[Senate Hearing 119-318]
[From the U.S. Government Publishing Office]
S. Hrg. 119-318
FLYING ON EMPTY: HOW SHUTDOWNS THREATEN
AIR SAFETY, TRAVEL, AND THE ECONOMY
=======================================================================
HEARING
before the
SUBCOMMITTEE ON AVIATION, SPACE, AND INNOVATION
of the
COMMITTEE ON COMMERCE,
SCIENCE, AND TRANSPORTATION
UNITED STATES SENATE
ONE HUNDRED NINETEENTH CONGRESS
FIRST SESSION
__________
NOVEMBER 19, 2025
__________
Printed for the use of the Committee on Commerce, Science, and
Transportation
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Available online: http://www.govinfo.gov
______
U.S. GOVERNMENT PUBLISHING OFFICE
62-988 PDF WASHINGTON : 2026
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
ONE HUNDRED NINETEENTH CONGRESS
FIRST SESSION
TED CRUZ, Texas, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington,
ROGER WICKER, Mississippi Ranking
DEB FISCHER, Nebraska AMY KLOBUCHAR, Minnesota
JERRY MORAN, Kansas BRIAN SCHATZ, Hawaii
DAN SULLIVAN, Alaska EDWARD MARKEY, Massachusetts
MARSHA BLACKBURN, Tennessee GARY PETERS, Michigan
TODD YOUNG, Indiana TAMMY BALDWIN, Wisconsin
TED BUDD, North Carolina TAMMY DUCKWORTH, Illinois
ERIC SCHMITT, Missouri JACKY ROSEN, Nevada
JOHN CURTIS, Utah BEN RAY LUJAN, New Mexico
BERNIE MORENO, Ohio JOHN HICKENLOOPER, Colorado
TIM SHEEHY, Montana JOHN FETTERMAN, Pennsylvania
SHELLEY MOORE CAPITO, West Virginia ANDY KIM, New Jersey
CYNTHIA LUMMIS, Wyoming LISA BLUNT ROCHESTER, Delaware
Brad Grantz, Republican Staff Director
Nicole Christus, Republican Deputy Staff Director
Lila Harper Helms, Staff Director
Melissa Porter, Deputy Staff Director
------
SUBCOMMITTEE ON AVIATION, SPACE, AND INNOVATION
JERRY MORAN, Kansas, Chairman TAMMY DUCKWORTH, Illinois, Ranking
JOHN THUNE, South Dakota JACKY ROSEN, Nevada
TED BUDD, North Carolina JOHN HICKENLOOPER, Colorado
ERIC SCHMITT, Missouri JOHN FETTERMAN, Pennsylvania
TIM SHEEHY, Montana ANDY KIM, New Jersey
SHELLEY MOORE CAPITO, West Virginia
C O N T E N T S
----------
Page
Hearing held on November 19, 2025................................ 1
Statement of Senator Moran....................................... 1
Statement from the Modern Skies Coalition.................... 67
Prepared statement from Ed Bolen, President and CEO, National
Business Aviation Association.............................. 69
Letter dated November 19, 2025 to Hon. Ted Cruz, Hon. Maria
Cantwell, Hon. Jerry Moran and Hon. Tammy Duckworth from
Jeff Shockey, Executive Vice President, Government
Operations, Global Public Policy & Corporate Strategy, The
Boeing Company............................................. 71
Letter dated November 18, 2025 to Hon. Jerry Moran and Hon.
Tammy Duckworth from Zane Kerby, President and CEO,
American Society of Travel Advisors........................ 72
Statement of Senator Duckworth................................... 2
Statement from April Barrett, President, Service Employees
International Union........................................ 45
Letter dated September 24, 2025 to Hon. Jerry Moran, Hon.
Roger Marshall, Hon. Tracey Mann, Hon. Derek Schmidt, Hon.
Sharice Davids, and Hon. Ron Estes from Kansas Healthcare
Providers.................................................. 46
Urban Institute and Commonwealth Fund Health Policy Brief
dated September 2025 entitled, ``4.8 Million People Will
Lose Coverage in 2026 if Enhanced Premium Tax Credits
Expire'' by Matthew Buettgens, Michael Simpson, Jason
Levitis, Fernando Hernandez-Lepe, and Jessica Banthin...... 49
Statement of Senator Kim......................................... 28
Statement of Senator Capito...................................... 30
Statement of Senator Sheehy...................................... 33
Statement of Senator Cantwell.................................... 34
Witnesses
Nick Daniels, President, National Air Traffic Controllers
Association, AFL-CIO........................................... 4
Prepared statement........................................... 6
Governor Christopher T. Sununu, President and Chief Executive
Officer (CEO), Airlines for America............................ 10
Prepared statement........................................... 12
James A. Viola, President and Chief Executive Officer, General
Aviation Manufacturers Association............................. 17
Prepared statement........................................... 18
Eileen Spickler, Advocate........................................ 23
Prepared statement........................................... 24
Appendix
Response to written questions submitted by Hon. Jacky Rosen to:
Nick Daniels................................................. 75
Govenor Christopher T. Sununu................................ 76
James A. Viola............................................... 80
FLYING ON EMPTY: HOW SHUTDOWNS THREATEN
AIR SAFETY, TRAVEL, AND THE ECONOMY
----------
WEDNESDAY, NOVEMBER 19, 2025
U.S. Senate,
Subcommittee on Aviation, Space, and Innovation,
Committee on Commerce, Science, and Transportation,
Washington, DC.
The Subcommittee met, pursuant to notice, at 2:36 p.m., in
room SR-253, Russell Senate Office Building, Hon. Jerry Moran,
Chairman of the Subcommittee, presiding.
Present: Senators Moran [presiding], Sheehy, Capito,
Duckworth, Cantwell, and Kim.
OPENING STATEMENT OF HON. JERRY MORAN,
U.S. SENATOR FROM KANSAS
Senator Moran. I'll wait a few minutes to call the meeting
to order, and we're waiting on, particularly, Senator
Duckworth, and there's a vote going on in the House. I've cast
my vote, and I assume that's what she's doing now, but we'll
begin shortly.
[Pause.]
Senator Moran. The Subcommittee on Aviation, Space, and
Innovation will come to order. I'm pleased to be here, and I
thank our witnesses for joining us this afternoon for what I
hope is a valuable discussion and expect to be a valuable
discussion.
We convened this hearing because of the importance of the
aviation and travel industry, a vital component of our Nation's
economy, and trying to find ways to make certain that that
industry is stable, including in difficult times like a
government shutdown. That stability is severely inhibited by
the critical functions that the Federal Aviation
Administration, when they're suspended or when they're
interrupted and when Congress fails to act, the FAA and the
aviation industry suffer. I'm pleased that the cancellations
and delays plaguing our flights, airlines, and airports are
easing. One of the witnesses and I were on a flight that was
delayed but only for mechanical reasons this week, which has
been different than it was previously. Our air traffic
controllers are reporting to work, and other essential
activities at the FAA are back underway.
Thanksgiving, however, is just a few days away, and while
we anticipate the airlines will be fully or nearly fully
recovered, come next week, lingering strain and fatigue on the
system perhaps is to be expected. Roughly 31 million passengers
are expected to fly next week for the holiday, but there may be
lingering impacts on the system because of the shutdown. I look
forward to the former Governor, Governor Sununu, speaking to us
this afternoon, hopefully providing us with a roadmap as to
what Americans flying next week will expect from the airlines.
Last week, the U.S. Travel Association noted that more than $6
billion were lost in travel spending because of the inability
to fly, and we cannot afford them. Sure, the airlines and
others, the people who work in the airports and in aviation,
cannot further afford the instability and chaos. Our recent
inaction in Washington has undoubtedly deterred young people
from pursuing careers as air traffic controllers or other
aviation professionals, a workforce we must prioritize.
I hope that consideration of the Fiscal Year 2026 THUD, the
transportation appropriation bill, will begin in the Senate
this week. That is the plan, and we're working to try to
accomplish that, and will lay a groundwork for Congress to
fully fund the Department of Transportation and the FAA with
the resources it needs. The Senate appropriators passed the
THUD bill in July by a vote of 27 to 1, very bipartisan
demonstration there. Within this bill, we provided the
Department of Transportation nearly $26 billion and the FAA
nearly $20 billion between their operations and facility and
equipment accounts, which fund air traffic control and
modernization activities. This funding is, in part, there to
allow Secretary Duffy and Administrator Bedford to modernize
our national airspace system after decades of insufficient
budget requests that merely sustained an outdated system.
This issue received particular attention by me on January
29 when the tragic circumstances occurred involving a flight
from Wichita, Kansas to DCA occurred. It was a moment that this
Congress, this subcommittee, and the administration all
gathered around the idea of improving the safety of our
airways. We must do our part to enable the FAA and the
Department of Transportation to make certain that Americans
remain the--that America remains the standard for aviation and
air safety.
The sole integrator of the brand new air traffic control
system is set to be announced soon and will fully fund the
Department of Transportation for Fiscal Year 2026 as a
necessary step to modernizing our airspace. We'll hear from
industry about ways to potentially insulate the FAA from future
government shutdowns. I introduced legislation in many
Congresses that allow for the continuation of essential FAA
activities in the event of future shutdowns. By examining the
delays, the cancellations, the staffing triggers, and
certification interruptions, we're laying the groundwork to
better support an industry that is critical to our country.
Again, I thank all of our witnesses for being here and I
look forward to this discussion, and I recognize the Ranking
Member of the Committee, Senator Duckworth.
STATEMENT OF HON. TAMMY DUCKWORTH,
U.S. SENATOR FROM ILLINOIS
Senator Duckworth. Thank you, Mr. Chairman. Mr. Chairman,
today's hearing injects cheap, partisan politics into a
subcommittee that, up until this point, had rightly prided
itself on working in a bipartisan manner, whether you or I
wielded the gavel. Using this subcommittee to mount a partisan
attack on Senate Democrats under the guise of exploring a
question that everyone already knows the answer to--are
shutdowns bad for aviation safety--is an unfortunate departure
from our past practice. Yes, government shutdowns are bad.
Shutdowns are painful for all members of the career civil
service that Donald Trump has gleefully attacked and
traumatized since the first day of his chaotic second term in
office. Shutdowns harm Americans that rely on their government
for critical support and services, like the hungry kids that
Trump refused to feed, despite sitting on a $6 billion SNAP
contingency fund. That's why Democrats voted to prevent a
shutdown and voted repeatedly to reopen the government.
Look, it's good that Senate Republicans finally agree with
us that shutdowns are bad. I only wish there had been
bipartisan agreement that millions of Americans losing
healthcare coverage is also bad. Had Donald Trump and my
Republican colleagues merely agreed with us on that principle,
there would never have been a government shutdown in the first
place, period. The sad irony is that failure to extend middle-
class tax relief will hit red states the most, and the damage
won't be merely disruptive and damaging. It will be
catastrophic for Americans already struggling to get by. If
Republicans fail to cleanly extend the ACA tax credits, the
uninsured rate in Kansas will explode by 32 percent in 2026,
and in Texas, the threat is even worse with the Texas uninsured
rate projected to skyrocket by 39 percent. Thirty-nine percent.
Now, when it comes to championing our chronically
overworked at understaffed ATC workforce, I will take a
backseat to nobody on this committee. I will not be lectured--I
will not be lectured by a senator who professes to love our
controllers only when it's politically convenient, but when
behind closed doors away from cameras, that Cancun-loving
Senator not only failed to advocate for a max hiring
requirement during FAA reauthorization negotiations, he
actually opposed it. Let's make it clear: the guy that you
think loves air traffic controllers opposed max hiring
requirements for air traffic controllers during FAA
reauthorization.
So, if Senate Republicans truly cared about controllers
beyond using them as partisan political pawns, they would've
done what they've done numerous times before when they truly
care about something: change the rules. Yet, not only did
Senate Republicans fail to change the rules or allow a simple
majority to reopen the government, they blocked numerous
Democratic bills from passing that would've paid civil servants
during the shutdown. They even failed to force a vote on
Chairman Cruz's bill to pay controllers during that shutdown.
He had a bill to pay you.
I also don't want to hear any BS about Donald Trump caring
about air traffic controllers. If Trump cared about controllers
being paid, he would've paid them. Does anyone seriously think
that Donald Trump needs congressional permission to raid the
Airport and Airway Trust Fund to keep the FAA operating during
a shutdown? Please. He didn't ask for permission to raid the
DOD R&D accounts to ensure that the military received paychecks
during a shutdown. I'm glad they did, but he paid them because
he wanted to. He didn't pay you because he didn't want to pay
you. When Trump cares about something, like building a
ballroom, building out Argentina, denying SNAP benefits for
low-income Americans, he just does it. If he wanted to pay air
traffic controllers, he would've paid you, consequences, laws,
and norms be damned as far as he's concerned. Trump's failure
to simply cut paychecks for air traffic controllers confirms
what should have already been obvious: Donald Trump doesn't
give a damn about the ATC workforce.
Look, the shutdown is over, but for a half million
Illinoisans, millions of Texans, and over 200,000 Kansans, the
threat of a devastating healthcare crisis looms large. This
includes Americans like our witness here today, Mrs. Eileen
Spickler of Ottawa, Kansas. Eileen's husband, Barry, may be
forced to forego health insurance because they simply can't
afford to lose $1,100 in tax relief that enables them to afford
their monthly premiums. Eileen and Barry are not unique.
They're among the 24 million Americans who are desperate for
Republicans to extend enhanced premium tax credits. This should
be easy. We just need to strike a word or two or simply replace
numbers in two places in the Tax Code. That's it. If Speaker
Johnson had the courage to bring it to a vote, there are at
least 229 votes in the House to pass the bipartisan Premium Tax
Credit Extension Act, a Republican-authored bill that would
cleanly extend the ACA's enhanced premium tax credits.
