Date: 201707
Local time of day: 1201-1800
Location: CHA.Tower, TN
Light: Daylight
Aircraft: Small Transport
Operator: Personal
Operating under: Part 91
Flight plan: IFR
Mission: Personal
Flight phase: Final Approach
Airspace: Class C CHA
ATC / advisory: Tower CHA
Second aircraft: Small Transport
Reporter organization: Government
Reporter function: Flight Data / Clearance Delivery; Supervisor / CIC; Ground
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Distraction; Situational Awareness; Workload; Communication Breakdown
Anomaly: ATC Issue All Types; Conflict Airborne Conflict; Deviation - Track / Heading All Types; Deviation / Discrepancy - Procedural Published Material / Policy; Deviation / Discrepancy - Procedural Clearance
Detector: Person Air Traffic Control
When detected: In-flight
Result: Air Traffic Control Issued Advisory / Alert; Air Traffic Control Provided Assistance; Flight Crew Requested ATC Assistance / Clarification
Contributing factors: Procedure; Human Factors
Primary problem: Procedure

Narrative: I was working ground control; clearance delivery; and CIC positions. Aircraft X was on the VOR runway 33 approach with intentions to circle to the Runway 02. Runway 02 was the active runway at the time. Aircraft X checked on with local control; reporting a 3 mile final to runway 33 and requested to circle to Runway 02. Local then instructed Aircraft X to circle west for a left base Runway 02; but was also restricted to remain south of the runway for a departure. There was a jet holding short of the approach end of Runway 02 but had not been cleared for takeoff. I told the local controller that he would not be able to get the jet out in time and that it 'would not work'. Nothing that I said was recorded. Aircraft X read back 'circle west for a left base Runway 02 cleared for the option.' Aircraft X then asked for clarification on the restriction to remain south of the runway for the departure. The local controller again told Aircraft X about a jet that would depart prior to his arrival. I again told the local controller that it would not work and he should hold the jet. Aircraft X then requested maneuvers to hold south of Runway 02 for departing traffic. By this time; Aircraft X was crossing the approach course for Runway 02 and continued to the west side while making a left hand 360 degree turn. The local controller finally told Aircraft X to disregard the departing traffic and to 'maneuver as needed'. Aircraft X read back these instructions and continued his left hand turn back towards final.Prior to reaching final; a Medevac helicopter called off of a hospital that is west of CHA airport wanting to transition over the airport to the east side. Local then radar identified the helicopter and issued traffic in regards to Aircraft X; who at that time appeared to be joining the final for Runway 02. Aircraft Y at this was turning a 5 mile base to Runway 02. Aircraft X however; was still confused about the instructions and continued the left turn back to the west in another 360 degree turn. As soon as I saw Aircraft X continuing the left turn; I told the local controller to watch Aircraft X and Aircraft Y. Aircraft Y was now on a 4 mile final and Aircraft X was facing due west and continuing to turn left. I then told the local controller to have Aircraft X join the left downwind to follow Aircraft Y. This was stated multiple times. Aircraft X was now facing more to the southwest and continuing to turn left when Aircraft X asked Local if he should continue to orbit. Again; I told the local controller to have Aircraft X join the left downwind to follow Aircraft Y. The local controller was focused on what Aircraft X had said; so he replied to Aircraft X and told him 'Aircraft X negative; cleared to land Runway 02'. I again told local control to have Aircraft X join the left downwind to follow Aircraft Y. Aircraft Y then checked on with local on a 4 mile final to Runway 02. The local controller then told Aircraft X to 'Hold his position west of the runway' and that traffic would pass off his left wing landing Runway 02. Again; I said one last time to have Aircraft X join the left downwind; but it was too late by this time. Aircraft X was facing due east; about to cross in front of Aircraft Y with about a half mile or less between them. This is when the local controller finally told Aircraft X to enter the left downwind for Runway 02.Due to confusion and not enough reaction time available at this point; Aircraft X continued the left turn; unaware that Aircraft Y was in close proximity. No traffic alerts were issued. Aircraft Y reported Aircraft X in sight on the base leg joining in front of him. Aircraft X then tried responding to the instructions of local control; but was only able to get out his call sign and an explicit when he caught sight of Aircraft Y. Aircraft X crossed in front of Aircraft Y in close proximity which is estimated at about .46 miles lateral and 200 to 300 feet vertical separation. I then told the local controller to issue a 090 heading to Aircraft X; but instead he told Aircraft X to enter the right downwind for Runway 02. Aircraft X then requested to proceed to the east VFR and to get resequenced to final. I again told the local controller to issue Aircraft X a 090 heading; which he did. Local then told Aircraft X to maintain VFR at or below 3000 ft. I asked the local controller then if Aircraft X had reported cancellation of IFR. Local then asked Aircraft X if he was canceling IFR; to which Aircraft X replied in the affirmative. Local cleared Aircraft Y to land; and coordination and sequence was established with East radar. Aircraft X was then VFR in the traffic pattern; was told to turn base behind Aircraft Y and both aircraft made a full stop landing without further incident.I would recommend in-house retraining to the local controller. The way in which he cleared the aircraft for the circle approach was non-standard and confusing. The instructions that I was giving were not heeded; mostly because of the frustration of the local controller. There was no animosity in his actions towards me. The main issue was the falling apart of standard phraseology; lack of understanding of local procedures and traffic alerts. I should have taken over the frequency and fixed the situation myself; but I kept thinking that he was going to do what I was telling him to.




Synopsis: CHA Tower Controller observed Local Control conducting an unsafe operation.