Date: 201411
Local time of day: 0001-0600
Location: RDU.TRACON, NC
Flight conditions: IMC
Light: Night
Aircraft: Small Aircraft; Low Wing; 2 Eng; Retractable Gear
Operator: Corporate
Operating under: Part 91
Flight plan: IFR
Mission: Passenger
Flight phase: Final Approach
Airspace: Class E RDU
ATC / advisory: TRACON RDU
Reporter organization: Government
Reporter function: Approach
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Communication Breakdown; Confusion; Troubleshooting; Situational Awareness
Anomaly: ATC Issue All Types; Deviation / Discrepancy - Procedural Clearance; Deviation / Discrepancy - Procedural Published Material / Policy
Detector: Person Flight Crew; Person Air Traffic Control
When detected: In-flight
Result: Air Traffic Control Provided Assistance; Air Traffic Control Issued New Clearance; Flight Crew Returned To Clearance
Contributing factors: Staffing; Human Factors
Primary problem: Staffing

Narrative: While working all RDU positions combined from the Tower during a Mid shift; on a low-ceiling IFR night; I was contacted by Aircraft X; for assistance.  The pilot reported that he was IFR; descending to join the GSO localizer on approach to Runway 23L at GSO.  He reported that he had lost contact with GSO Approach; and had thus reached out to me.  I identified Aircraft X on radar; observed that he was inside GSO Approach airspace; and informed the pilot that I would not (legally) be able to clear him onto the approach or to land at GSO.  I informed him that I was not aware of whether or not there was published holding on the approach; but asked if he was able to hold momentarily while I attempted to reach GSO Approach.  He affirmed that he would; and climbed on his own to 4000 MSL for better radio reception with me at RDU Approach and into VMC conditions.  I immediately attempted to reach GSO Approach via our established land line; and did not receive a response after multiple attempts.  I contacted FAY Approach; asking them to attempt to reach GSO Approach as well.  I looked up the GSO Approach telephone numbers in our RDU IDS; and called them on a regular telephone line; receiving no response.  FAY Approach contacted me to tell me they had no luck reaching GSO Approach; including on regular telephone line numbers as well.  I then contacted ZDC Liberty sector; and asked them to attempt to reach GSO Approach.  They responded that they were unable to reach GSO Approach.  I communicated regularly with Aircraft X throughout; who had stated that he did not have the fuel to spend much time holding near GSO.  I informed him that I could bring him to either RDU or one of our satellite airports; and to advise me when he was ready to head toward RDU Approach airspace.  When the pilot informed me that he was turning toward RDU and wanted to land there; I cleared him to RDU via radar vectors at 4000MSL.  I did so without coordination with GSO; but felt that I had no other option at that point to assist the pilot.  I read him the RDU ATIS; vectored him onto the ILS Rwy 23L approach; and the aircraft landed safely.  During the aircraft's flight to RDU; I contacted the RDU acting Air Traffic Manager; at home to inform him of the situation.  I informed him of the actions taken until that point; and that the Liberty controller had informed me that her supervisor was going to contact the Domestic Events Network regarding this scenario.  We discussed various options on how to reach GSO Approach; and after exhausting those (including contact on 118.5mhz); consulted the RDU Emergency binder; and considered GSO Approach to be 'ATC Zero'.  The pilot reported last contact with GSO Approach; when he had been handed off to GSO Approach and checked on with them on initial contact; being told to expect GSO Rwy 23L.  My last contact with GSO Approach had been  on an altitude coordination.  After Aircraft X landed at RDU; the pilot contacted me via telephone at my request; and I collected his name and contact information  Aircraft X pilot expressed his concern at not having been able to reach GSO Approach late on an IFR night; and requested an explanation from an FAA management official later in the day.  I received a land line call from GSO Approach to perform a line check.  We completed the line check; and I asked the GSO controller to contact me via telephone.  I asked the controller if he was Ok; and informed him that the adjacent ATC sectors had been trying to reach him.  I informed him that I had cleared Aircraft X out of his airspace and that he had landed at RDU safely.  I confirmed with him that GSO Approach had resumed 'normal Ops'; and advised FAY Approach and Liberty sector.  I recounted this scenario to the RDU Operations Manager when he came on duty.I am not aware of the nature of the issue at GSO Approach during the course of this event.  I took what actions I thought were necessary and appropriate based on the situationat hand and information available to me.




Synopsis: RDU Approach Controller describes a situation where an aircraft calls him in another facilities airspace.  The Controller attempts to contact the other facility with no answer.  Controller then clears aircraft through the other facility's airspace to another airport and the aircraft lands safely.