I truly hope Senate Republicans will see the light and
realize delivering tax relief that makes healthcare affordable
for middle-class Americans can be and indeed should be a
commonsense affordability policy that unites Republicans and
Democrats alike, and let's stop turning this committee into
partisan sham attacks on one another and get down to the real
work of keeping America's flying public safe. I yield back.
Senator Moran. I'd like to introduce our witnesses for
today. Our first witness is Nick Daniels, the President of the
National Air Traffic Control Association. In his role, Mr.
Daniels advocates for the dedicated air traffic controllers who
oversee the--and safeguard our national airspace. Prior to his
role, he served as an air traffic controller and as a former
U.S. Marine. Our second witness is Chris Sununu, the President
and CEO of Airlines for America, which represents our country's
major carriers and cargo companies. Mr. Sununu is the former
Governor of New Hampshire and the longest-serving Republican
Governor in nearly a century. I believe it's your first
appearance before a committee, and we welcome you. Our third
witness, James Viola, and I believe this is a maiden appearance
for you, Mr. Viola, is President and CEO of the General
Aviation Manufacturers Association. In his role, Mr. Viola
represents the interests of over 140 airframe, avionic engine,
and component manufacturers for the aviation industry. And our
final witness is Mrs. Eileen Spickler, a resident of Ottawa,
Kansas. Mrs. Spickler, a special welcome to you.
I now recognize Mr. Daniels for his opening statement.
STATEMENT OF NICK DANIELS, PRESIDENT, NATIONAL AIR TRAFFIC
CONTROLLERS ASSOCIATION, AFL-CIO
Mr. Daniels. Thank you very much. Chairman Moran, Ranking
Member Duckworth, other members of the Subcommittee, thank you
for the opportunity to testify before you today on the effects
of the 43-day Federal Government shutdown, the longest in
American history. Every day that the shutdown continued, the
margins of safety that we and the flying public depend on were
reduced in our Nation's airspace system.
I am proud to have earned the title of air traffic
controller with 22 years of experience at both an FAA tower and
an en route facility, as well as 5 years as an air traffic
controller in the United States Marine Corps. Unfortunately,
before the shutdown ended, air traffic controllers and other
aviation safety professionals that NACA represents received one
partial paycheck and two zero-dollar paychecks, despite working
full time and, in many cases, mandatory overtime: seven weeks
of work with no certainty of when we would be paid again. That
said, controllers showed up and stepped up for the American
flying public and for each other. No American should ever be
forced to work without a paycheck, and failing to pay the
workforce that keeps our skies safe is not acceptable and not
sustainable.
Throughout the shutdown, air traffic controllers ensured
that the safety of nearly 3 million passengers a day on more
than 45,000 flights a day arrived at their destinations, and
controllers did this while operating with an overall shortage
of 3,800 fully certified controllers that the system requires.
Now, the unfortunate reality is this is not new. NACA has been
advocating for increased controller staffing for more than a
decade. NACA thanks this committee for its work on--to address
the shortage in the FAA Reauthorization Act of 2024. It not
only updated the FAA's controller staffing targets, it also
requires the FAA to hire the maximum number of controller
trainees for five years and deploy tower simulator systems at
every FAA tower to improve training and reduce training times.
This committee must continue its oversight role to ensure that
the requirements it established come to fruition, but the
effects of the shutdown had real consequences for hardworking,
patriotic American workers.
Two weeks ago, we delivered over 1,600 handwritten letters
from air traffic controllers to congressional offices
expressing the hardships that they were experiencing. We heard
from an air traffic controller that is training at our new
facility. Her husband is a 20-year, five-time combat veteran
who had 45 documented explosions and seven direct hits. He
returned from Iraq and Afghanistan with a 100-percent permanent
and total service-related disability. Consequently, she is the
single source of income for her family. Their son just
graduated an aviation school, but they couldn't afford to
attend the graduation. In addition to training at her new
facility, she sold plasma twice, started driving for DoorDash,
and toward the end of the shutdown, she had to take a part-time
job on her regularly scheduled days off. We heard from recent
graduates of the Oklahoma City Air Traffic Controller Training
in Oklahoma where they were resigning because they could not
begin this challenging new career without a paycheck. We've
heard from air traffic controllers who were struggling to find
ways to pay for gas to get to and from work, while others
struggled to pay for childcare so they could go to work.
Air traffic control is one of the most mentally demanding
and high-consequence professions in the world. Every moment we
are at work, it requires everything we have--focus, judgment,
decisiveness, perfect decisionmaking--thousands of times a
shift, and what hangs in the balance is our responsibility to
safety in order to prevent tragedy. Air traffic controllers
must show up day in and day out, fully prepared to handle the
stress, pressure, and the weight of our responsibility to the
American flying public and their safety. And this is why NACA
does support Chairman Moran's Aviation Funding Stability Act
that would ensure the FAA would be able to pay employees and
perform all of its functions in the event of a future shutdown.
We also support the passage of any other legislation that would
ensure this Nation's air traffic controllers and other aviation
safety professionals are paid during any future shutdown,
including Chairman Cruz's ``Keep America Flying Act of 2026''.
Air traffic controllers and other aviation safety
professionals are this country's patriots, dedicated to the
safety of the flying public, and they should never be subjected
to these challenges that distract them from their critical
safety responsibilities. They are real people, they are real
Americans, and they were facing very real problems. They
deserve better, and I'll be happy to take your questions.
[The prepared statement of Mr. Daniels follows:]
Prepared Statement of Nick Daniels, President, National Air Traffic
Controllers Association, AFL-CIO
Thank you for the opportunity to testify on behalf of the National
Air Traffic Controllers Association, AFL-CIO (NATCA) at today's hearing
titled ``Flying on Empty: How Shutdowns Threaten Air Safety, Travel,
and the Economy.''
NATCA is the exclusive representative for nearly 20,000 dedicated
American workers, including the Federal Aviation Administration's (FAA)
air traffic controllers, traffic management coordinators and
specialists, flight service station air traffic controllers, staff
support specialists, engineers and architects, and other aviation
safety professionals, as well as Department of Defense (DOD) and
Federal Contract Tower (FCT) air traffic controllers.
NATCA takes great pride in its role as an aviation safety
organization that stands shoulder-to-shoulder with government and
industry stakeholders to ensure that the National Airspace System (NAS)
remains the safest and most efficient in the world. The air traffic
controllers and other aviation safety professionals NATCA represents
are vital to the U.S. economy, ensuring the safe and efficient movement
of passengers and cargo within the National Airspace System (NAS).
The NAS moves approximately 45,000 flights, 3 million passengers,
and more than 59,000 tons of cargo every day across more than 29
million square miles of airspace. Although it remains the safest, most
efficient, and most complex aviation system in the world, NATCA always
strives to bolster safety, mitigate risk, and improve efficiency.
NATCA grieves for the families, friends, and communities that have
been devastated by the aviation accident on January 29 at Washington
National Airport (DCA), as well as the UPS cargo plane that crashed
just after takeoff on November 4 from Louisville Muhammad Ali
International Airport (SDF). Although NATCA does not comment on ongoing
National Transportation Safety Board (NTSB) investigations, these
tragedies highlight the critical and high-consequence nature of air
travel. NATCA remains steadfast in our commitment to work with all
Federal agencies investigating these accidents to ensure we can
identify the root causes.
NATCA's testimony today will focus on (1) the negative effects of
government shutdowns, (2) the persistent challenges with controller
staffing and funding for modernization programs that predate the most
recent shutdown, and (3) the legislative solutions that would help
eliminate future shutdown risks for the NAS and its frontline
workforce.
I. Negative Effects of Government Shutdowns
NATCA shares in this Committee's serious concerns about the risks
inherent in a government shutdown and the compounding negative effects
a shutdown has on aviation safety and the U.S. economy. Government
shutdowns--of any length--are also incredibly stressful and distracting
for the nearly 20,000 air traffic controllers and other aviation safety
professionals NATCA represents, the vast majority of whom work without
pay during a shutdown. This is not acceptable and not sustainable.
Nevertheless, during the recent 43-day shutdown, controllers
continued to show up and step up for the American flying public and
each other, deftly performing their safety-critical functions at the
highest level despite operating 3,800 fully certified controllers short
of the Federal Aviation Administration's (FAA) staffing target.
Although NATCA is thankful that Congress reached an agreement last
week to end the shutdown, the current continuing resolution (CR)
funding the Department of Transportation and other departments and
agencies expires on January 31, 2026. This means we could be facing
another government shutdown less than three months since controllers
and other excepted aviation safety professionals were required to work
full time without pay, including mandatory overtime in many cases. It
would be incredibly unfair to ask these hard-working, patriotic
American air traffic controllers and their families to prepare for or
endure another protracted shutdown. We cannot continue to ask air
traffic controllers and their families to bear the burden of policy
disagreements in Congress.
A. Shutdowns Historically Harm Controller Staffing and Delay the
Development, Testing, and Implementation of Critical
Modernization and Safety Programs
Although it is difficult to predict what new challenges may arise
during a shutdown, NATCA is extremely grateful to Department of
Transportation Secretary Sean Duffy for keeping the FAA's controller
hiring and training pipeline open, as well as his commitment to
ensuring critical modernization and safety programs were not negatively
affected during the shutdown.
In fact, for the first time ever, Secretary Duffy directed the FAA
to continue hiring and training controller candidates at the FAA's
Academy in Oklahoma City during the shutdown, thereby ensuring
controller staffing would not be as negatively affected unlike previous
shutdowns. From the beginning, NATCA has also strongly supported
Secretary Duffy's plan to supercharge the hiring of controller
trainees, bringing in the best and brightest controller candidates.
The controller workforce has been understaffed for more than a
decade, resulting in mandatory overtime, including regular 10-hour days
and six-day weeks. Last year, controllers at 40 percent of FAA
facilities worked six days a week at least once per month. Several
facilities require six-day workweeks every week. In addition, we may
not know for months or years the negative effects of shutdowns on
recruitment and retention. The FAA and NATCA are acutely aware of these
thin staffing margins and the compounding effects they have on
controller stress and fatigue.
Similarly, Secretary Duffy directed the FAA to continue supporting
modernization, safety, and infrastructure programs through the
shutdown. Thanks to his leadership, NATCA subject matter experts
continued to participate in testing, development, and deployment
activities. This was critical because any disruption would have
severely hindered Secretary Duffy's critical initiative to modernize
the FAA's physical and technological infrastructure, so that the U.S.
continues to be the gold standard for global aviation. NATCA strongly
supports this initiative, and controllers play a critical role in the
development, testing, training, and implementation of new modernization
and safety programs. We also thank Congress for its downpayment to
modernize the air traffic control system. We look forward to working
with you to secure the remaining funding.
B. This Shutdown Pushed the System and Its Workforce to the Brink
During the 43-day government shutdown, controllers and other
aviation safety professionals received one partial paycheck and then
missed two consecutive full paychecks. Asking these dedicated,
patriotic American workers to survive working full time for more than a
month without pay is simply not sustainable. That situation creates
substantial distractions for individuals who are already engaged in
extremely stressful work. The financial and mental strain increase
risks within the NAS, making the system less safe with each passing day
of a shutdown.
As a result, NATCA advocates were tireless in their pursuit and
support of all possible solutions. NATCA consistently said that it
would support any measure that would end the shutdown and pay air
traffic controllers and other aviation safety professionals, including
a clean CR. NATCA also strongly supported other bills that would have
paid air traffic controllers during the shutdown.
Another alternative that NATCA continues to strongly support is
Chairman Moran's bill, S. 1045, the Aviation Funding Stability Act of
2025, which would provide continuing appropriations for the FAA out of
the Airport and Airways Trust Fund in the event of a shutdown. Over the
years, NATCA has supported previous versions of this bill and currently
also supports substantially similar bills in the House of
Representatives introduced by Rep. Aaron Bean (FL-04), H.R. 5455, and
Rep. Steve Cohen (TN-09) and Rep. Andre Carson (IN-07), H.R. 5451.
With the recent shutdown in the past, but with another funding
deadline looming in January, NATCA has turned its attention to
supporting, advocating for, and passing Chairman Moran's bill, the
Aviation Funding Stability Act of 2025. Shutdowns create real problems
for real American workers, but the Chairman's bill solves many of those
problems in a practical and sustainable way.
If it were to pass, the Aviation Funding Stability Act of 2025
would ensure that the FAA could operate despite a government-wide
shutdown, meaning that controllers would not be forced to make
difficult practical and financial choices as a result of not being paid
such as how to pay for housing/rent, gas, food, and/or childcare
services. Thus, these controllers and other aviation safety
professionals would be able to remain completely focused on their
safety-critical jobs, instead of worrying about paying the bills.
II. Persistent Challenges Remain That Predated Shutdown
As we mentioned earlier, controller staffing and modernization
funding challenges were two critical issues that predated the 43-day
government shutdown. That is why NATCA continues to strongly support
Secretary Duffy's initiatives to supercharge controller hiring and
training and modernize the FAA's physical and technological
infrastructure to support the NAS of the future.
A. Controller Staffing Remains Near a 30-Year Low and Had a
Disproportionate
Effect on System Capacity During the Shutdown
The controller workforce has been understaffed for more than a
decade, resulting in mandatory overtime, including regular 10-hour days
and six-day weeks. Last year, controllers at 40 percent of FAA
facilities worked six days a week at least once per month. Several
facilities require six-day workweeks every week. The FAA and NATCA are
acutely aware of these thin staffing margins and the compounding
effects they have on controller stress and fatigue.
