Date: 201605
Local time of day: 1201-1800
Location: ZDC.ARTCC, VA
Aircraft: Regional Jet 900 (CRJ900)
Operator: Air Carrier
Operating under: Part 121
Flight plan: IFR
Mission: Passenger
Flight phase: Cruise
Airspace: Class E ZDC
ATC / advisory: Center ZDC
Second aircraft: EMB ERJ 145 ER/LR
Reporter organization: Government
Reporter function: Enroute
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Workload; Situational Awareness; Communication Breakdown; Confusion
Anomaly: ATC Issue All Types; Conflict Airborne Conflict; Deviation / Discrepancy - Procedural Published Material / Policy; Deviation / Discrepancy - Procedural Clearance
Detector: Person Air Traffic Control
When detected: In-flight
Result: Air Traffic Control Issued New Clearance; Air Traffic Control Separated Traffic; Flight Crew FLC complied w / Automation / Advisory
Contributing factors: Procedure; Staffing; Human Factors
Primary problem: Staffing

Narrative: I was working only one sector. I was informed by the Front Line Manager (FLM) that someone had to get out to be Controller in Charge (CIC) for the area while he went down to the front desk for a meeting with the Operations Manager. I believe that the FLM informed the Sector 11 controller that Sector 17 could be combined with my sector. Sector 11; then shouted over asking if I was ready to combine their sector. At this point; I was not aware that was the plan; and said hold on; let me get set up. Then I said I was ready. Sector 11 tried to call twice to give me the sector briefing; but was interrupted several times by the traffic they were working. After the entry; I realized that sector 11 had about 6 airplanes; and the departure list was over 30 at this point. I had about 4 or 5 aircraft in my sector so my volume was immediately doubled. I discovered there were aircraft on my frequency that I did not know about because they weren't displayed to me; and were not in sector 11 airspace yet for the auto acquisition. I then had to figure that out with some coordination in the area. Over the next 15-20 Minutes in my airspace I had several departures; 6-8 arrivals that I had to get down. I was quick looking the flow control display to see what I had to do with them. I also had 3 or 4 departures headed southbound; and several more arrivals that I had to get down. Several times; I asked why these sectors were combined; but I did not have time to make sure anyone heard me. It all happened so fast; I didn't realize I needed an Assist position until it was too late. These two sectors were busy combined; and aircraft blocking each other for about 20 minutes. I did not realize that one of the departures had already checked in even though I rogered him. He checked in when I was busy doing other duties in my sector. Aircraft X was the second arrival level at 13;000 feet I thought had already switched to the next sector. Aircraft X was head on with Aircraft Y. Aircraft Y was level at 12;000 north of TAPPA because I did not climb him; since I thought I was not talking to him. I assumed TRACON was still talking to him and calling traffic with Aircraft X. When the aircraft were about 10 miles opposite direction; the adjacent sector called me and asked for control. Since I only own down to 13;000 feet I said approved; assuming he was going to turn him. Next thing I see Aircraft X descending instead of turning; then Aircraft Y calls and says he is descending responding for an RA. I said roger; then shouted on the landline that Aircraft Y was descending for an RA. I told Controller in Charge about the RA; and the Front Line Manager was the one that heard me since he was near our desk as well; and he came over and took the information. It has been a continuing problem at ZDC that sectors are being combined when they shouldn't be for various reasons. I do not [know] why these sectors were combined; when it created a half a page of arrival flight plans and over 30 in the departure list. It's usually too busy to combine it up anywhere because of the nature of complexity. It seemed like there was enough staffing; there were CPC's doing extra training. I had also heard that this morning just before I got there that Sector 17 was still combined with other sectors was so busy the controller was not able to recognize that an aircraft flashing at TRACON was auto handing off incorrectly causing an airspace violation with TRACON. Sector 11 was split out too late; then another sector was needlessly combined with sector 17.And then after my incident; I requested to be off the sector. I informed the Controller In Charge that Sectors still had almost 30 departures; and he had someone de-combine sectors again. The sectors were only combined for about 30 minutes-during the push for each sector!! This makes no sense; and clearly shows the lack of safety culture at ZDC. That being said; I am well aware what I could have done better to avoid this all together; and had I been at just one sector working this situation; it would be a non-issue. I would have time to realize that I was talking to Aircraft Y and climbed him like I am supposed to do on departures. Even though our new procedures removed the arrival and departure built in spacing and now they are head on. This only works if both controllers do what they are supposed to; and even then we have aircraft climbing and descending in the face of each other.If this was me just working Sector 11 I also would have had more time to think about the situation; and had I not climbed the departure I would have called approach and told them sorry I forgot to climb him-what do you want me to now? Or when the approach controller called and asked for control of Aircraft X; I would have said 'oh sorry; I didn't climb Aircraft Y; he's still level at 12;000 feet; what do you want me to do? This could have been a reminder and helper aide for the TRACON controller as well. I also wish I realized it sooner; and called traffic to the aircraft I was talking to. I could have done more; as I believe I am a competent controller; however; I feel like I was set up for failure by the sectors erroneously being combined; when it made no sense!![I suggest] figure out how to combine and de-combine sectors effectively and efficiently so that there is a better safety culture at ZDC. We should all be in this together; not leaving the controller to fend for themselves with busy traffic at combined sectors; usually because of staffing; no overtime; no extra radar assists and other issues. And the answer is not just leave every sector open regardless; and don't open them and leave them open because a Front Line Manager isn't paying attention. We ALL have to be educated about the traffic flows and how the sectors operate. Sector 11 can be a slow sector a lot of the time; but when it has 5 aircraft; it can be complex and busy. The same for other sectors at times. It might not seem like a lot; but combined with frequency issues blocking each other; complexity goes up two fold. I would like to see all Front Line managers be certified on all sectors in the area; so that they understand.Maybe we can also track the busy flows and times for each sector; more than just watching and waiting to see a sector goes 'red' at the desk. Let's be proactive; and do it together. I would like to see controllers protect themselves better and ask for assists more; and ask for sectors to be split when needed; and not always worried about their next break. Again-we are in this together; and it's the whole culture that needs adjustment; it doesn't happen overnight. And finally and probably obviously-we should not continue to work more and more volume with less and less controllers; we think we are super controllers; and we are NOT. We need proper staffing to ensure a proper safety culture at ZDC. If we continue down this path; controllers will automatically think they can do it all; and the more this happens; the more likely an incident or worse; a tragic event will occur. And when it does-somehow it's 100% the controller's fault? Nine times out of ten there are at least several contributing factors to an incident; we've all seen the Swiss cheese poster on the wall. But I guess it's just for decoration; because no one here takes it seriously enough to make a change. Even a small change in the right direction is better than the 'blame game' and a shrug of the shoulders-'oh well-I can't do anything'. I for one have more integrity and work ethic to let this happen. I challenge this building; this operation; to come together and figure this out; as one. I am willing to contribute in any way I can to make this happen.




Synopsis: A ZDC Controller was assigned to work two sectors combined. The Controller felt there was too much traffic and too many complex situations for combining sectors. The Controller allowed another Controller to descend an aircraft in his airspace with opposite direction conflicting traffic.