Date: 201411
Local time of day: 1801-2400
Location: VNY.Airport, CA
Flight conditions: IMC
Weather elements / visibility: Cloudy
Light: Daylight
Aircraft: Skyhawk 172/Cutlass 172
Flight plan: VFR
Flight phase: Final Approach
Airspace: Class D VNY
ATC / advisory: Tower VNY
Second aircraft: PC-12
Reporter organization: Government
Reporter function: Local; Instructor
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Distraction; Situational Awareness; Communication Breakdown; Confusion; Training / Qualification
Anomaly: ATC Issue All Types; Airspace Violation All Types; Conflict Airborne Conflict
Detector: Person Air Traffic Control
When detected: In-flight
Result: Air Traffic Control Provided Assistance; Air Traffic Control Separated Traffic; Flight Crew Returned To Clearance
Contributing factors: Human Factors; Procedure; Airspace Structure; Aircraft
Primary problem: Procedure

Narrative: IFR day with bad weather; Aircraft X unable to maintain VFR flies into VNY airspace.  Two IFR arrival aircraft have to execute missed approach and three departures are delayed. Aircraft X lands VNY.  I was training a new developmental on LC1 and LC3 (helicopters). Weather was IFR with low variable ceilings and visibility; due to rain.  Aircraft Y was on the ILS to Runway 16R about a 6 mile final.  On the radar display we noticed an aircraft tagged violator about 2 miles to the NE of airport heading SSW.  We were attempting to get two departures out prior to Aircraft Y but with the violator entering our airspace we held the departures. The flight data controller discovered the violator was talking to BUR tower and he had them switch them to our frequency.  The violator (Aircraft X) then came on frequency east of VNY southbound about 500 AGL attempting to avoid clouds.  My developmental told Aircraft X to 'Make a 180' and fly north bound over the 405 freeway which is a left downwind for runways 16.  This wouldn't have been my plan so I took over at this time. I told Aircraft Y (2 mile final) to execute a missed approach and had to have him maintain 1;700 MSL for BUR traffic just west of VNY 2;900 descending eastbound into BUR. Once Aircraft Y and Aircraft X were abeam each other I cleared Aircraft X to land runway 16 Right.  I did not issue weather.  Aircraft Z was now on 4 mile final and I had them execute missed approach.  I was hoping my LA1 would coordinate a non-standard right turn out for Aircraft Z because it was obvious there would be an overtake with the aircraft ahead (Aircraft Y). At this time there was a lot of confusion in cab over this event and my low time LA1 didn't have a clue.  As Aircraft Y passed midfield I could see the aircraft visually going in and out of clouds and was starting to turn left which appeared early to me.  I was concerned about Aircraft Y turning into the BUR arrival so I had the aircraft fly runway heading for about a mile then I told them to execute missed approach.  Now I noticed Aircraft Z out climbing and 70 knots faster than Aircraft Y (about 4 miles in trail).  I told Aircraft Z he was overtaking traffic ahead and to keep it slow and told them to contact SOCAL.  I would also like to mention that normally when VNY goes IFR; all 3 locals are combined to LC1 because LC1 controls all inbounds and outbounds.  Having LC2 or LC3 open only adds extra coordination and they (LC2 / LC3) cannot allow any arrivals or departures into their own airspace.  The FLM who was working LC2 supposedly needed before the end of month; time on position. The VNY missed approach is worthless.  Having a missed approach that requires an aircraft to descend and turn into another airports arrivals is dangerous.  When IFR; all Locals should be worked by one controller; which is normal. This way you don't have to coordinate airspace and runways crossings.




Synopsis: VNY Local Instructor reports of a VFR airspace violator that enters VNY airspace and causes havoc while attempting to land in IFR conditions. Two aircraft are sent around and three departures are delayed.