NATCA remains focused on improving the system-wide controller
staffing shortage. A properly-staffed controller workforce is necessary
in order to safely and efficiently meet all of its operational,
statutory, and contractual requirements, while also having the
personnel resources to research, develop, deploy, and then train the
existing workforce on new procedures, technology, and modernization
initiatives. Without a sustainable hiring, training, and staffing model
like the one
outlined in the FAA Reauthorization Act of 2024, which passed both
chambers with overwhelming bipartisan support, the FAA will struggle to
maintain the current capacity of the system, let alone modernize or
expand it for new users. This Committee should continue to oversee the
FAA's efforts to implement the staffing provisions contained in the
Reauthorization Act, including maximum hiring and deployment of Tower
Simulator Systems, which have proven to reduce training times by 27
percent.
B. FAA Safety and Technology Modernization Programs Need Additional
Resources
Controller staffing and infrastructure progress are inextricably
linked. A properly-staffed workforce of fully certified controllers is
needed for the FAA to successfully develop, test, deploy, and train the
workforce on new technology and modernization programs on time and
under budget. Without proper controller staffing, investments in
infrastructure and modernization programs will not yield their full
potential.
It is critical that NATCA remain a productive and collaborative
partner throughout development, testing, training, and implementation
across a wide range of safety, technology, and modernization programs.
NATCA's continued involvement will ensure that the FAA delivers these
initiatives to industry stakeholders and the flying public on-time and
at a cost-savings to the American taxpayers. When NATCA representatives
are not involved throughout the entirety of a process, modernization
programs are delayed and experience cost overruns, because of
extensive, costly, and time-consuming revisions following development,
testing, and after implementation.
The FAA also must continue to be transparent with its need for
increased Facilities and Equipment (F&E) funding so that it can meet
its own equipment sustainment, replacement, and modernization needs. If
not, it will continue to exacerbate the FAA's significant sustainment
and replacement backlog. Failing to maintain and replace critical
safety equipment that has exceeded its expected life introduces
unnecessary risk into the system. These funding limitations also have
prevented the FAA from designing and implementing new technologies that
will improve safety. We are encouraged that FAA has increased its F&E
request for Fiscal Year 2026 and the Senate Appropriations Committee
has increased its allocation for F&E.
C. FAA's Physical Infrastructure is Rapidly Aging and Many Facilities
Have
Exceeded Their Expected Lifecycles
The FAA operates more than 300 air traffic control facilities of
varying ages and conditions. The FAA's 21 Air Route Traffic Control
Centers (ARTCCs) located in the continental United States were built in
the 1960s and are more than 60 years old. The FAA's Terminal Radar
Approach Control facilities (TRACONs) are, on average, more than 25
years old. In addition, the FAA has 132 combined TRACON/towers, which
are, on average, approximately 35 years old. Finally, the FAA has an
additional 131 stand-alone Towers which average more than 30 years old.
Many FAA facilities have exceeded their expected lifecycles. Others
have major systems that have exceeded their expected functional
lifecycle such as roofs, windows, HVAC systems, plumbing, and
elevators, which no longer perform their necessary functions. Some of
these issues have led to periodic airspace shutdowns and many others
have led to safety concerns for the workforce. When these major systems
fail, or facilities have integrity problems, it can lead to increasing
delays, which negatively affect the flying public and the economy.
The FAA is addressing its aging infrastructure through a
combination of (1) realignments and consolidations, (2) repairing,
sustaining, and maintaining some facilities, and (3) replacing a
handful of others. However, that process has been slow and hampered by
funding limitations. The FAA will need a substantially increased
investment in its F&E budget or a supplemental funding source to
adequately maintain, let alone, replace its aging physical
infrastructure.
Although NATCA recognizes that the FAA's future facility footprint
is likely to be different than the current footprint, realigning and
consolidating facilities for the sake of consolidation--or based on
real estate considerations that are unrelated the agency's core
mission--is not in the best interest of the NAS or the flying public.
As the FAA considers options for ATC facility realignment and
consolidation, several key factors should be considered such as safety,
continuity, capacity and efficiency, cost savings, and the effects on
the workforce. NATCA stands ready to partner with Congress, the
Administration, and the FAA to address these critical issues.
III. Legislative Solutions to Future Shutdown Risks
During the shutdown, NATCA consistently said that it would support
any measure that would end the shutdown and pay air traffic
controllers, including a clean CR. But NATCA also strongly supported
numerous other bills that would have paid controllers during the
shutdown. However, now is the time to pass long-term, meaningful
legislation so that controllers and other aviation safety professionals
don't ever have to experience that level of stress and financial
instability again.
A. NATCA strongly supports S. 1045, Chairman Moran's Aviation Funding
Stability Act of 2025, which would ensure the FAA has stable
and predictable funding in the face of future shutdown threats.
Chairman Moran's bill, S. 1045, the Aviation Funding Stability Act
of 2025, would provide continuing appropriations for the FAA out of the
Airport and Airways Trust Fund in the event of a shutdown. NATCA also
supports substantially similar bills in the House of Representatives.
With another funding deadline looming in January, Chairman Moran's bill
has become one of NATCA's top priorities.
During the shutdown, NATCA also supported several other Senate
bills that would have appropriated funds to pay Federal employees,
including NATCA air traffic controllers: S. 3012--The Shutdown Fairness
Act introduced by Sen. Ron Johnson (WI); S. 3039--The True Shutdown
Fairness Act introduced by Sen. Chris Van Hollen (MD); S. 3031--The
Keep America Flying Act introduced by Sen. Ted Cruz (TX); and S. 3043--
The Military and Federal Employee Protection Act introduced by Sen.
Gary Peters (MI).
NATCA strongly supported each of these bills because they would
have alleviated the financial hardships created by the shutdown by
paying certain groups of Federal employees, such as air traffic
controllers and members of the military.
B. Other Aviation Safety Legislation
NATCA strongly supports other legislation that would improve
aviation safety.
One of those bills is the bipartisan agreement between Chairman
Cruz and Ranking Member Cantwell on S. 2503--the Rotorcraft Operations
Transparency and Oversight Reform (ROTOR Act), which would improve
aircraft safety in and around airports.
Additionally, NATCA supports S. 1985--the Safe Operations of Shared
Airspace Act of 2025, which would improve aviation safety, enhance
safety reporting systems, improve controller training, and extend FAA's
max hiring requirements contained in the FAA Reauthorization Act of
2024 for an additional five years, because it will take a long-term
commitment to fully staff the air traffic controller workforce.
Finally, NATCA supports both bills that Ranking Member Duckworth
and Senator Hoeven are soon to introduce regarding controller and pilot
mental health. Both the Mental Health in Aviation Act and the Aviation
Medication Transparency Act will improve safety by bringing mental
health to the forefront improving access to care and medication.
IV. Conclusion
NATCA will continue to leave shutdown politics unrelated to
aviation safety to the elected representatives in Congress. Controllers
did not start the shutdown and were not responsible for ending the
shutdown.
Congress now must engage in bipartisan negotiations on other
pressing issues facing our Nation so that we are not back in the same
position nine weeks from now. Congress also must prioritize passing
Chairman Moran's bill so this never happens to controllers and aviation
safety professionals again.
NATCA looks forward to working with members of this Committee, the
Administration, appropriators, all other Members of Congress, and
aviation stakeholders to achieve these and many other shared goals.
Thank you for holding this important hearing and providing the
opportunity to testify.
Senator Moran. Mr. Daniels, thank you. Senator Sununu--
Senator. Excuse me. I know a Senator Sununu. Governor Sununu.
STATEMENT OF GOVERNOR CHRISTOPHER T. SUNUNU,
PRESIDENT AND CHIEF EXECUTIVE OFFICER (CEO),
AIRLINES FOR AMERICA
Mr. Sununu. Sorry, no senator here, but I appreciate it.
Well, let me just begin by obviously thanking Chairman Moran
and Senator Duckworth for holding the hearing. Coming off the
unprecedented 6-week shutdown, the airline industry definitely
appreciates the promptness that this body showed in having this
discussion on how government shutdowns not just affect the
airlines, but the American people and the American economy.
I also want to recognize and thank the efforts of the TSA
employees, the CBP employees, and, of course, the air traffic
controllers represented here by Nick Daniels, all those
individuals who showed up week-in and week-out without
paychecks, without certainty, and made those personal
sacrifices because they understood that the national airspace
isn't something that this country can put at risk. They
understood that the airline industry and its people, they are a
national strategic asset and, I hope we can all agree, should
never be used as a political football. Now, the good news is we
all know that this problem can and should be avoided, and there
are opportunities before this body that would remedy the
situation, not just temporarily, but permanently. That leads me
to a special thanks to Chairman Moran for his Aviation Funding
Stability Act. We need solutions like this to be implemented to
shield the FAA and its workforce from the politics of a
shutdown.
So, let me put into perspective the trends that the
industry saw and was forced to react to as that shutdown
progressed, one of the bigger questions that we receive.
Typically, on any given regular travel day, we can expect to
see any controller staffing shortages cause about 5 percent of
the overall delay. So, for every delay that's out there, 1 out
of every 20 might be because of a staffing shortage on a
typical day. And so, to ensure safety during the first 4 weeks
of the shutdown, we saw that number triple to 16 percent,
which, again, to put into perspective, the cancellations
weren't there, right? The delays were there because it was all
about safety, but for the cancellations in those first 4 weeks,
it was well under one percent of actual cancellations, which
means the system was slowed down with increased delays, but the
airlines, the FAA, the air traffic controllers themselves, they
were mitigating the situation around the clock to ensure that
passengers were getting where they were going and they were
doing it safely. It was a herculean effort, but with far better
results than were seen in the last 2019 shutdown.
Then came Halloween, which was America's true nightmare for
our passengers. After four weeks of building pressures, the
controller shortage spiked and remained elevated through the
remainder of the shutdown. I'll leave it to Nick here to
describe a lot of the strains felt by each of those individuals
and their families, but understandably, it was clear that the
system that was understaffed and antiquated before the shutdown
was now overwhelmed. On November 6, the FAA released Order
Number 1, outlining the required airspace reductions starting
at four percent, with the idea that it would build to 10
percent of forced cancellations in about a week. And these
numbers may not sound like a lot, but for airline operations
that require crew placement, management, asset placement, you
know, moving the actual airplanes to get them into position and
repositioned, and then dealing with all the customer service
demands that inevitably will result from such cancellations, it
really became a 24-hour, nonstop logistical nightmare for the
airlines themselves.
Just three days later, the number of delays had dropped,
but the cancellations increased, had skyrocketed not to 4, but
to well over 10 percent, and cancellations themselves increased
from about 140 around November 5 to 2,800, 20 times that, in
just 4 or 5 days. Luckily, the Senate passed the Continuing
Resolution less than a week after the initial order, but
believe me when I tell you that while safety was always
maintained through the shutdown, there were discussions within
the industry that in order to ensure that level of safety,
which is absolutely required, much larger portions of the
American commercial fleet may have to be grounded because,
logistically, it just wouldn't have been possible to keep
meeting those cancellation requirements.
So, what did this cost us? And by ``us,'' I don't mean the
airlines. I mean, what did this cost America? The airlines
themselves were taking a hit of about $50 million a day just in
the potential refunds to canceled passengers, but, more
importantly, the American economy was feeling all of these
dominoes fall. And when you add the impact to airlines and
hotels and restaurants and rentals, the low estimate we found
says that the flight cancellation impact was close to $500
million per day by November 10, and for the entirety of the
shutdown, some estimates are clocking it at a $20 billion hit
to America's GDP.
So, how do we make sure this doesn't happen again? First,
it's--as it was outlined here, Congress has to pass the
Transportation and Homeland Security appropriation bills, a
minimum first step that's critical for all airspace functions.
Second, Senator Moran's Aviation Funding Stability Act will pay
for FAA during times of government shutdown. It's a public-
private partnership, and we appreciation--we appreciate his
leadership to ensure that the government is living up to its
responsibility to the American public. And third, we're
grateful for the first $12-and-a-half billion, but there's
another $19 billion that absolutely has to come. Modernization
is absolutely key, but you can't just put in one piece of the
puzzle. The whole thing has to be there. And so, to ensure
those funds are there are going to be critical to making sure
that, again, we don't have a lasting problem in America's
airspace. Thank you.
[The prepared statement of Mr. Sununu follows:]
Prepared Statement of Governor Christopher T. Sununu, President and
Chief Executive Officer (CEO), Airlines for America
Good afternoon, Chairman Moran, Ranking Member Duckworth and
members of the Subcommittee. My name is Chris Sununu, and I am the
President and CEO of Airlines for America (A4A). Thank you for inviting
me here today, and on behalf of all our A4A members\1\, I appreciate
the opportunity to participate in the Subcommittee's expeditious
examination of legislative solutions to end the practice of using the
traveling and shipping public as pawns during Federal government
shutdowns.
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\1\ A4A is the trade association for the leading U.S. airlines,
both passenger and cargo carriers. Members of the association are
Alaska Airlines; American Airlines; Atlas Air; Delta Air Lines; FedEx;
JetBlue Airways; Southwest Airlines; United Airlines; and UPS. Air
Canada is an associate member.
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The old adage ``the definition of insanity is doing the same thing
over and over again and expecting different results'' can surely be
applied to the circumstances of the last couple months and the specter
of yet another potential shutdown at the end of January 2026.
Urgent Legislative Actions Needed: In the short term, I believe two
actions are clearly necessary:
1. Congress must pass the Fiscal Year (FY) 2026 Transportation,
Housing and Urban Development, and Related Agencies (THUD) and
Department of Homeland Security (DHS) appropriations bills to
make sure the Federal Aviation Administration (FAA),
Transportation Security Administration (TSA) and Customs and
Border Protection (CBP) are not subject to shutdown impacts for
the rest of FY 2026; and
2. Congress must identify and enact solutions that will ensure the
FAA, TSA and CBP are insulated from the impacts of any future
lapses in appropriations, ensuring their employees can continue
their work uninterrupted and with pay.
