Date: 201502
Local time of day: 1801-2400
Location: LAF.Tower, IN
Light: Night
Aircraft: Small Transport; Low Wing; 2 Turbojet Eng
Flight plan: IFR
Flight phase: Initial Climb
Airspace: Class D LAF
ATC / advisory: Tower LAF
Second aircraft: Small Aircraft; Low Wing; 1 Eng; Retractable Gear
Reporter organization: Government
Reporter function: Flight Data / Clearance Delivery; Ground; Local; Supervisor / CIC
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Distraction; Confusion; Workload; Situational Awareness
Anomaly: ATC Issue All Types; Conflict Airborne Conflict; Deviation - Track / Heading All Types; Deviation / Discrepancy - Procedural Clearance; Deviation / Discrepancy - Procedural Published Material / Policy
Detector: Person Air Traffic Control
When detected: In-flight
Contributing factors: Staffing; Human Factors; Procedure
Primary problem: Procedure

Narrative: It was my second day back to work after being off from work for medical reasons for 3 weeks. The facility was short staffed due to one person calling out sick for the evening. Hold over time was issued; but the person on overtime was not CPC (Certified Professional Controller); only ground certified. The ATM (Air Traffic Manager); who is still certified in the tower; was to provide a break for me. Shortly before the incident; I gave the ground controller a break. The ATM then came up to the tower to look over a power outage issue in the cab. During this time the following events transpired. I had all positions combined; Local; Ground; Flight data and CIC. I had 3 aircraft in the pattern doing touch and go's; 7 aircraft taxiing to the active runway for departure with two being IFR and 1 aircraft inbound that was IFR. (The IFR clearance for Aircraft X had been issued by the ground controller that was on a break). The ATM noticed that there was starting to be a buildup of traffic and called the ground controller off from break. The ATM also noticed that an ATIS was needed and so made the recording for me since I was unable to at the time due to workload. Aircraft X called ready for departure from taxiway A2. I instructed Aircraft X to hold short of RWY 28 at A2 for landing traffic; plus there was an aircraft in front of Aircraft X. He read back 'Holding short A2'; but not the runway 28. Then Aircraft Y called ready for departure also from taxiway A2. I instructed Aircraft Y to hold short of runway 28 at A2 for landing traffic; Aircraft Y was number one in sequence. He also read back 'Holding short at A2'; but not the runway 28. Once the landing aircraft was no longer a factor I cleared Aircraft Y for takeoff with a north departure. I then asked Aircraft X their direction of flight; to which the reply was 'North'. Once Aircraft Y turned on course I cleared Aircraft X for takeoff with a north departure approved; assuming the aircraft was VFR. At some point the ground controller had returned to the tower; but we were unable to do a position briefing due to workload. During the takeoff roll for Aircraft X; a position briefing was finally accomplished. Aircraft X then requested headings. Upon hearing the request I realized the aircraft was an IFR departure and contacted the approach facility to advise them of the deviation from procedure. I believe that being off from work for 3 weeks then being made to work all positions combined while staffing is available is bad practice. As noted above the ATM was facility rated. The ATM noticed that there was a buildup of traffic; but instead of assuming the ground position when there was a possibility; another controller was called that was unable to help prior to the incident. After the incident and after the ground controller assumed the position; I requested the ATM take the CIC position to further de-combine during a busy time. The ATM declined; yet remained in the tower for approximately 15 minutes. I was eventually relieved from local position by the ATM after being on for over 2 hours 40 minutes. The ATM; knowing the lack of staffing; was supposed to assist with coverage but did not adequately.




Synopsis: LAF Controller describes a situation where the facility is short staffed and the Controller departs two aircraft in sequence; thinking the second is VFR. The second aircraft is IFR and the Controller has a loss of separation.