Date: 201702
Local time of day: 0601-1200
Location: TOA.Tower, CA
Flight conditions: VMC
Light: Daylight
Aircraft: Small Aircraft; High Wing; 1 Eng; Fixed Gear
Operator: Personal
Operating under: Part 91
Flight plan: VFR
Mission: Personal
Flight phase: Landing
ATC / advisory: Tower TOA
Reporter organization: Government
Reporter function: Supervisor / CIC
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Situational Awareness
Anomaly: ATC Issue All Types; Deviation / Discrepancy - Procedural Published Material / Policy; Deviation / Discrepancy - Procedural Clearance; Ground Excursion Runway
Detector: Person Air Traffic Control
When detected: In-flight
Result: Air Traffic Control Issued Advisory / Alert; Air Traffic Control Issued New Clearance
Contributing factors: Human Factors; Procedure; Airport
Primary problem: Human Factors

Narrative: I was working the Controller in Charge (CIC) position because the supervisor was doing a skill check for a trainee on the local control position.  Aircraft X called Ground Control (GC) for taxi and the pilot requested to takeoff on taxiway Charlie. GC informed the pilot that was not allowed at TOA and the pilot then requested to takeoff Runway 11R even though the wind was favoring Runway 29L/R and Runway 29L/R was in use at the time. Due to the low volume of traffic GC approved the request and taxied the aircraft to runway 11R for departure. Aircraft X was cleared for takeoff and once airborne wanted to land Runway 29L. The local controller cleared the pilot to land on Runway 29L. The pilot read it back correctly and then we observed the pilot land in the grass just north of the runway. He came to a complete stop and then a transmission was blocked and the pilot took off in the grass without any communication from Local Control (LC). At this point LC issued the aircraft left traffic for Runway 29L and cleared the pilot to land again on Runway 29L. As the CIC; I instructed my supervisor and trainee on LC to emphasize Runway 29L pavement but nothing further was said. The aircraft landed in the grass again and at that point the supervisor told the aircraft that he needed to exit the runway to the left and call the tower. The pilot just said ok and followed instructions. Aircraft X called GC and GC issued the pilot instructions to taxi back to parking and asked him if he was ready to copy the phone number for the tower. The pilot said he was too busy taxiing and that he would find the number himself. The supervisor told the ground controller not to issue the brasher. At that point I had another controller get the supervisor and trainee off position so the supervisor could relieve me because I was at 2 hours on position. The pilot called and spoke with the supervisor and was very rude and told the supervisor that he could land wherever he wanted and that we were the only airport that would not allow him to land in the grass. The pilot said that in the past the tower had made a big deal of him doing this so that is why he just did it without asking.Even though I was working the controller in charge position; the supervisor was also in the tower cab. He took control of the situations and made decisions I would not have made.  Therefore I feel responsible for certain decisions that were made without me even though I disagreed with them.




Synopsis: TOA Tower Controller observed an aircraft intentionally land on the grass field next to the assigned runway twice.