Chairman Moran, I would like to specifically thank you for your
leadership in trying to find legislative solutions that would alleviate
many of the impacts felt by the aviation community and the traveling
and shipping public. The bill you introduced in March (S. 1045), which
would address the lapse in appropriations for the FAA, is a tremendous
starting point, and I am hopeful we can carry these types of provisions
over to the TSA and CBP who also play a critical role in supporting the
daily operations of the aviation sector.
I am in no manner downplaying the criticality of other government
agencies or employees impacted by the shutdown; however, the unique
nature and funding structure of our aviation system should allow for
efficient and effective budgetary contingency plans that would allow
FAA, TSA and CBP to operate normally during shutdowns caused by a lack
of funding.
Shutdown Impacts are Disastrous: More than most, this Subcommittee
knows that shutdowns are not new and they are becoming more frequent.
In just the last 15 years alone, the FAA has been subjected to several
partial or government-wide budget reductions and shutdowns.
In July 2011, the lapse in FAA's authorization caused the
FAA to stop work on numerous projects including air traffic
control modernization projects;
In April 2013, the government-wide sequester caused the FAA
to furlough air traffic controllers resulting in massive delays
throughout the air traffic control (ATC) system and the
cancellation of hundreds of flights, impacting hundreds of
thousands of passengers;
In October 2013, the government shutdown resulted in many
FAA employee furloughs; and
In December 2019, the partial government shutdown resulted
in many FAA employee furloughs.
Today, we find ourselves recovering from another government
shutdown--this one 43 days long, the longest in history, with the
looming threat of another in January.
Too much is at stake to continue with the status quo. Commercial
aviation drives 5 percent of U.S. GDP and helps to support more than 10
million U.S. jobs. We operate the safest mode of transportation, with
U.S. airlines alone operating 27,000 flights carrying 2.7 million
passengers and 61,000 tons of cargo every day across the globe.
Shutdowns drive both human and economic consequences and can impact
safety throughout the national airspace. Airlines effectively mitigated
the brunt of the impacts of the shutdown through October and early
November. After 5 weeks of managing an already strained system, fatigue
and economic pressures on controllers drove increased staffing triggers
resulting in the FAA implementing a flight reduction program for 40
airports around the country. The FAA cited an increase in pilot reports
that highlighted the growing weariness among air traffic controllers as
well as a couple of near-miss ground events that raised concerns among
the regulators. Administration officials linked this safety risk to the
financial strain of working without pay for such an extended period. We
cannot ignore the long-standing underlying issue, which is that our
system has been experiencing an air traffic controller shortage for
many years. A4A's top priority during the most recent FAA
Reauthorization cycle was to address the controller shortage as well as
our country's antiquated air traffic control technology. Unfortunately,
this shutdown moved ATC staffing and modernization efforts two steps
backwards.
The data from this most recent shutdown shows the material impact
and real-world consequences of extended shutdowns and will hopefully
convince policymakers that we should never subject our air traffic
control system to this chaos again.
Controller Staffing Triggers and Operational Limitations. According
to FAA data, controller staffing issues contributed to 5 percent of
National Airspace System (NAS) delay minutes from January through
September, jumping to 16 percent in October and 62 percent in November.
Over 6 million A4A member airline passengers were affected during the
shutdown.
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
Many of the disruptions faced by passengers between October 1 and
early November were a function of controller staffing-driven flight
delays. During that period, A4A airlines incurred over 30,000 staffing-
related delays but were able to minimize cancellations to about 400
(<0.1 percent). This shutdown disrupted 3.7 million passengers in that
time period and pushed the airlines to scramble to minimize customer
impacts. The air traffic controller staffing issues then led to an
unprecedented shutdown consequence where the FAA issued an Emergency
Order (Order #1) directing air carriers to reduce domestic schedule
operations across the NAS at 40 airports. Specifically, Order #1
directed a 4 percent reduction in operations on Friday, November 7,
ramping up to 6 percent by November 11, 8 percent by November 13 and 10
percent by November 14. On November 12, citing substantial and rapid
improvement in facility staffing conditions, the FAA issued a new
Emergency Order (Order #2), which superseded Order #1. Order #2
modified the operational limitation escalation to 6 percent. From
November 7--the first day of the FAA-mandated flight-schedule
reductions--through November 12, A4A airlines incurred more than 15,600
staffing-related delays and more than 7,100 staffing-related flight
cancellations, disrupting 2.3 million passengers.
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
The operational reduction percentages may seem trivial to the
average observer, but when put into context they are extreme. On
November 12, for example, 99.8 percent of the 861 staffing-related
cancellations were attributable to FAA-mandated flight reductions at 40
airports. For perspective, in November 2024, data from the Bureau of
Transportation Statistics show that U.S. airlines canceled just 0.46
percent of scheduled flights--and that's across all categories of
causation, including NAS issues. Promulgating a cancellation rate of 6
percent for several consecutive days, if not longer, for ATC staffing
reasons alone, without a chance for operations to recover, is highly
disruptive to our customers and takes a toll on our frontline
employees--at the airport, on the plane, on our help desks, etc. At the
40 target airports, applying the 6 percent directive translates to
approximately 875 cancellations and 60,000 disrupted passengers per day
which is more than 13 times the normal rate.
A4A estimates that if Order #1 would have reached the original 10
percent threshold, by November 14, the daily average toll on the U.S.
economy would have reached as much as $580 million depending on the
degree to which airlines could reaccommodate cancellation-disrupted
passengers on the remaining flights.
Of note, that economic impact estimate is tied solely to compliance
with the flight-reduction directive, and it does not include the costs
associated with the value of passenger time, reduced bookings,
passenger refunds, etc. It does include indirect and induced impacts
tied to reduced visitor spending, state and local tax revenue and
spending across the broader economy as individuals within and outside
the aviation supply chain curtailed expenditures.
The air traffic controller staffing crisis also triggered broad
secondary impacts. In many instances, even those passengers who
successfully reach their destination encountered long departure delays,
extended tarmac times and highly unpredictable arrival times. For the
airlines, many flight crews were timing out (per regulated limits) or
missing connections because of late aircraft arrivals and equipment
mis-positioning.
For the controller staffing issues in particular, unlike weather-
driven disruptions, each controller shift change or facility staffing
trigger could result in added hours of delay with no advance notice,
undermining the airlines' ability to plan, staff or accommodate
impacted customers. Despite airline mitigations, it created mass
disruptions and should serve as an example of the real-world economic
and human impact of a government shutdown. This simply should never
happen again, and it is most certainly preventable.
Transportation Security Impacts. Adequately staffing and supporting
the DHS and its component agencies, TSA and CBP, is also extremely
important to the smooth operation of the aviation sector and is vital
to our industry. In 2025 to date, U.S. airlines have experienced travel
volumes comparable to last year's all-time high. Several of the busiest
days in TSA history have occurred in 2025, including a record-setting
3.1 million passengers and crewmembers screened on June 22.
Fortunately, from a TSA perspective, most hot spot locations during
the shutdown were appropriately mitigated by TSA deploying personnel
from its National Deployment Force to help support airports with higher
travel volumes. However, as the shutdown progressed, some airports were
starting to experience negative operational impacts of higher
Transportation Security Officer (TSO) call-out rates.
The shutdown also had larger security impacts via the temporary
expiration of several critical security authorities that the Committee
and Congress should consider granting permanent authority in order to
avoid future lapses. Specifically:
TSA's Reimbursable Screening Services Program (RSSP): The
RSSP program is a vital component to distributed passenger
screening for the upcoming 2026 FIFA World Cup events and TSA
should be granted permanent authority.
Authority for the Unified National-Level Response to
Persistent Unmanned Aircraft Systems (UAS) Disruption of
Operations at Core 30 Airports expired on Sept. 30, 2025. TSA
is the Lead Federal Agency responsible for overseeing any
Counter-UAS (C-UAS) response to persistent and disruptive UAS
activities at our Nation's airports. Disruptive UAS in
restricted airspace around our Nation's airports remains a
persistent and evolving threat with thousands of sightings
reported annually. Congress should extend and expand C-UAS
authorities immediately to ensure the NAS is protected from
errant, disruptive and nefarious UAS.
The expiration of the 2015 Cybersecurity Information Sharing
Act (CISA'15) led many industries to reevaluate the risk of
voluntarily sharing cybersecurity information with the Federal
government. CISA'15 established a legal framework that is
intended to facilitate the voluntary sharing of cyber threat
indicators and defensive measures between and within the
Federal government and non-federal entities, including private
sector organizations and state, local, tribal and territorial,
including airlines.
From a passenger travel experience perspective, the Administration
was fortunately able to utilize reconciliation funds included in the
One Big Beautiful Bill Act to fund and pay CBP officers and TSA air
marshals during the shutdown.
However, that only covered law enforcement officers and is likely a
one-time solution, not a long-term remedy to address future shutdowns.
Finally, we are also concerned that the shutdown negatively
impacted operational readiness for upcoming global events like the 2026
FIFA World Cup and America 250. Much work will need to be done to
prepare for the safe and secure execution of these events and
unnecessary government shutdowns are detrimental to the public-private
collaboration necessary to ensure transit to and from these events is
safe and secure.
Solutions--ATC Staffing, Brand New Air Traffic Control System, Never
Subject Aviation to Shutdown Again
Address the Air Traffic Controller Shortage. One of the biggest
detriments to growth in the airline industry has been the ongoing air
traffic controller staffing shortage, which was an acute issue prior to
the shutdown and will only be exacerbated by the long-term impacts of
the most recent shutdown. Beginning in October 2023, airlines reduced
their flying from the New York metropolitan area by 10 percent to
accommodate the lack of controller staffing at critical facilities.
In November 2024, the Department of Transportation Inspector
General (DOT IG) put out its DOT Top Management Challenges report. That
report states:
``. . . FAA has not ensured adequate controller staffing at
its most critical facilities. For example, we (IG) found that
20 of 26 critical facilities were staffed below the Agency's
threshold of 85 percent.''
``FAA's implementation of pauses in air traffic controller
training during the COVID-19 pandemic contributed to controller
staffing challenges by resulting in an increase in
certification times for controllers. FAA needs improved
resiliency in staffing and contingency planning for
disruptions, and our audit work shows that FAA's lack of a plan
to address these staffing challenges limits the capacity of the
NAS.''
Build the Brand New Air Traffic Control System. The U.S. ATC system
is very safe, but the lack of government action has made it
inefficient, antiquated and far from the ``gold standard'' Americans
deserve. Unnecessary travel delays cost the U.S. economy and passengers
more than $30 billion annually. These delays are the direct result of
systemwide ATC inefficiencies resulting from the use of outdated, World
War II-era radar technology. Controllers are still using paper strips
to control traffic instead of electronic strips. Some computer system
updates are done with floppy disks. It should not be a surprise that
flights between Washington, D.C., and New York used to take 55 minutes,
but to account for air traffic delays and inefficiencies, these flights
are now scheduled to take 80 minutes or longer. Despite being a vital
part of U.S. economic infrastructure, our airspace and the technology
that supports it is the modern equivalent of driving a horse and buggy
on a gravel road. This lack of efficiency and the resulting reduced
capacity directly and negatively impacts carriers' ability to grow and
compete and robs consumers and the economy of growth, jobs and related
benefits.
A4A is not alone with these recommendations, as we are part of an
unprecedented, industry-wide broad aviation community coalition
established earlier this year, the ``Modern Skies Coalition''. The
coalition wholeheartedly endorses Secretary of Transportation Duffy's
plans to ``supercharge'' air traffic controller hiring at the Federal
Aviation Administration (FAA) and modernize the air traffic control
system. The Coalition strongly supported Congress's $12.5 billion
downpayment toward air traffic control modernization and we continue to
advocate in support of Secretary Duffy's acknowledgment that additional
funding of at least $19 billion will be needed to completely build a
new air traffic control system.
The most recent shutdown distinctly showed the lengths at which the
FAA and the aviation community will go to maintain safety in the
system, but it also plainly displayed the system's growing
inefficiencies fragility. Congress has a responsibility to establish a
governance and funding system that will provide stable and predictable
funding to not only avoid future shutdown scenarios but also
holistically address the controller shortage and the efficiency of the
ATC system.
Ensure the FAA Is Not Harmed by Another Government Shutdown
This shutdown has demonstrated the serious safety, human and
economic consequences of subjecting the aviation sector to this kind of
stress and chaos. It must never happen again.
To that end, we strongly support Senator Moran's bill, S. 1045,
that ensures that FAA continues to operate during a government shutdown
by drawing on monies from the Airport and Airway Trust Fund (AATF). We
know that aviation is an ecosystem and would additionally support the
ability to pay TSA and CBP from existing user fees. We look forward to
continuing to work with authorizers and appropriators on any
legislation that meets our goals of ensuring safety and the operating
integrity of the FAA, TSA and CBP. Any bill achieving these goals will
have our support. This shutdown has demonstrated that our system can no
longer withstand being collateral damage of Washington policy debates.
The Congressional Budget Office's (CBO) January 2025 baseline
projections for the AATF show end-of-year uncommitted balances of $4.8
billion in FY 2025 and $12.4 billion in FY 2035.
Our view is that the Administration and Congress should make
changes to its administration of the AATF in such a way that continues
the appropriators and authorizers important oversight role while giving
the FAA the ability to more effectively utilize the AATF balance. This
would bring the FAA's Operating and Facilities & Equipment (F&E)
capital programs more in line with the approach taken for other
transportation programs like the Harbor Maintenance Trust Fund, surface
transportation contract authority from the Highway Trust Fund and the
Airport Improvement Program.
