program described in this section for each fiscal 

10 year from 2022 through 2027, including grants to partici11 pating research institutions, including the academic insti12 tutions that make up the FAA’s Consortium in Aviation 

13 Operations Research, the National Aeronautics and Space 

14 Administration, the FAA’s Office of Safety, the NextGen 

15 office, and units within the FAA’s Air Traffic Organiza16 tion that work on safety issues. 

17 (f) SUNSET.—The program shall terminate on the 

18 date that is 6 years after the date on which the program 

19 is established. 

20 SEC. 7. USING INSTRUMENT APPROACH PROCEDURES AS 

21 BACKUPS TO VISUAL APPROACHES. 

22 (a) REPORT.—Not later than 120 days after the date 

23 of enactment of this Act, the Administrator shall issue a 

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1 mittee on Commerce, Science, and Transportation of the 

2 Senate that uses a representative sample of part 121 and 

3 part 129 air carriers to review the current range of air 

4 carrier practices in requiring the use of instrument ap5 proach procedures as a backup system for visual ap6 proaches and the extent to which operators require pilots 

7 to use approach procedures. 

8 (b) ISSUANCE OF GUIDANCE.—Not later than 1 year 

9 after the date of enactment of this Act, the Administrator 

10 shall review and analyze the collected data from the report 

11 described in subsection (a) and issue guidance to air car12 riers on the most effective techniques and procedures to 

13 use instrument approach procedures as a backup system 

14 for visual approaches. Such guidance shall encourage the 

15 use of instruments to provide vertical and lateral guidance 

16 to mitigate the potential for a wrong surface alignment 

17 and to provide flight crews with more precise vertical and 

18 lateral deviation information. 

19 SEC. 8. NOTAM MODERNIZATION INITIATIVE. 

20 (a) IN GENERAL.—The Administrator shall lead an 

21 effort to reform and update the ‘‘notices to airmen’’ 

22 (NOTAM) system to harmonize with International Civil 

23 Aviation Organization (ICAO) Annexes and Standards 

24 and Recommended Practices (SARPS), including the ex25 isting methods of writing, formatting, and disseminating 


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1 information under this system, for the purposes of improv2 ing these notices’ clarity, user-friendliness, and effective3 ness in conveying priority, safety-related concerns. 

4 (b) REQUIREMENTS.—In carrying out this initiative, 

5 the Administrator shall— 

6 (1) collaborate with airlines and labor organiza7 tions representing pilots operating under part 121 of 

8 title 14, Code of Federal Regulations, organizations 

9 representing general aviation, air traffic controllers, 

10 airport operations personnel, and the military on de11 veloping recommendations for improving the user12 friendliness of the content, style, and formatting of 

13 NOTAMs, including any changes to existing conven14 tions for such items as abbreviations, punctuation, 

15 font, and font size; 

16 (2) collaborate with avionics manufacturers and 

17 software developers in considering hardware and 

18 software options for sending, accessing, and dis19 playing NOTAMs; and 

20 (3) take appropriate actions within the Inter21 national Civil Aviation Organization (ICAO) to 

22 adopt recommended standards on the writing, for23 matting, and disseminating of NOTAMs. 

24 (c) REPORT TO CONGRESS.—The Administrator shall 

25 issue a report to Congress not later than 1 year after the 


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1 date of enactment of this Act, and no less than every 6 

2 months thereafter, until new standards for the writing, 

3 formatting, and dissemination of NOTAMs have been 

4 adopted by the FAA. This report shall include an update 

5 on the progress of the work described in this section, in6 cluding an explanation of how any new recommendations 

7 that have been developed will improve safety and an expla8 nation of any obstacles remaining to achieving consensus 

9 for new international standards for the NOTAM system. 

10 SEC. 9. GAO STUDY ON RISKS ASSOCIATED WITH THE USE 

11 OF CVR DATA IN FOREIGN COUNTRIES. 

12 (a) IN GENERAL.—The Comptroller General shall 

13 take the lead in carrying out a study on the risks associ14 ated with the use of CVR data in investigations led by 

15 foreign governments or units of foreign governments. 

16 (b) CONTENTS.—At minimum, this study shall— 

17 (1) review past incidents in which CVR data 

18 was used by foreign governments or units of foreign 

19 governments in such a way that the National Trans20 portation Safety Board found to depart from the 

21 National Transportation Safety Board’s standards 

22 and procedures for a safety investigation, including 

23 the use or circulation of CVR data for purposes 

24 other than determining the causes of an accident or 

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1 tained on a CVR, or the dissemination of informa2 tion or conclusions based on a misinterpretation of 

3 data contained on a CVR; 

4 (2) document the protections provided for cock5 pit voice recordings and transcripts by ICAO and 

6 other countries where United States-based air car7 riers operate; 

8 (3) identify and assess the risks to United 

9 States flight crews, air carriers, manufacturers, and 

10 other stakeholders in the aviation industry associ11 ated with CVRs capable of recording more than 2 

12 hours of data; and 

13 (4) provide recommendations on measures to 

14 adopt to mitigate against such risks and ensure that 

15 any use of CVR data serves the sole purpose of a 

16 safety investigation, including recommendations for 

17 the United States to make to ICAO to mitigate 

18 these risks. 

