Date: 201402
Local time of day: 1201-1800
Location: ZZZ.Airport, US
Light: Daylight
Aircraft: B737-700
Operator: Air Carrier
Operating under: Part 121
Flight plan: IFR
Flight phase: Final Approach
Airspace: Class B ZZZ
ATC / advisory: TRACON ZZZ
Second aircraft: Small Aircraft; Low Wing; 1 Eng; Fixed Gear
Reporter organization: Government
Reporter function: Approach
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Confusion
Anomaly: ATC Issue All Types; Conflict Airborne Conflict; Deviation / Discrepancy - Procedural Published Material / Policy
Detector: Automation Aircraft RA; Person Flight Crew
When detected: In-flight
Result: Air Traffic Control Provided Assistance; Flight Crew Took Evasive Action
Contributing factors: Procedure
Primary problem: Procedure

Narrative: I cleared Aircraft X for a visual approach to the left runway at ZZZ. I thought I had transferred communications to ZZZ Tower; but had not. Aircraft X advised they were responding to an RA as they turned final. I observed a partial data block approximately 1 mile west of Aircraft X. I selected the target and discovered it was a 'traffic watch' aircraft under control of ZZZ Local North. The altitude indicated 200 FT below aircraft X. I acknowledged Aircraft X and transferred communications to ZZZ Tower. The targets did NOT merge and QC data later reported closest (distance) as .86 NM.This type of situation was a frequent recurring problem for ZZZ arrivals 2.5 to 3 years ago. At that time; TRACON NATCA requested a work group to meet with ZZZ to discuss this issue and other Letter of Agreement changes. We held multiple meetings in 2012 and had a finalized LOA ready to sign. This issue however; was not one that we felt was resolved. At the time; TRACON NATCA did not believe it was a good idea for another facility to own airspace underneath a final that TRACON controlled. ZZZ did not want to relinquish the airspace and a compromise resolution was pursued. ZZZ agreed to meet with the 'traffic watch' operator and believed they would be willing to move their route further west so that ZZZ arrivals would pass safely above them at all times. TRACON agreed to meet with ZZZ1 Tower who owned the airspace that would be required to move the 'traffic watch' route. ZZZ1 acknowledged that they did not need or use the airspace; but did not want to give it up because they felt it would place traffic watch aircraft close to the third busiest airport in the world. With ZZZ1's unwillingness to assist; ZZZ advised that they would just hold the traffic watch aircraft west of the final until it was clear. This was not confirmed in the LOA; and I don't believe ZZZ briefed their personnel of this agreement. The LOA that contained many other safety fixes still has still not been signed. It sits in the TRACON Procedures Office and on the desk of a Staff Specialist at ZZZ. I believe the best resolution to this would be for TRACON to acquire the airspace currently being worked by ZZZ TRACAB and some of the airspace currently owned by ZZZ1 Tower.




Synopsis: Reporter states an Air Carrier on a visual approach responded to an RA due to a small aircraft in close proximity. Reporter also states LOA needs to be changed to encompass who owns what airspace in close proximity of airport and final approach course.