We stand by to engage and discuss optimal pathways for creating
sustainable and predictable funding mechanisms with Congress. Along
with a general fund contribution, the FAA is mainly funded from the
AATF, which is supported by aviation fuel taxes, ticket taxes and other
fees. The FAA must be allowed to fully utilize the existing funds
within the AATF to meet current obligations under the recently passed
FAA reauthorization law and execute long-term focused investment to
modernize the national air space. Developing a predictable source of
funding via a multi-year account is necessary to begin recapitalizing
major infrastructure assets and ensure the continued safety and
efficiency of U.S. airspace.
Conclusion
On behalf of our member airlines, I would be remiss not to
acknowledge and sincerely thank the dedicated employees at the DOT,
FAA, DHS, TSA, and CBP who dutifully went to work during the shutdown.
Despite significant and prolonged hardships, they kept our aviation
system operational and safe. We are extremely grateful for their
efforts and hopeful that their professionalism does not come into play
again on January 30, 2026.
Thank you again for the opportunity to testify. As we approach
Thanksgiving--which is expected to see a record 31 million passengers
over the holiday--I strongly urge Congress to pass the annual
appropriations bills and find long-term solutions to expeditiously
enact practical solutions that will eliminate any future air
transportation disruptions caused by government shutdowns.
Senator Moran. Thank you. Mr. Viola.
STATEMENT OF JAMES A. VIOLA, PRESIDENT AND
CHIEF EXECUTIVE OFFICER, GENERAL AVIATION
MANUFACTURERS ASSOCIATION
Mr. Viola. Senator Moran, Senator Duckworth, and members of
the Subcommittee on Aviation Space and Innovation, thank you
for inviting me to testify regarding the impact of the recent
government shutdown on the aviation sector. GAMA is privileged
to represent companies that continuously modernize and improve
existing aircraft fleet and are working on new aircraft and new
technologies that will transform aviation. I want to
acknowledge the dedication and sacrifice of the FAA employees
and others who are responsible for the safety and the security
of the aviation sector. They have conducted themselves
commendably, despite multiple missed paychecks and job
uncertainty.
As a former FAA employee, I saw firsthand how difficult
shutdowns are for the Agency and the workforce, and I know
they're not easily recovered from. The shutdown limited the FAA
to conducting essential activities only, which are those
necessary to protect life and property or required by law. As
the shutdown continued, the FAA recognized that the delays in
oversight and design approval certification activities were
increasing and delaying U.S. development of product
improvements and safety-enhancing technologies, and the
leadership began to call back more of the workforce inside the
FAA to conduct additional safety oversight and limited
certification activities. Nevertheless, the shutdown
significantly disrupted important activities of the FAA,
including areas that this Congress prioritized during the FAA
Reauthorization Act of 2024, such as FAA workforce growth and
development, FAA certification activities, and the support of
U.S. technologies and innovation.
The most important impact of the 2025 government shutdown
on manufacturers is that they saw no new certification projects
or other applications were allowed to start. Even with the
shutdown's end now, the FAA will be unable to act upon all
those new applications immediately, which will likely take
months before they can get at them. The FAA certification and
safety workforce, recruiting and skills enhancement, and
training initiatives were also severely impacted by the
shutdown. We are very concerned about approximately 600
engineers, pilots, inspectors, and technical specialists that
AVS was actively hiring when the shutdown began on October 1.
These candidates were left in limbo and may now decide not to
pursue Federal employment. The shutdown also resulted in missed
opportunities to advance U.S. leadership in global
international aviation forums that support U.S. aviation
standards and technology. It also delayed critical safety
oversight functions, like flight testing, and those will
require months to reschedule.
Another area of continued impact is rulemaking, again,
including many directed by the 2024 Reauthorization Act, in
areas like aviation safety, cybersecurity, certification
modernization, and drone detect-and-avoid technology. These
issues underscore the importance of Congress acting quickly now
to pass the Fiscal Year 2026 Transportation, Housing, and Urban
Development appropriations bill. Passage will provide the
needed stability to the Agency and allow for key investments in
the workforce modernization and aviation safety. We strongly
support Senator Moran's Aviation Funding Stability Act to avoid
effects of future shutdowns, as well as legislation introduced
by the House Transportation and Infrastructure Chair Graves,
and Ranking Member Larsen, and others to address these issues.
We appreciate these initiatives and will stand ready to work
with everyone to find the best path forward.
In the wake of the accident at DCA, the aviation industry
came together to form the Modern Skies Coalition to focus on
air traffic modernization and staffing issues. The shutdown was
counterproductive to these modernization and staffing efforts.
Like the aviation safety and regulatory issues I discussed
earlier, we must all work to regain that momentum on these
modernization priorities. It is a national imperative.
GAMA appreciates the opportunity to share the manufacturer
industry's perspectives today, and I look forward to working
with members of this subcommittee on efforts to improve the
strength and operation of the FAA. Thank you, and I look
forward to your questions.
[The prepared statement of Mr. Viola follows:]
Prepared Statement of James A. Viola, President and Chief Executive
Officer, General Aviation Manufacturers Association
Senator Moran, Senator Duckworth, and members of the Subcommittee
on Aviation, Space, and Innovation, on behalf of the General Aviation
Manufacturers Association (GAMA), thank you for inviting me to testify
on the impact of the recent government shutdown on the aviation sector.
We appreciate the opportunity to highlight how the Federal Aviation
Administration (FAA) and partner agencies have fulfilled essential
services and worked with manufacturers, maintenance, and training
providers since October 1st to keep the FAA certification process and
other aspects of aviation safety functioning during difficult times as
well as outlining some impacts on product development, innovation, and
U.S. aviation global leadership. Finally, I want to highlight some
steps where industry and government can work together to advance
aviation safety, its economic contributions, and competitiveness.
By way of background, GAMA is an international trade association
representing more than 140 companies which comprise most of the world's
leading manufacturers of general aviation airplanes, rotorcraft,
engines, avionics, advanced air mobility powered lift aircraft,
components, and related technologies. GAMA members are also providers
of maintenance and repair services, fixed-based operations, pilot and
maintenance training, and aircraft management companies. In the U.S.,
general aviation supports $339 billion in total economic output
annually and 1.3 million total jobs\1\, with GAMA companies having
facilities in 49 states. General aviation contributes to the economies
of all 50 states and the District of Columbia.
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\1\ Contribution of General Aviation to the U.S. Economy, PwC,
February 2025
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First and foremost, I want to acknowledge the dedication and
sacrifice of Federal employees, including those at the FAA, partner
agencies, and contractors, who are responsible for the safety,
security, and economic health of the aviation sector. They have missed
multiple paychecks, creating economic and emotional distress for
employees and their families, including job status concerns in some
cases. As a former FAA employee, I have seen how difficult shutdowns
are for the agency and its workforce and know firsthand they are not
easily recovered from. While the controller workforce has rightly been
the focus of attention, these pay and job issues have challenged
thousands of FAA employees, including those dealing with aviation
safety issues for certification, manufacturing, operations,
maintenance, and training.
On a personal and professional level, myself, my colleagues, and
the companies that we are privileged to represent deeply value these
public sector servants. Retaining them and providing support is
critical to ensure our industry and nation can recover from this
setback. The U.S. aerospace sector is an extremely complex and
interdependent system that relies on fully functioning government and
industry partners to thrive.
Managing the 2025 Shutdown for Aviation Manufacturing, Maintenance, and
Training Organizations
The shutdown limited FAA to conducting essential activities which
are those ``necessary to protect life and property'' or required by
law. For GAMA member companies, this was confined to safety inspections
and oversight, continued operational safety and addressing unsafe
conditions through Airworthiness Directives. A significant number of
the FAA workforce in the Aviation Safety Aircraft Certification and
Flight Standards offices were put on furlough. FAA leadership exercised
discretion, within the limits of the law, to identify available options
to enable safety and productivity. Consistently, the agency, its
leadership, and workforce engaged with our member companies to ensure
we were kept informed and addressed issues as they arose. This includes
working with manufacturers and maintenance providers proactively to
conduct safety oversight and authorizations to enable ongoing aircraft
certification, production, and airworthiness activities. The ability
for manufacturers to continue product development certification and
manufacturing is largely attributed to the abilities of companies to
utilize existing FAA-approved delegation and related authorities.
However, the ability to maintain support for programs was hampered
because FAA was unable to fully engage in continued designee
appointment and oversight activities. Since the ability to travel was
severely restricted, the FAA was able to leverage alternate methods for
conducting oversight and witnessing key activities, including the use
of locally available resources and digital capabilities like video.
The FAA recognized that delays in oversight and design approval
certification activities increase systemic risk. In addition, this
delays U.S. development of product improvements and safety-enhancing
technologies from entering the National Airspace System (NAS). As the
shutdown continued to extend into weeks, FAA started to recall portions
of the workforce to conduct additional safety oversight,
authorizations, and certification activities which enabled
manufacturers, repair stations, and training organizations to safely
continue ongoing operations.
Partner agencies are also to be commended for their management
during the six-week shutdown. The U.S. National Transportation Safety
Board (NTSB), supported by FAA engineers, pilots, and inspectors as
needed, continued to launch and conduct investigations of accidents
that occurred during the past month-and-a-half. This is a different
approach from the 2018-2019 shutdown where NTSB only conducted limited
work during the funding lapse which caused a significant backlog that
the agency spent years recovering from with implications on volume and
timeliness to complete reports.
Along with its critical role in security screening, the U.S.
Transportation Security Administration (TSA) has also supported the
general aviation sector. The agency's Enrollment Services and Vetting
Programs (ESVP) team conducted vetting of our pilots and training
centers to support the industry during the shutdown. We want to say
thank you to the TSA staff for their commitment to securing the
transportation sector during these difficult times.
Near and Long-Term Impacts of the 2025 Government Shutdown
Despite this tremendous work and sacrifice by the FAA workforce,
the shutdown significantly impacted important activities of the agency
and U.S. manufacturers and aviation businesses. Many of the areas
facing disruption were areas this Committee, and Congress as a whole,
prioritized during the FAA Reauthorization Act of 2024 (P.L. 116-83)
including international leadership; FAA workforce growth and
development; supporting U.S. technology and aviation; important
aviation safety, security, and technology rulemakings; and
modernization of the certification processes. The FAA is now in a
deeper hole for addressing these and meeting congressional direction
and intent.
The most significant impact of the 2025 government shutdown on
manufacturers is that no new certification projects were allowed to
start which impacted the pace of U.S. aerospace innovation and
completely halted new business activities. During the shutdown, the FAA
could not accept or facilitate work on any new applications for design
and production approvals. GAMA is privileged to represent companies
that continuously modernize and improve the existing aircraft fleet
through safety retrofits, avionics upgrades, improved systems
reliability fixes, and deployment of NTSB recommended safety
enhancements. In addition, these companies are investing in the
development of new future aircraft and technologies that could
transform aviation. But the government shutdown results in delays to
these projects. This significant backlog includes supplemental type
certificates and modifications to existing aircraft. For example, there
are many repair stations located in nearly every state which install
supplemental type certificates (STCs) for new safety enhancing and
other modern capabilities in aircraft. It is very common for customers
to have specific requests for modification to their aircraft such as a
different model of equipment, type of seat, or interior configuration
which requires a change to the previously approved STC. The FAA will be
unable to act upon all these new applications immediately and these
will likely impact certification activities for months to come.
FAA Aviation Safety workforce in aircraft certification and flight
standards recruiting and skills enhancement and training initiatives
were also severely impacted by the shutdown. As an organization that
has endured leadership changes and retirements, the opportunity to grow
and maintain technical expertise is critical and something that the
2024 FAA Reauthorization strongly encouraged. A significant concern
involves the approximately 600 engineers, pilots, inspectors, and
technical specialists that AVS was actively hiring when the shutdown
began. These candidates were left in limbo and may now decide not to
pursue Federal employment. It takes 6-12 months to train a new
certification engineer before they can just start to be productive. It
is a multi-year process to qualify a new flight test pilot. This
highlights the compounding effect of lost time and lost applicants. It
isn't a six-week disruption, it's a multi-year set back, particularly
for highly technical and unique skills such as structural loads,
software, hybrid propulsion, system safety, and flight test pilots.
For these highly technical safety positions, direct-hire authority
is one of the FAA's most effective tools for attracting, rebuilding and
sustaining the specialized technical talent pipeline and ensuring the
agency can meet its safety mission, support U.S. innovation, and uphold
global aviation leadership. The FAA competes directly with
manufacturers, technical firms, and global aerospace companies for the
same highly skilled professionals, and industry hires in days while the
traditional Federal hiring process can take months. Direct-hire
authority allows the FAA to recruit in weeks instead of losing top
candidates to faster-moving employers. Several of these direct-hire
authorities for engineers, pilots, and inspectors expire at the end of
this year so we recommend that this be extended or permanently
implemented for these highly specialized safety positions particularly
given the shutdown.
Additionally, the FAA was prevented from engaging in key aviation
safety and cooperation leadership discussions both domestically and
internationally. During the months of October and November, the FAA had
to cancel InfoShare, the premier annual aviation safety data exchange
conference, and was unable to fully participate in events at the
International Civil Aviation Organization, Annual Certification
Management Meetings with leading states of design, to advance aviation
safety bilateral cooperation.
This inactivity reduces U.S. global leadership in aviation and
misses opportunities to advance standards and implementation procedures
which facilitate efficient global acceptance of new aviation products
and technologies such as commercial aircraft, Advanced Air Mobility
powered-lift aircraft, and electric and hybrid propulsion systems.
Typically, strong engagement in these meetings provides opportunities
to engage and establish global standards, promote safety, and
facilitate industry growth. Because of the government shutdown, FAA
participation was cancelled or limited in nature, diminishing the
agency's leadership and standing with their peers. Competing
authorities continue moving forward while FAA is frozen, making the
U.S. appear unreliable as a certifying authority and, because of U.S.
absence at international aviation standards meetings, provide
opportunity for foreign States of Design to shape global rules.