19 SEC. 10. TRANSPARENCY IN AIRCRAFT MAINTENANCE AND 

20 REPAIR WORK. 

21 (a) IN GENERAL.—Not later than 1 year after the 

22 date of enactment of this Act, the Administrator shall up23 date the guidelines of the FAA for part 121 certificate 

24 holders in implementing a Continuing Analysis and Sur25 veillance System (CASS) for their air carrier maintenance 


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1 programs to include reporting no less than once every 6 

2 months by certificate holders to the FAA of any failure 

3 to follow procedures in aircraft maintenance as well as any 

4 major alteration, complete overhaul, or repair of mechan5 ical irregularities of each airframe, engine, propeller, and 

6 appliance. 

7 (b) ADVISORY.—Not later than 1 year after the date 

8 of enactment of this Act, the Administrator shall issue an 

9 advisory with formatting guidelines for air carriers to re10 port information as required under subsection (a). 

11 (c) INCLUSION.—For each instance of a failure to fol12 low procedures and for each major alteration, overhaul, 

13 or repair reported under the requirements of this section, 

14 the Administrator shall require certificate holders to in15 clude any name and any physical address where the work 

16 is carried out for each maintenance provider that performs 

17 work. 

18 (d) DEFINITIONS.—In this section, the terms ‘‘major 

19 alterations’’, ‘‘airframe’’, ‘‘propeller’’, and ‘‘appliance’’ 

20 have the meanings given such terms in part 1 of title 14, 

21 Code of Federal Regulations. 

22 SEC. 11. REVIEW OF FAA’S AVIATION SAFETY INSPECTION 

23 PROGRAM. 

24 (a) AUDIT BY THE DEPARTMENT OF TRANSPOR25 TATION INSPECTOR GENERAL.—Not later than 6 months 


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1 after the date of enactment of this Act, the Inspector Gen2 eral of the Department of Transportation shall initiate a 

3 review of the FAA’s August 2017 Flight Standards reor4 ganization and its aviation safety inspection program. 

5 (b) REVIEW.—The review shall include an evaluation 

6 of— 

7 (1) the FAA Flight Standards reorganization 

8 from a geographic-based system to a functional9 based system; 

10 (2) the implementation of the FAA’s Compli11 ance Philosophy as it relates to safety inspections 

12 and enforcements; 

13 (3) the FAA’s new oversight system known as 

14 the Safety Assurance System (SAS); 

15 (4) training for aviation safety inspector and 

16 operational research analysts on the Compliance 

17 Philosophy and SAS; and 

18 (5) the impact of the FAA’s reorganization and 

19 SAS on the FAA’s ability to produce reliable esti20 mates of aviation safety inspector and operational 

21 research analyst staffing needs. 

22 (c) REPORT.—The Inspector General shall submit to 

23 the Committee on Transportation and Infrastructure of 

24 the House of Representatives and the Committee on Com25 merce, Science, and Transportation of the Senate a report 


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1 on the results of its review and any recommendations to 

2 improve the aviation safety inspection program of the 

3 FAA. 

4 SEC. 12. DEFINITIONS. 

5 In this Act: 

6 (1) ADMINISTRATOR.—The term ‘‘Adminis7 trator’’ means the Administrator of the Federal 

8 Aviation Administration. 

9 (2) COVERED EVENT.—The term ‘‘covered 

10 event’’ means— 

11 (A) a category A or B runway incursion, 

12 as defined in Order 7050.1B of the Federal 

13 Aviation Administration (dated November 3, 

14 2013); 

15 (B) a landing on a taxiway, incorrect run16 way, or other area not designed as a runway at 

17 a public-use airport on land; 

18 (C) descent by an aircraft below 300 feet 

19 above ground level on approach to a taxiway, 

20 incorrect runway, or other area not designed as 

21 a runway at a public-use airport on land; or 

22 (D) a landing by an aircraft notwith23 standing an instruction by air traffic control 

24 that the aircraft perform a missed approach or 

25 go-around. 


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1 (3) FAA.—The term ‘‘FAA’’ means the Fed2 eral Aviation Administration. 

3 (4) PART 121 AIR CARRIER.—The term ‘‘part 

4 121 air carrier’’ means an air carrier that holds a 

5 certificate issued under part 121 of title 14, Code of 

6 Federal Regulations. 

7 (5) PART 129 AIR CARRIER.—The term ‘‘part 

8 129 air carrier’’ means an air carrier that holds a 

9 certificate issued under part 129 of title 14, Code of 

10 Federal Regulations. 

Æ 


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