Date: 201306
Local time of day: 1201-1800
Location: IAD.Airport, VA
Aircraft: A320
Operator: Air Carrier
Operating under: Part 121
Flight plan: IFR
Mission: Passenger
Flight phase: Final Approach
Airspace: Class B IAD
ATC / advisory: Tower IAD
Reporter organization: Government
Reporter function: Local
Reporter qualification: Air Traffic Control Fully Certified
Human factors: Workload; Situational Awareness; Communication Breakdown
Anomaly: ATC Issue All Types; Deviation / Discrepancy - Procedural Published Material / Policy; Deviation / Discrepancy - Procedural Landing Without Clearance; Deviation / Discrepancy - Procedural Clearance
Detector: Person Air Traffic Control
Result: General None Reported / Taken
Contributing factors: Human Factors; Procedure; Environment - Non Weather Related
Primary problem: Procedure

Narrative: I was working all the locals combined up at Local Control 3 due to a closure on 19L. It was the arrival bank. I had a Local Assist. PCT was landing 19C and 19R. Because of construction on the high speed exits of 19C/1C PCT can't run reduced separation on 19C. So PCT has been told they need to give IAD at least 3 miles between arrivals to 19C. The arrival bank was just starting to get busy. PCT had just started landing 19R. I noticed that the PCT Final Controller had about 8 arrivals they were working and the Final was not split. I had an arrival (RJ) to 19C with an A320 close behind and overtaking the RJ. I was talking to the RJ; but not the A320. Both aircraft were in my airspace. The FLM heard me comment to the Local Control Assist that PCT needed to quickly slow and switch the A320 or that 'this is not going to work.' The RJ needed to go down to the 3rd high speed to exit due to the construction. The FLM said he would call PCT and advise them they needed to comply with the restriction on 19C final. I advised the FLM that I was still not talking to the A320. At that time the RJ was 2 mile final and the A320 was maybe 4 mile final. I noticed that the A320 was starting to 'S turn' on final. I then noticed that I had 2 arrivals to Runway 19R. I was talking to the 1st 19R arrival but not the 2nd. I kept trying to reach the A320 on the frequency to no avail. The Local Assist Controller called the Final Controller and told them to switch the A320. The RJ landed 19C and I advised them to hurry down the runway as I was not talking to the A320. The Local Assist told Final to clear the A320 to land 19C. At that time I believe that the RJ was still on the runway. The RJ then cleared 19C just prior to the A320 landing 19C. I never cleared the A320 to land 19C. The A320 cleared 19C and called me on Local. I switched the A320 to Ground. I advised the FLM that the A320 landed without me giving him a clearance. I told the FLM he needed to call PCT and make sure they cleared the A320 to land 19C. The FLM called PCT and PCT advised that they did not clear the A320 to land 19C. As all of this was going on; I had the same thing happen on 19R 2 minutes later with another air carrier not talking to the Tower until 1 mile final with a preceding arrival still on the runway. If the above 2 incidents were not enough; later I was working Local Control 1 during a departure bank. We were north departing 1C and 30; landing 1C/1L; 1/R was closed. An A380 landed 1L and was holding short of 1C at W3. I had numerous aircraft awaiting departure 1C and a 1C with the A380 and depart 1C prior to the next 1C arrival. I knew I would slow up the 1C arrival or 'S' turn him if I had to. I reached out to the aircraft on 4 mile final 1C to advise them to slow. They were not on the frequency. I advised the FLM that I was not talking to the aircraft on final 1C. I advised the A380 to cross 1C with no delay. I told the A380 that traffic on the runway was waiting for them and that there was traffic on final I was not talking to. The view out the window was getting worse. I started to worry about if it was going to work and what I was going to do if the arrival never checked in. The A380 cleared 1C and now I am panicking. I am still not talking to the aircraft 1 1/2 mile final 1C. I have an aircraft LUAW on 1C and if they are not cleared for an immediate takeoff I will lose separation. But if I clear him for takeoff and the 1C arrival goes around 1C because he does not have a landing clearance; what is the go-around going to do? Fly runway heading and my departure will climb into him from underneath him? I cleared the 1C LUAW aircraft for immediate takeoff and advised him I was not talking to the 1C arrival. Finally the 1C arrival checked in short final. I cleared him to land and just had legal separation. Why does PCT put me in that situation on a DAILY basis? I have to base what I am doing with aircraft on the assumption they are going to switch people to the Tower. Thisissue of PCT not switching aircraft to the Tower is beyond unacceptable. If it is because they are to busy with the Final all combined up then they need to split the position sooner. PCT needs to comply with the restriction they are given on Final. PCT needs to split the Final position sooner. A new LOA needs to be developed that requires arrivals to contact the Tower prior to entering the Tower airspace.




Synopsis: IAD Controller described an on going unsafe condition chronicling several late frequency changes from PCT making landing/takeoff decision very difficult.