Limitations on agency travel during the government shutdown have
also had strong impacts. There are certain certification testing
activities which require FAA involvement with technical experts that
are not available at local offices. For example, FAA flight testing is
a critical activity that requires specific pilot expertise which is
very limited and tightly scheduled but needed across all aircraft
manufacturers. The inability to conduct all needed safety functions
such as flight testing directly impacts critical FAA resources and has
created a backlog of activities that will continue to delay
manufacturer certification activities for several months. This adds
uncertainty and a lack of predictability in government and industry
planning and coordination and undermines the agency's ability to meet
commitments that slow down critical agency oversight and the work of
U.S. manufacturers.
FAA workforce availability is essential to effectively and
efficiently work through the backlog of activities that build up during
the shutdown and restoring U.S. aviation business activities and
competitiveness in product development, innovation, manufacturing, and
global exports. Given the amount of change and uncertainty for the
Federal workforce this year, further exacerbated by the six weeks of
shutdown, one of the greatest challenges and significant risk to
recovery is the backlog of the individual personal time off (PTO)
``use-or-lose'' annual leave benefit which must be used by January 10,
2026, or be forfeited. Consistent with what was implemented following
the 2018-2019 shutdown, we recommend that the Administration extend the
ability for Federal employees to use their earned PTO annual leave
benefit at least to the end of CY2026 so that the FAA does not face a
significant workforce shortage in November and December when they are
needed most for starting to make up for lost ground.
Another area where there are impacts is the FAA's regulatory and
rulemaking efforts. A contributing factor in delaying U.S. manufacturer
product development activities, preventing safety and innovation from
moving forward and benefitting the aviation system, has been
significant delays in the FAA's promulgation of rulemaking, policies,
and guidance. This has caused a large backlog of regulations, technical
standards, policy memos, orders, and advisory circulars which enable
new products and technologies and efficient certification processes.
Delays in promulgating modernization updates to airworthiness
standards impede industry's ability to implement safety improvements
and enhancements. This also causes significant regulatory and cost
burdens on both industry and FAA by requiring individual redundant and
inefficient processes for issue papers, special condition and exemption
rulemakings, increasing risk and unpredictability when these regulatory
materials are not adopted in a final format. Unfortunately, FAA
regulatory and rulemaking processes for new standards and technology
during the shutdown ceased, further compounding a situation that was
already challenging. The result is that efforts to improve
coordination, and yield support for safety, innovation, and
international leadership for the entire aviation sector were
effectively put on hold. This includes key congressionally directed
rulemaking efforts in the 2024 FAA Reauthorization Act. For example,
work halted on current priority rulemakings such as disclosure of
safety-critical information, cyber security, 5G radar altimeter safety,
and transport airplane and propulsion certification modernization, as
well as regulatory standards and materials to enable new technologies
such as unmanned aircraft system detect and avoid.
Along with their other significant oversight activities, the FAA
Flight Standards team has continued to provide oversight of our member
company pilot and maintenance training centers, recognizing these
industry operational capabilities as ``essential'' to support aviation
safety. However, all new activities such as the qualification of new
simulator equipment, course approvals, and new examiner designees were
put on hold. The FAA resources to perform this work are already scarce
and, based on the experience of the 2018-2019 shutdown, it may take six
to nine months to recover in this area, constraining the capacity to
maintain and train the pilot workforce.
Preventing Future Shutdowns
The extension of Federal funding until January 30, 2026, means that
it is imperative for Congress to act swiftly in passing a Fiscal Year
26 (FY26) Transportation, Housing and Urban Development (THUD)
Appropriations bill. While these proposed funding levels need to be
reconciled and a final bill needs to be considered and passed, this
legislation will make key investments in agency workforce staffing and
training, modernization efforts, and aviation safety. We strongly urge
policymakers to work to prioritize and complete a FY26 THUD Bill.
Missing the opportunity to do so will only compound the challenges that
the agency was already facing and have now mounted because of the
government shutdown.
In the past, Congress has acted to address problems that have
occurred at the FAA due to government shutdowns. For example, during a
government shutdown in 2013 the FAA Registry Office was subject to
closure, halting the registration and delivery of aircraft impacting
almost $2 billion in transactions\2\. The U.S. Congress addressed this
in the 2018 FAA Reauthorization (P.L 115-254) and deemed the office
essential. Even with this legislation, the FAA realized that additional
action needed to be taken to realize the full purpose of this
legislation and has acted during this shutdown to enable the issuance
of airworthiness certifications.
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\2\ GAMA Press Release--October 7, 2013
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For GAMA, and other industry leaders, it is critical that Congress
take action to prevent future shutdowns from hampering the critical
work of the FAA. Senator Jerry Moran (R-KS) has introduced S. 1045, the
Aviation Funding Stability Act of 2025, and similar legislation has
been introduced by Congressmen Steve Cohen (D-TN), Andre Carson (D-IN)
and Aaron Bean (R-FL) in the House. This legislation would enable the
FAA to draw from the Airport and Airways Trust Fund, funded by users of
the aviation system, to preserve the air traffic and safety operations
of the agency. GAMA strongly supports this legislation and is open to
working with all interested members on the best way to enact
legislation that would protect the FAA as an entity from future
shutdowns.
The 2025 Government Shutdown and Air Traffic Modernization Efforts
As we have seen, the 2025 government shutdown has led to air
traffic challenges across the U.S. We owe a great deal of gratitude to
FAA management and the controller and technician workforce in managing
these challenges. Despite those efforts, commercial, cargo, business,
and general aviation operations have all been reduced during the
shutdown to work to maintain aviation safety and address increased
risk.
In the wake of the accident at DCA, the aviation industry came
together to form the Modern Skies Coalition, and GAMA is a proud
Steering Committee member along with A4A and NATCA and many others.
This broad group of industry stakeholders, including airlines,
operators, manufacturers, labor unions, and airports have identified
the following priorities:
Robust funding for FAA to make critical ATC technology and
infrastructure investment and to strengthen controller and
technician staffing and training.
Direction to FAA to achieve prudent divestment from legacy
NAS elements and utilize existing procurement authority to
facilitate the effective deployment of state-of-the-art
technology.
Realignment and modernization of ATC facilities to improve
operational efficiencies and leverage technological
developments.
Exempting the FAA from government shutdowns to ensure more
predictable funding and support for continued safety and air
traffic control personnel hiring and training, and other
critical FAA personnel.
Continuation of general fund support for FAA operations and
consideration of additional flexibility within the Airport and
Airways Trust Fund to manage long-term facility and technology
upgrades.
Thanks to this Committee, Congress took a big step forward in the
One Big Beautiful Bill Act (P.L. 119-21), in terms of progress on air
traffic control investment. The law provided $12.5 billion as a
downpayment for ATC modernization efforts focused on the replacement of
FAA radar and information display systems, construction of a new air
traffic control center and realignment of existing facilities,
recapitalization of terminal radar approach control facilities, and
other safety and infrastructure investments.
While this is an important step, we know much work remains to
modernize the U.S. ATC system. Notably, Transportation Secretary Duffy
has repeatedly stated the cost of this effort is likely to be at least
$31.5 billion. Subsequent investment is likely to be focused on areas
like a common automation platform and investment in air traffic towers
and facilities. The shutdown was counterproductive to these
modernization efforts and the addressing of controller staffing issues.
Like the aviation safety and regulatory issues, we must all work to
regain momentum on these Modern Skies priorities. It is a national
imperative.
Conclusion
GAMA appreciates the opportunity to share these perspectives with
the members of the Senate Aviation, Space, and Innovation Subcommittee.
The aviation sector needs policymakers to work in a bicameral and
bipartisan fashion to provide stability to the agency and make critical
investments to advance safety and efficiency improvements for the
industry. We now have more to overcome but the U.S. is on the cusp of a
new dawn in aviation technology and innovation that will be considered
one day in line with other achievements like the Wright Brothers at
Kitty Hawk in 1903, and the moon landing in 1969.
It is our hope that these policy suggestions inform you and your
colleagues on ways to improve the strength and operation of the FAA
given its criticality in supporting aviation safety, air service to all
U.S. communities, and economic growth and competitiveness. Thank you
and we look forward to working with this Subcommittee on these critical
initiatives.
Senator Moran. Thank you, Mr. Viola. Mrs. Spickler, you're
now recognized for five minutes.
STATEMENT OF EILEEN SPICKLER, ADVOCATE
Mrs. Spickler. Thank you. Aviation Subcommittee Chair Moran
and Aviation Subcommittee Ranking Member Duckworth, thank you
for holding this hearing and for inviting me to be here today.
Senator Moran, it was really nice to meet you in the airport
yesterday. My name is Eileen Spickler, and I live in Ottawa,
Kansas with my husband, Barry, who is here with me today. We
moved to Kansas seven years ago from Gaithersburg, Maryland, to
be closer to Barry's kids and grandkids. Being here has been a
blessing and has allowed us to watch the grandchildren grow up.
I would like to sit here and tell you that we were affected
by the many airport delays and canceled flights that were
happening around the country. I have nothing but the utmost
respect for the hardworking TSA agents, air traffic
controllers, and others who worked overtime during the
shutdown. The truth is that Barry and I cannot afford to travel
right now. We would love to be able to visit friends and
family, but the cost of a flight is just completely
unfathomable to us right now. We are barely scraping by and
struggling to afford our basic needs, and our healthcare costs
keep going up each year. The only way we could be here today is
due to the support of Families USA, and I want to thank Senator
Duckworth's office for inviting us to share our story.
My husband, Barry, retired in--retired in June 2024 after
15 years of working as a government contractor for the Food and
Drug Administration and after nearly 50 years in the workforce.
Barry's retirement came earlier than we intended at age 63.
Because the budget for his FDA contract was cut as a remote
worker, Barry was marked for layoff because he could not report
in person to Maryland. That's when our financial troubles
really started, and it has been nearly impossible to keep our
head above water ever since.
Barry runs a guitar booth at a local antique store and
hosts weekly jam sessions for fellow musicians. He no longer
has employer-sponsored health insurance, so in June 2024, we
enrolled Barry in health insurance, joining the 200,000 Kansans
on the ACA marketplace. Since enrolling in ACA coverage, Barry
has undergone treatment for two kidney stones, one of them life
threatening, and received numerous MRIs, CT scans, and X-rays
that have all been covered by insurance. His plan is not
perfect, and the cost of co-pays, premiums, and prescriptions
have gone up each year, but the monthly payments have been
affordable enough with the tax credits, and it has allowed
Barry to get the care he needs. In 2025, we paid $109 a month,
and we received almost $1,200 per month in subsidies. If it
weren't for the premium tax credits, we would not have been
able to afford insurance for Barry at all, and, honestly, I
don't know where we'd be--or if we'd even be sitting here
before you. Access to affordable health insurance is life and
death for us.
In 2026, our plan is going up 125 percent, from $109 to
$246 a month. Because of this increase and with the tax credits
set to expire, we have decided not to enroll Barry in coverage
for next year, and he will go uninsured until March when he is
eligible for Medicare. At our age and with Barry's health
issues, I'm terrified that in these two months, we could be
faced with a health emergency we can't afford, and we'll end up
buried in a mountain of medical debt. For the first time in our
lives, we wait in line every other week at food pantries
because that's the only way to afford our groceries. Earlier
this week, the line in Ottawa was twice as long as it ever had
been with an almost 3-hour wait.
We are so grateful for the Affordable Care Act because it
has made it possible for us to survive on as little as we have
right now. We're about $100 a month over the poverty limit for
Medicaid because Kansas is 1 of 10 states that has not expanded
Medicaid. I am a cancer survivor, an aggressive cancer with a
high likelihood of a recurrence, and I'm still in treatment 9
years later. I receive disability benefits and Medicare. The
peace of mind of knowing that we both have affordable health
insurance is everything to me, but these last few weeks,
knowing we're facing a gap in Barry's insurance for next year
is terrifying for us both.
Our story is unique, but we are not alone. There are 22
million Americans that use the premium tax credits to help them
stay on health coverage. I am here fighting for my family and
for the millions more who know the struggle of fighting to
afford basic needs like healthcare. Healthcare is a human
right. Nobody should go without it, and what is the point of
having a healthcare plan if you can't afford to use it? I hope
you will remember my story and take immediate action because we
cannot afford to wait.
Thank you for your time and for the chance to tell my
story.
[The prepared statement of Mrs. Spickler follows:]
Prepared Statement of Eileen Spickler
Chair Cruz, Aviation Subcommittee Chair Moran, Ranking Member
Cantwell, and Aviation Subcommittee Ranking Member Duckworth, thank you
for holding this hearing and for inviting me to be here today.
My name is Eileen Spickler and I live in Ottawa, Kansas with my
husband, Barry, who is here with me today. We moved to Kansas seven
years ago from Gaithersburg, MD, to be closer to Barry's kids and
grandkids. Being there has been a blessing and has allowed us to watch
the grandchildren grow up. We also have three adorable, fluffy and
snuggly cats--Angie, Kimmie, and Lilly--whom we adore.
I would like to sit here and tell you that we were affected by the
many airport delays and cancelled flights that were happening around
the country. I have nothing but the utmost respect for the hardworking
TSA agents, air traffic controllers, and others who worked overtime
during the shutdown.
But the truth is that Barry and I cannot afford to travel right
now. We would love to be able to visit friends and family, but the cost
of a flight is just completely unfathomable to us right now.
We are barely scraping by and struggling to afford our basic needs,
and our health care costs keep going up each year. The only way we
could be here today is due to the support of Families USA, and I want
to thank Senator Duckworth's office for inviting us to share our story.
