Date: 201407
Local time of day: 1801-2400
Location: BFI.Airport, WA
Light: Daylight
Aircraft: Any Unknown or Unlisted Aircraft Manufacturer
Operator: Government
Flight plan: VFR
Mission: Tactical
Flight phase: Initial Climb
Airspace: Class B SEA
ATC / advisory: Tower BFI
Second aircraft: Small Transport
Reporter organization: Military
Reporter function: Supervisor / CIC
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Communication Breakdown; Confusion; Distraction
Anomaly: ATC Issue All Types; Conflict Airborne Conflict; Deviation / Discrepancy - Procedural Published Material / Policy; Deviation / Discrepancy - Procedural Clearance
Detector: Person Air Traffic Control
When detected: In-flight
Result: Air Traffic Control Separated Traffic
Contributing factors: Procedure
Primary problem: Procedure

Narrative: BFI-South Flow; SEA - South Flow. BFI did not have Plan Alpha and advertised it on the ACE-IDS. When I arrived in the Tower Cab to take OS/CIC position; [a Controller] was on the telephone with S46; coordinating for Aircraft X's opposite direction approach. [The other Controller] briefed me that Aircraft X was going to come in VFR from the south; make a low pass and depart to the north; but; S46 had to treat Aircraft X as an IFR. [Other Controller] advised that S46 needed BFI to provide Visual Separation between Aircraft X and SEA's final on SEA's 11 mile final. [Another Controller] briefed Local West and gave [the position to another Controller]; then briefed me on OS/CIC. I called S46 to advise that we could not see SEA's final out to 11 miles. I advised that we could see SEA's aircraft when they were at 2;800 FT and abeam Safeco field (approximately 9 miles out) and could provide visual from that point. S46 then asked if we could do it or not; if not they would have to break him out. I said we could. Aircraft X made a low approach to Runway 31L and flew down the length of the runway at 50 FT. Once the Low Approach was complete; Local shipped FLC54 to departure approximately 1/2 mile off the departure end of Runway 31L. At this time Aircraft Y was over Shilshole on a 10-11 mile final for Runway 13R. Aircraft X was not issued traffic on Aircraft Y before being shipped to S46. Aircraft X flew straight out; up the centerline; to 1;600 FT. Aircraft Y checked in and said he would cancel; the CA went off; I told Local to do something with Aircraft Y; Aircraft X and Aircraft Y were nose to nose and approximately 2 miles apart; Aircraft Y at 2;100 FT and Aircraft X at 1;600 FT. Local told Aircraft Y cancellation received and to stay at current altitude; gave traffic on Aircraft X. Aircraft Y reported Aircraft X in sight. On the STARS; Aircraft X turned west under Aircraft Y. Aircraft Y then continued inbound to land.Communication with S46: When Plan A is not advertised on the ACE-IDS; stop pressuring BFI into providing it. S46 should have made clear that Aircraft X was VFR the whole time and we could turn him as necessary off the departure end. S46 said that they had to treat him like Aircraft X was IFR on the approach; it is not unreasonable to think that they had to treat him as IFR off the departure end too. (Need more clarity) if Aircraft X was going to go straight out (up our 13R final); S46 needs to build a bigger hole for him instead of running an IFR inbound on the approach; and creating a head to head situation.BFI Local Controller: Improve scanning to recognize conflicts. Take action sooner. Ask questions to understand what Aircraft X is going to do after their approach. Issue traffic sooner for opposite direction conflicts. BFI OS/CIC: Not approved visual separation when we did not have Plan Alpha. Disapproved the opposite direction approach. Call S46 and have them turn Aircraft X when we saw him flying up our final with traffic inbound.




Synopsis: BFI Tower Controller reports of a situation where an aircraft makes a low approach; then gets into conflict with an arrival aircraft that is opposite direction.