Date: 201302
Local time of day: 0001-0600
Location: ZZZ.Airport, US
Aircraft: Chancellor 414A / C414
Flight plan: IFR
Flight phase: Final Approach
Airspace: Class C ZZZ
ATC / advisory: Tower ZZZ
Reporter organization: Government
Reporter function: Local
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Communication Breakdown; Confusion; Situational Awareness
Second reporter function: Approach; Departure
Anomaly: Deviation / Discrepancy - Procedural Clearance; Ground Incursion Taxiway; Inflight Event / Encounter Fuel Issue
Detector: Person Air Traffic Control
When detected: In-flight
Result: Flight Crew Executed Go Around / Missed Approach; General Declared Emergency
Contributing factors: Human Factors
Primary problem: Human Factors

Narrative: Aircraft X was inbound from the south wanting to land at ZZZ. While on the line with Approach CIC about an ILS issue; I was told Aircraft X had minimum fuel and wanted to land at the airport soon. I heard in the background at Approach state that ZZZ was IFR. I told the CIC that we were VFR (weather had been in the area all night and we were in and out of VFR) to let Aircraft X come in on the right base to Runways 11. He said he would call me back. Later I was told possible emergency. I rang an Alert 1. The CIC then handed off Aircraft X to me on a right base to Runway 11R. He was tagged IFR and on a 1-1/4 base slightly high. It took me two calls to contact him. I cleared him to land Runway 11R. He then continued on a base type turn completely missing the approach end of the runway. He was now flying away from the airport on an approximate 030 heading descending towards what appeared to be a main city vehicle intersection just outside the airport. At this time due to the severe language barrier; and his rapid descent towards terrain; I never stated anything confirming he was VFR in the pattern. I made the decision to climb him and vector him to downwinds and bases. Weather was not affecting the pilot seeing the airport. The pilot overall seemed very disorientated and 'shaken up.' After 20 minutes of go around's and struggling to land the aircraft; Aircraft X finally landed on parallel Taxiway Alpha from the runway direction. I have been thinking about this and there was nothing I could have done different in this situation. The pilot could not properly fly the aircraft. There was not strong wind; the runway lights were all the way up. I issued progressive in the most layman way possible. He was minimum fuel with weather closing in. He had to land immediately.


Second narrative: Aircraft X checked on with the Departure Controller. He had an IFR inbound code; but wasn't on it. I was relieved of my CIC duties and briefed the relieving Controller on what was going on with this aircraft; I then called TRACON to find out if he had canceled IFR but I could not get a hold of them. I asked the Departure Controller to have the pilot verify that he was VFR; she asked him if he was IFR and he said 'no; we are VMC.' The Controller then issued an IFR clearance to Aircraft X to ZZZ. The aircraft took headings and altitudes like normal until he was turned to the downwind and toward and area of light to moderate precipitation. The pilot began sounding very nervous and unsure; he appeared to resume his own navigation and altitudes and at times would read back correctly and do something completely different. Although I had been relieved from CIC I remained in the room to assist with dealing with the emergency. There was coordination with ZZZ Tower regarding this aircraft. I believe the pilot canceled his IFR flight plan in ZZZZ and TRACON failed to put it in the system. Then although Aircraft X was cleared to ZZZ again I don't think he realized that he was IFR and was attempting to avoid clouds. I also think the aircraft had encountered icing at some point and either didn't realize or just didn't report it. After the aircraft maneuvered mainly on his own navigation through ZZZ Tower's airspace for 5-10 minutes while the Tower Controller repeatedly pointed out the runways and attempted turning the aircraft; randomly he instructed all airport vehicles to exit the Taxiway A. About 2 minutes later; Aircraft X landed on Taxiway A very fast and rolled far. A Technician came up to the Tower Cab a while later to thank the Controller for saving his life and shook his hand. He explained that he exited the taxiway as the Controller instructed and in doing so saved his life. In later coordination with flight service; I was informed that Aircraft X had a VFR flight following code in the NAS. It should be noted that multiple aircraft commended the Controller on his performance dealing with the situation. Although the pilot of Aircraft X checked on with the current ATIS maybe with the possibility of the aircraft being VFR and then receiving an IFR clearance it could have been reiterated to him that the field was IFR.


Synopsis: Tower Controller described a series of go-arounds made by a very confused and disorientated pilot experiencing low fuel. The aircraft eventually landed on a taxiway after multiple attempts.