My husband Barry retired in June 2024 after 15 years working as a
government contractor for the Food and Drug Administration, and after
nearly 50 years in the workforce. Barry's retirement came earlier than
we intended, at age 63, because the budget for his FDA contract was
cut. As a remote worker, Barry was marked for layoff because he could
not report in person to Maryland.
That's when our financial troubles really started and it's been
nearly impossible to keep our head above water ever since. Barry now
runs a guitar booth at a local antique store and hosts weekly jam
sessions for fellow musicians. He no longer has employer-sponsored
health insurance, so in June 2024 we enrolled Barry in health
insurance, joining the 200,000 Kansans on the ACA marketplace.
Since enrolling in ACA coverage, Barry has undergone treatment for
two kidney stones, one of them life-threatening, and received numerous
MRIs, CT scans, and X-rays that have all been covered by insurance. His
plan isn't perfect, and the cost of co-pays, premiums and prescriptions
have gone up each year, but the monthly payments have been affordable
enough with the tax credits and it has allowed Barry to get the care he
needs.
In 2025, we paid $109 a month and we received almost $1,200 per
month in subsidies. If it weren't for the premium tax credits, we would
not have been able to afford insurance for Barry at all, and honestly,
I don't know where we'd be, or if we'd even be sitting here before you.
Access to affordable health insurance is life and death for us.
In 2026, our plan is going up 125 percent, from $109 to $246 per
month. Because of this increase, and with the tax credits set to
expire, we have decided not to enroll Barry in coverage for next year
and he will go uninsured until March when he is eligible for Medicare.
At our age and with Barry's health issues, I'm terrified that in those
two months, we could be faced with a health emergency we can't afford
and will end up buried under a mountain of medical debt.
For the first time in our lives, we wait in line every other week
at food pantries because that's the only way to afford our groceries.
Earlier this week, the line in Ottawa was twice as long as it had ever
been, with an almost 3 hour wait.
We are so grateful for the Affordable Care Act because it has made
it possible for us to survive on as little as we have right now. We are
about $100 over the poverty line limit for Medicaid because Kansas is
one of 10 states that has not expanded Medicaid. I am a cancer survivor
and receive disability benefits and Medicare. The peace of mind of
knowing we both have affordable health insurance is everything to me,
but these last few weeks, knowing we're facing a gap in Barry's
insurance for next year, is terrifying for us both.
Our story is unique, but we are not alone. There are 22 million
Americans, and nearly 200,000 Kansans, that use the premium tax credits
to help them stay on health coverage. I am here fighting for my family
and for the millions more who know the struggle of fighting to afford
basic needs like health care. Health care is a human right. Nobody
should go without it, and what's the point of having a health care plan
if you can't afford to use it? I hope you will remember my story and
take immediate action, because we cannot afford to wait.
Thank you for your time.
Senator Moran. Thank you for telling your story, and it
is--it is planted in your Senator's mind. Thank you.
Mrs. Spickler. Thank you.
Senator Moran. Let me see where to start with my
questioning. Let's start with you, Mr. Sununu. Many Kansans
will travel for the holiday. What do the airlines expect to be
the circumstances those Kansans and Americans will face?
Mr. Sununu. As we go into the holiday, it's going to be
full. It's going to be packed. The airlines are ready, the air
traffic controllers are back, the skies are safe, so that's the
great news. We want everyone to feel confident, first and
foremost, about booking travel, but it'll be near record
numbers, which is great. Looking into the Christmas season,
we're hoping that those bookings pick up a little bit. I think
some of the stories in October and some of the--just the
politics around what was happening at the airlines scared a few
people off, so we want them to know more than anything that,
while it is going to be busy, the airlines and the system is
ready, and it's more affordable than ever before, right? It's a
better customer experience than ever before, more affordable
domestically than ever before, more reliable now that we're out
of the shutdown, and as an industry, we're looking to that end-
of-January mark. That's the thing that scares us the most, but
right now, we feel very confident about where things are and
where they should be through the holidays.
Senator Moran. Mr. Daniels, what can we expect in the air
traffic control world?
Mr. Daniels. Well, one of the things that I think this
shutdown showed time and time again is the unfortunate reality
of where the air traffic controllers--the air traffic control
system is, which is we operate with less--or 25 percent less
than the required essential employees. We operate with 10,800
certified professional controllers where there should be
14,633. Any profession that had a 25-percent reduction in their
essential workers would be screaming for help, but yet these
men and women every day shoulder the responsibility and burden
of moving the most planes in the history of the world,
especially through this shutdown and seven weeks of
uncertainty. So, we'll do what we do every day: we'll show up,
we'll keep America safe, we'll keep the skies moving, and we're
looking forward to getting back on track to the long-term
commitment to hiring and training of the next-generation
controllers, and fixing the equipment that is antiquated and
needs to be done.
Senator Moran. Mr. Daniels, you highlighted this
subcommittee's and the full committee, and actually the
Congress' efforts to engage and further employ air traffic
controllers. Part of that involves training, as you mentioned,
in Oklahoma City. What's the circumstances in the Academy in
Oklahoma City with students who still--who want to be air
traffic controllers? The Academy did not close during the
shutdown, as I understand it, but were the number--were
students there, and is there a line still waiting to become air
traffic controllers?
Mr. Daniels. There is still a line waiting. NACA absolutely
commends Secretary Duffy, Administrator Bedford for finding a
way to keep the Oklahoma City Academy open for our first time
in history. It's also important to note that air traffic
controllers not only took on the added stress and pressure, the
fatigue that comes with the shutdown, the uncertainty, but they
were also training the entire shutdown. But for our first time
in history, we saw people start resigning out of the Academy
saying, you know what? I can't afford to pass the Oklahoma City
academy, move hundreds, if not thousands, of miles to one of
the most high cost-of-living areas in America, which are near
our major airports, to pick up a career in a profession that's
not going to pay me and I have no idea when, and they started
to resign. And not only their resignations, but also
controllers in mid-career started resigning, saying, enough's
enough. I have to go find a job that has more stability than
this.
Senator Moran. Mr. Viola, you probably represent the
opportunity to talk about an area that's not necessarily
thought about during the circumstances we've been through, and
that's the certification process by which we advance aviation's
technology and capabilities and we build and produce more
airplanes to fill the fleet. Tell us in your words what it is
that was not occurring during the shutdown that matters to the
safety and well-being of the flying public, as well as what it
means to our ability to compete in the global economy?
Mr. Viola. So, as you know, new technologies are certified
to get onto aircraft, the ability to get those new projects
into the FAA to start that process to get them on board the
aircraft, so the modernization of aircraft would be one thing.
And then the fact that everything just kind of shifts and the
rescheduling of the activities with the FAA to do those new
projects, the new technology basis to be a leader in the
aviation community.
Senator Moran. Thank you. Senator Duckworth.
Senator Duckworth. Thank you, Mr. Chairman. Mr. Daniels,
you noted that for the first time in history, and you just said
you commend Secretary Duffy and FAA Administrator for finding a
way to keep the Air Traffic Controller Academy open and keep
training. In your conversations with them during the shutdown,
did you ask them to find a way to also pay air traffic
controllers since they found a way to keep the Academy going?
Mr. Viola. I did not specifically have that request of them
during it, but it was loud and clear that paying air traffic
controllers is essential.
Senator Duckworth. So, it was--you commend them for keeping
the academies going, but you don't--you didn't actually ask
them to pay the air traffic controllers. I mean, if DOD and if
FAA can continue hiring and training air traffic controllers
because of failing to do so with risk to imminent loss of life
or loss of personal property, surely there's a case to be made
for paying air traffic controllers from reprogrammed funds or
even donations from industry. I mean, if DOD can use funds that
Congress authorizes and appropriate for R&D and not salaries
and expenses, along with accepting a billionaire's donation of
over $100 million to pay military men and women, what stops FAA
from following suit and reprogramming funds from accounts like
the Airport and Airways Trust Fund to pay air traffic
controller salaries and--or solicit donations from industry?
Did you have a conversation about using those funds to pay the
air traffic controllers, which I would've supported?
Mr. Viola. I did not have a specific conversation as what
you're referencing, but I'll put my request on record, from now
on, in the future. I welcome any chance to pay air traffic
controllers for the work that they're doing, and they should
never go uncompensated for the work that's being done or used
as a political pawn in this--in a political dispute.
Senator Duckworth. Right. I think that's what's happening
today, is that you're being used as a political pawn. When this
hearing was advised, it was called the ``Damage of the
Democratic Shutdown.'' I have been the strongest supporter of
air traffic controllers. I think you should have been paid. I
think that we should have called up Senator Moran's bill with
Senator Cruz's bill. We could have passed it, and you should
have been paid. It is unconscionable that we had at least one
death by suicide that I heard of an air traffic controller in
the shutdown. This is not acceptable in our Nation, but what is
happening today is political theater to use you guys as pawns
to score points post-shutdown.
I would rather we be talking about what we need to do to
get, for example, Mr. Sununu, the data that Secretary Duffy
talked about that was forthcoming for why he wanted to--why we
needed to do the slowdowns. I think we all would like to see
that data. None of us have seen it. I think we should be
talking about passing these pieces of legislation in a
bipartisan way. We should not be scoring political points, but
we are here now. So, since we are here, I'm going to talk about
why we had a shutdown in the first place, which is healthcare.
Let me just ask my--our witness, Mrs. Spickler, as a cancer
survivor yourself, how do you feel about Republican proposals
that would revive high-risk pools and largely seek to promote
schemes that lower health insurance premiums by giving young
and healthy Americans junk plans in exchange for permission to
screw over Americans with preexisting conditions, disabilities,
and other serious medical conditions?
Mrs. Spickler. Thank you, Senator Duckworth. I remember
what it was like before the ACA was passed, and it was
horrible. When I was in my 30s, I went twice without health
insurance. I could not afford it. I was getting medication from
Canada until the whole donut hole thing started, which--
anyways, yes, and I don't agree with it because I lived it.
This is my lived experience, and I don't want to be a political
pawn either. What I am dealing with is just as important as air
safety, and so I don't understand why it has to be so bipolar.
Why can't it be both/and instead of either/or? They are equally
important. They both need to be addressed, and stealing money
from one to pay billionaires is not fair. That is--none of this
is fair, and I don't even know if I'm going off topic or not,
but I would----
Senator Duckworth. No, you're very much on topic.
Mrs. Spickler. I did not--I could not--I had preexisting
conditions, and I could not qualify for any kind of affordable
plan. It was like $1,200, and that was 30 years ago, a month.
Senator Duckworth. You're right. We should not be pitting
air traffic controllers against healthcare affordability for
Americans, and that's not the purpose of this committee. The
purpose of this committee is air--and the Subcommittee is air
traffic safety, and that's what we should be focused on, so
let's stop with the games. We can focus on what we need to do
to move forward, but let's remember how we got here, but also
remember who championed you----
Mrs. Spickler. Yes.
Senator Duckworth.--during the FAA reauthorization. I did.
I was the biggest supporter of air traffic controllers, and to
come in here and act like you don't remember any of that is
offensive to me. I yield back.
Senator Moran. Senator Kim.
STATEMENT OF HON. ANDY KIM,
U.S. SENATOR FROM NEW JERSEY
Senator Kim. Thank you, Chairman. Mr. Daniels, thank you
for your testimony and what you shared in terms of the
struggles and the challenges that air traffic controllers and
others faced. I had the chance to talk on the phone with some
air traffic controllers from New Jersey and--during the
shutdown, and I'll tell you, you know, they were--they were
telling me just, you know, that they felt like they were pawns,
is the words that they said. They felt like they were taken for
granted. It was really hard hearing just the emotion in their
voice, and I'll be honest with you, they were livid at what
they were seeing in terms of Capitol Hill. I mean, they were
straight up telling me that why do they have to show up to work
and not get paid when, frankly, the House of Representatives
wasn't even in session for the entirety of the shutdown and
Members of Congress are getting paid. And one thing that I kept
hearing was this idea of feeling that, you know, Members of
Congress, the President are getting paid, that we're playing
with other people's chips, that we don't feel it ourselves, and
this is something I felt very personally, too.
I was a career civil servant in the Federal Government. I
worked through shutdowns before without getting paid, and I
know what it's like to just feel like those that are on Capitol
Hill don't care about what's happening to us. This is just a
low political game for them, and that's why, you know, I always
refuse to take my salary during shutdowns while I've been up
here on the Hill, a small token of symbolism here, but one that
I think is important. You said something that stuck out to me,
and I appreciated it. You said, ``No American should work
without a paycheck,'' right, in your testimony?
Mr. Daniels. Yes, sir, I did.
Senator Kim. Yes. So, look, I certainly agree with the
others in this room that we should make sure that our air
traffic controllers are continuing to get paid no matter what
the circumstances are. But can I take from that comment of
yours that you would support legislation that would ensure that
all government employees can continue to get their paycheck
regardless of the circumstances?
Mr. Daniels. Thank you, Senator, for your question.
Absolutely. Air traffic controllers and all Federal employees
deserve to be paid.
Senator Kim. I think that's really important as we're
talking this through, and, certainly, I understand the strains
that air traffic controllers are facing. When I was an officer
at the State Department, I know I had colleagues working in
harm's way in Afghanistan and elsewhere that were not getting
their paychecks, and it's just about duty. I mean, like, no one
would tolerate a private company forcing workers to show up for
work and saying you'll get your paycheck maybe some other time,
and I think that that's something that I just hope we can keep
in mind here.
Mr. Daniels, you also talked about how there has been a
call for a long time for increased controller staffing. This is
something I just hear year after year, I mean, and the
challenges that we continue to face, and the shutdown certainly
exposes that fragility. But we always--we saw in New Jersey as
well that--some of the problems that we had with the radar
scopes and other things earlier this year were causing
challenges when it came to staffing because of just the
difficulty and the strain that people were in, whether at the
Philly TRACON or elsewhere.
