Date: 201506
Local time of day: 1201-1800
Location: GFK.Airport, ND
Light: Daylight
Aircraft: No Aircraft
Flight phase: Taxi
ATC / advisory: Tower GFK
Reporter organization: Government
Reporter function: Ground
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Confusion
Second reporter function: Local
Anomaly: ATC Issue All Types; Conflict Ground Conflict; Less Severe; Deviation / Discrepancy - Procedural Clearance; Ground Incursion Runway
Detector: Person Air Traffic Control
When detected: In-flight
Result: Air Traffic Control Separated Traffic
Contributing factors: Human Factors; Procedure
Primary problem: Procedure

Narrative: I was working ground control. I was told by Local 2 a deer had been spotted inside the fence running North; East of runway 35R; approximately 1;000 feet North of the approach end of Runway 35R. The fence is about 250 feet East of the runway edge. Airport vehicle was out doing a pre Part 139 inspection that is due this month and was driving north along runway 35R. He was told about the deer and asked us to call operations and let them know so they could shoot the deer. Airport vehicle continued north on the runway. (We later found out the airport has been trying to get this deer for almost 4 days.) I was called by another Airport vehicle on the ramp and I took them to runway 35R at C1 then instructed them to call LC2. Approximately 3 minutes later I hear Local Control (LC) 2 tell our Front Line Manager (FLM) original airport vehicle was refusing to exit the runway and was telling him to cross second airport vehicle who said they would be in the RSA [runway safety area] East of runway 35R thereby shutting down operations. LC2 had an aircraft in position and two in the pattern; the closest one on base. LC2 was very professional and allowed the operation. He never pushed the fact the original vehicle refused an ATC instruction and never gave the phrase about a possible vehicle deviation. The FLM that day also did not back up the controller or make a phone call in support. While I understand airport operations has a job to do; so do we. The controller had the deer in sight and knew he had time to clear the runway of the departure and take the other two over to LC 1 on a base leg. Recent events and new airport managment has been increasingly difficult to work with. Refusing to clear the runway is a vehicle deviation at the very least. Our management needs to support its controllers as well. I do not have faith in some of them having my back.


Second narrative: Aircraft holding short of runway 35L; Airport vehicle number 2 for runway inspection. Pilot reports deer along fence at airport border. AIRPORT [vehicle] reports the deer in sight and advises that another airport vehicle is on the way out to take care of the issue.Controller: 'Aircraft X; Runway 35R clear for take off.' 'Airport vehicle; drive runway 35R; turn left at the end and contact Ground.'  'Other aircraft Y; Runway 35R; Line Up and Wait/traffic'Airport vehicle stops on runway between C1 & B. Second airport vehicle calls holding short at C1 advising that he needs to cross into the East Runway Safety Area (RSA). I tell Second airport vehicle to hold short for traffic holding in position. Original airport vehicle asks me to clear Second airport vehicle into the East RSA. I respond with 'Original airport vehicle; can you exit the runway now please?' Original airport vehicle refuses to clear the runway and again tells me to cross Second airport vehicle into the East RSA because the deer is a 'safety issue'. At this point; I have been told 3 times that Second airport vehicle needs to be in the East RSA; thus closing the runway with second aircraft holding in position. After original airport vehicle refusing to exit the runway 3 times; I crossed Second airport vehicle. Second airport vehicle cleared the RSA; so I cleared second aircraft for takeoff. During all of this; I had tow aircraft in the pattern in which I am coordinating with local 1 to take them on base.My initial plan was to clear second aircraft; then cross Second airport vehicle. From the tower; I could see that the deer was approximately 2;500 feet South of the airport vehicles; and walking very slowly northbound. At all times; the deer never left the edge of the fence. The controllers in the cab were unsure if the deer was even on the inside of the fence. After knowing about the deer; original airport vehicle allowed 5 operations on Runway 35R before saying 'Maybe you should not try to land anymore aircraft on this runway.' I give permission to share this event.This is the 2nd event in the last year or less that airport vehicles have refused to exit the runway when instructed by a controller. With the new RSA procedures; my understanding is that the runway is closed when vehicles are in the RSA. With second aircraft Lined Up and Waiting; clearing Second airport vehicle into the RSA would have been an instant bust on a closed runway.Airport Authority has the tendency to do whatever they want at this airport with no repercussions. After reporting this event to management; I was called to the Air Traffic Manager (ATM)'s office and told that it could not be a vehicle deviation because Airport Authority would overreact and close runways whenever they want; therefore sweeping this event under the rug was best for everyone. Controllers at this tower need management that will take care of issues that are happening on a regular basis with airport authority.


Synopsis: GFK Tower Controllers receive a call that a deer is close to the runway. Airport operations reports the deer in sight and the vehicle is permitted to get on the runway. Airport vehicle wants another airport vehicle to come to its position to remove the deer. Controller wants to use runway for departures and airport vehicle won't clear runway.