Date: 201604
Local time of day: 1801-2400
Location: PRC.Tower, AZ
Flight conditions: VMC
Aircraft: Robinson R22
Operator: FBO
Flight plan: VFR
Mission: Training
Flight phase: Initial Climb
Airspace: Class D PRC
ATC / advisory: Tower PRC
Reporter organization: Government
Reporter function: Supervisor / CIC
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Training / Qualification; Confusion; Situational Awareness
Second reporter function: Flight Data / Clearance Delivery; Local
Anomaly: ATC Issue All Types; Conflict Airborne Conflict; Deviation / Discrepancy - Procedural Published Material / Policy
Detector: Person Air Traffic Control
Result: Air Traffic Control Issued New Clearance
Contributing factors: Procedure; Manuals; Aircraft; Airport; Human Factors
Primary problem: Procedure

Narrative: I observed the Local Controller clear a helicopter for take off. This departure is covered in a Letter of Agreement (LOA). The LOA specifies the departure point as the intersection of taxiways. It is a common practice to depart from other points on the taxiway after coordination via flight progress strip. In this case Local Control was running a modified left traffic pattern. This operation required aircraft departing to make an early left crosswind turn.In this case the helicopter was coordinated to depart the taxiway. This would place the departure to the left of the runway abeam the departing aircraft. The Local Controller failed to scan and locate the departing traffic prior issuing take off clearance. After issuing the clearance which placed the aircraft in potential conflict with aircraft departing the runway that were instructed to turn early crosswind prior to the control tower. After clearing the helicopter for takeoff the controller reached out to aircraft advising not in sight and requesting position.This individual is in need of some sort of skill enhancement training related to scan.


Second narrative: I observed helicopters landing and departing the runway. I questioned the operation since the runway was notamed closed. I was advised that through coordination with airport operations helicopters were being authorized to operate on the runway as long as they made their approach to the numbers of the runway and turned crosswind prior to the intersecting runway. I then observed Ground Control cross the runway without coordinating with Local Control at an intersection with a helicopter departing the runway and a helicopter on final for the numbers of the runway cleared for the option.I questioned this operation and was told that the helicopters would turn crosswind prior to an intersection and that Local Control had released control of runway/taxiway intersection and south. I questioned if this was in accordance with N JO 7110.704 paragraph 3-7-2 f; 1; 2 a; b. I was informed that this didn't apply since the helicopters were making the approach to the numbers and when departing had verbally agreed to turn crosswind prior the the intersection at which the aircraft would cross the runway. The thought process as explained was that since the helicopters were not being cleared to the runway but to the numbers that paragraph 3-7-2f; 1; 2 a;b did not apply. That this was just like using diverse landing points for helicopters and that the runway was not really active.I suggest an outside review to determine if this operation was in compliance with the intent of N JO 7110.704 ( during departure operations; ensure that aircraft/vehicles intending to cross a runway do not cross the runway holding position markings until the controller visually observes the departure aircraft in a turn; or the departure aircraft has passed the point where the crossing aircraft/vehicle is located; regardless of altitude; unless authorized in FAA Order JO 7110.65; 3-10-10; Altitude Restricted Low Approach) and JO 7110.65 (Coordination between local and ground controllers). Additionally how does this comply with N JO 7110.704 f 2 (a) An aircraft/vehicle has completed crossing prior to the arriving aircraft crossing the landing threshold; or (b) A crossing aircraft/vehicle will not cross thee runway holding position markings the arrival has landed and either: (i) The controller has confirmed by verbal commitment from the pilot that the arriving aircraft will exit the runway prior to the point at which the crossing is intended; or (ii) The controller visually observes the aircraft exiting the runway prior to the point at which the crossing is intended.Based on the above scenario it would seem that N JO 7110.704 could be ignored as long as the runway is not declared active and or restrictions are placed on arriving and departing aircraft to not use entire length of runway.


Synopsis: A Tower Controller was clearing helicopters to land and depart from a closed runway. The Controller allowed an aircraft to taxi across the closed runway with a helicopter on approach.