So, I guess I just wanted to just hear from you, how do we
try to build up and close that delta that you were talking
about in terms of the staffing shortages? I know there are a
number of ideas that have been out there, but can you really
try to help us kind of articulate for the American people what
are the things that we need to do to stop kicking the can down
the road and actually be able to take steps to be able to build
up the kind of resilience that we need when it comes to our air
traffic controllers?
Mr. Daniels. I appreciate the question, Senator Kim, and
for the support of air traffic controllers and the
modernization of air traffic. But when it specifically comes to
the training of air traffic controllers, we often look for some
quick fix when the real solution and the real answer is a long-
term commitment to the hiring and training of the next
generation air traffic controllers. And we're absolutely not
taking a side, and we absolutely thank Senator Duckworth, the
leadership of this committee for ensuring that that language
prevails, and that that's what the standard is held today is
that long-term commitment, and not trying to find another way
around it. But it's also going to come from ensuring that we
have the training, tools, and resources, which is also, again,
in the FAA reauthorization bill, of the different simulators
that reduces training time by up to 27 percent for our
facilities. So, it's having that investment. The money's there.
Now we actually have to be able to use it, and the government
shutdown absolutely stopped and stalled that, but now we can
get back on track.
Senator Kim. Yes, though, I mean, look, I--one thing I keep
hearing over and over again in terms of the challenges of
recruitment is about instability, and like I said, you know,
I've experienced this firsthand when I was a civil servant. I
was working there at the State Department in the Pentagon
during the 2013 sequestration fight, you know, watching how the
Republicans at that time were pushing these budget cuts and how
that had years' worth of ramifications, so I'd just share that.
Mrs. Spickler, I don't have time to be--to ask a question,
but I just wanted to say thank you for coming and sharing your
story. It is a story, unfortunately, that I heard echoes of,
exactly the same, across New Jersey. I will promise you, I will
keep fighting for you, your family, for all of these families.
Even though, you know, the shutdown's over, we know that the
struggles that you and others are facing continue, so we're
going to continue to get to work there. Thank you, and with
that, I'll yield back.
Senator Moran. Thank you. Senator Capito.
STATEMENT OF HON. SHELLEY MOORE CAPITO,
U.S. SENATOR FROM WEST VIRGINIA
Senator Capito. Senator Breathless Capito over here. Thank
you for being here, and I think really the last, I know
they've--the last 6 or 7 weeks have been extremely miserable
for you and the American public, and it's been miserable up
here at the U.S. Senate, too. So, I don't know if that's any
consolation, but it certainly is.
Let me ask you something that I think happens when things
like this happen, which are obviously rare, but certainly air
service in rural areas is so challenged. Service has been cut.
I'll just say your flights are going out at 5 in the morning or
coming in at 11 at night. And so, the fear, I think, is, as we
head toward--when we look at shortages of air traffic
controllers and other stresses and strains, I mean, how do you
view this--I guess, Mr. Daniels, this would be for you. How do
you view this from the air traffic control perspective in
something like a shutdown or something where there's a slowdown
in the economy? Where do you see the differences, the impacts
between urban and rural America in terms of air service and
availabilities, and how do you all--how do your people look at
that, your air traffic controllers?
Mr. Daniels. Well, first, thank you for the question,
Senator. The impact of the shutdown does one of many things.
The disruption, the stress, the fatigue, the absolute
uncertainty that it brings air traffic controllers to not be
100 percent focused on the job where they have to be perfect--
they have to be 100 percent 100 percent of the time--that
increases risk in our system and something that we continuously
advocate for, and why we support Senator Moran's bill, Senator
Cruz's bill to ensure that we're not part of these shutdowns in
the future. But also, as far as the difference in markets, what
you're getting to see is what we deal with every single day,
and that's operate a system with less than 25 percent of its
essential workforce, 3,800 certified controllers short, and on
any given day, one absence, one person not being able to make
it, additional stress and additional fatigue, absolutely
impacts America in the flying public.
Senator Capito. Well, that kind of leads me to--thank you
for that--my second question, and, Governor, it's nice to see
you. Essential air service is what we rely on, not in all of
our airports, but certainly several of them. Where do you see
the--because we do rely so much on it, how important is that to
your membership, Governor----
Mr. Sununu. That's huge, yes.
Senator Capito.--for essential air service?
Mr. Sununu. Sorry. No, it----
Senator Capito. Can you talk about that during the shutdown
and how that had been impacted?
Mr. Sununu. Sure. So, the regional hub service, the system
that we have with major carriers having hubs and then the
regionals kind of pouring into there, as Mr. Daniels
identified, some of the issues are around workforce, right? You
want--you got to have the workforce, whether it's in the towers
or the pilots or the training programs in those rural areas to
support that. The aircraft themselves, they tend to be a little
bit smaller. You got to make sure that there's investment in
the technologies there. You know, as was identified, one of the
biggest impacts of the shutdown were things weren't getting
certified. Equipment and technologies weren't getting
certified, and so that's critical. You don't want to leave
those regional and those rural areas behind.
I can say that when it did come to the area of
cancellations, you know, that was a tough conversation. You
know, we're always talking to the FAA. We have a great
collaboration and a great working relationship with them. When
it came to some of those preliminary--looking preliminarily at
what these cancellations would mean, to their credit, the FAA
said, look, you can't just--we're not just shutting down rural
areas because they're a little less, you know, not----
Senator Capito. Profitable.
Mr. Sununu.--highlights, if you will. So, they really took
care to make sure and understanding that while these impacts
were going to be big across the country, they had to be evenly
distributed. It couldn't just be the main--you know, the main
lines get to be maintained and the regionals get hit.
Senator Capito. Mm-hmm. Mm-hmm.
Mr. Sununu. So, the shutdown was tough, but I think
everyone tried to make every effort to make sure that where
pullback had to happen, it happened at--happened evenly with an
understanding that rural areas always kind of are the--are the
first ones to get hit, and they wanted to be cognizant of that.
Senator Capito. OK. Let me just throw this up to whoever
wants to answer, one thing I was sort of wondering about. You
know, we put--we put a lot of money into modernizing the air
traffic control, the technologies behind it. I mean, we're way
behind on this, but we did put a lot of money in the One Big
Beautiful Bill to get a good head start on that. Do you think
this testimony or the impacts on our air service and our
aviation systems, if we had that system fully operational, the
new system that we want, would there be any difference in the
conversation we're having today? And I guess Mr.--I can't see
him.
Mr. Daniels. I'll take the first stab at it, Senator, yes.
Senator Capito. Mr. Daniels, why don't you take that? Yes.
Mr. Daniels. Thank you very much. I think the number one
impact you see is the backbone of that system is the
hardworking men and women, the true American patriots that do
that.
Senator Capito. I get that. I get that.
Mr. Daniels. And yes, we would absolutely see a difference
because if we had a full workforce with modernized equipment,
we would not see near as many disruptions and delays.
Senator Capito. OK. So, question being is--does that system
work without a full--a full amount of people working on it?
Mr. Daniels. No.
Senator Capito. No.
Mr. Daniels. No system will overcome the hardworking men
and women.
Senator Capito. OK. Good. Thank you. Thank you very much.
Oh, did you want to say something?
Mr. Sununu. No, I would--no, I would just add that it's all
about efficiency, allowing those technologies, the speed at
which controllers could potentially get trained, the ubiquitous
nature where one tower doesn't have one set--one system----
Senator Capito. Yes.
Mr. Sununu.--and another tower has another system. It would
allow, you know, folks to move around in an emergency
situation, so that first $12 billion is great. The next $19
billion is critical, and the technologies you're going to see
in this country are absolutely amazing and going to make the
whole system work, not for the air--just the airlines, work for
350 million Americans that rely on it and all the air traffic
controllers that are completely strained by it.
Senator Capito. Yes, and I would add, really, the world
because people are flying here and around here all the time.
Thank you very much, Mr. Chair.
Senator Moran. Senator Capito, thank you. I'd highlight for
our committee members and maybe the audience that we are
working to have a hearing in November that involves the
Secretary of Transportation and/or the FAA Administrator to
talk about the amount of money that's been made available, the
amount of--lack of money that's been available, and to see
where we are in the modernization effort. And we hope--we
were--we were unsuccessful during the shutdown to get the
Federal employee witnesses to be here and were postponing--had
postponed that hearing and hoping it occurs in November.
Senator Sheehy.
STATEMENT OF HON. TIM SHEEHY,
U.S. SENATOR FROM MONTANA
Senator Sheehy. Thanks for being here, everyone. You know,
we all are focused on the airlines, generally, ATC slowdowns
and airline delays, and how that derives, you know,
economically from that. But I think another piece of these--of
the manning shortage that came from the shutdown but also were
impacted writ large is our FAA oversight, PMOs, DPEs, folks who
work within the FAA structure that allow small operators, like
135 operators, 137, 133, the folks who are doing organ
transportation, who are doing air ambulance, medical
evacuation, who are crop dusting, who are doing aviation
maintenance in a Part 145 repair station. They require access
to their FAA oversight bodies and their local FISDOs and ACOs
to continue operating for pilot checks, for maintenance
inspections. And when that oversight is not available, either
those companies are operating under an extended period of a
waiver, or they're just not getting the oversight and safety
inspection that is required by law. So, I'd be curious as to
your thoughts on that and what you're hearing from operators,
either as manufacturers, Mr. Viola, or smaller 135/137
operators in the field?
Mr. Viola. Well, thank you for that question, and I'll take
the first run at it. Well, certainly the oversight of the
designated pilot examiners as well as the DARs out there that
are trying to get new certification or STCs that's out there
delayed some of that, getting to the field. And then, you know,
with the FISDOs having to, you know, try to figure out what it
was they can do, what it was that was important to get back
from the leadership, and getting that out to an employee has
been difficult. The challenges of the workforce, it fits back
into the workforce of the FAA and not having that stable
funding and not having to know--you know, what is going on with
the training in other areas. So, that's why we certainly
support any action that will pay the FAA during any of these
government shutdowns so that we can keep that oversight going,
so we can keep the momentum going. And as was mentioned, you
know, the modernization that we're trying to do with $12-and-a-
half-million--billion dollars now, we still look forward to
trying to get that whole system in place with the additional
$30 billion so that everything that we do here in the United
States can operate more effectively and efficiently for the
taxpayers.
Senator Sheehy. Anything to add?
Mr. Sununu. The only thing I would add is, you know, when
we were talking about the aspects of what happened during the
shutdown, when we talk about whether it's the cancellations or
the delays, to your point, I think very importantly, the new
way of healthcare in this country is everything from using
broadband and telehealth, to getting your pharmaceuticals
shipped to you, to getting your home healthcare, your home
dialysis, whatever it might be. So, when we see pullback, that
happens to our cargo carriers that we represent, the FedExs,
the UPSes, the Atlas, that means that those delays happen. And
as a lot of folks know, just a day or two delay on things that
have to be overnighted for healthcare in the home, it's not
just out of the hospital anymore. When you--these things have
huge effects on how healthcare is delivered nowadays, and just
an important aspect that it wasn't just the passengers that
were affected. The carriers that are, you know, delivering
organs, delivering people to vital healthcare, you know,
hospital to hospital, but also that every day use, UPS, they
all had to pull back to those same levels, and it hurt. It
caused a lot of delays everywhere.
Senator Sheehy. Well, and there has already been a
challenged infrastructure with regard to the aviation
employment sphere. I mean, we can't get enough pilots,
mechanics, controllers. This is pre-shutdown. This has nothing
to do with shutdown. We've already had a challenge in making
sure we have appropriate manning, both in the FAA as an Agency,
but also across the board and in the private industry. And then
when something like this happens and kind of throwing fuel on
the fire, especially in rural areas with Central Air Service
access, and where we have towers that are at half manning
across a lot of the mountain West as those towns are growing so
fast and air travel's growing there. So, thank you for your
comments. I appreciate your time today. Thank you, Mr. Chair.
Senator Moran. Senator Sheehy, thank you. We're pleased to
have the Ranking Member of the Full Committee, Senator----
STATEMENT OF HON. MARIA CANTWELL,
U.S. SENATOR FROM WASHINGTON
Senator Cantwell. Thank you.
Senator Moran. I started to say ``Capito.'' Senator
Cantwell.
[Laughter.]
Senator Cantwell. Thank you, Mr. Chairman, and thank you
and to the Ranking Member for holding this important hearing,
and for our witnesses being here. We have obviously made air
traffic control staffing a major priority in the last Aviation
bill, and we are continuing to make it a major priority. I want
an FAA who does slow down traffic when they think it's
necessary, as exhibited by the very unfortunate tragedy that we
had at DCA, so I hope that we'll continue to close safety gaps,
and I hope we will continue to invigorate air traffic
controllers.
I think the question that we have, maybe for you, Mr.
Sununu or Mr. Daniels, last year when we required the FAA to
set a maximum hiring target through Fiscal Year 2028 to
maximize training capacity for controllers, it would require
the FAA to do this for 5 years through 2033. Do you support and
agree that we must ensure that FAA continues its maximum
control or hiring for at least the next 10 consecutive years,
and that the FAA is then in a better position to offset
retirements? So, either Mr. Daniels first and then Mr. Sununu?
Mr. Daniels. First, great to see you, Senator, and thank
you for the support, especially when it comes to FAA
reauthorization and the SAFE Act in the shared airspace. We
would truly appreciate that. As far as it goes, yes, it
absolutely needs to be the long-term commitment to the hiring
and training of the next generation of air traffic controllers.
And that 10 years is critical for us to not only modernize the
system, but ensure that air traffic controllers have a full
staffing complement to take on the next generation of aviation,
which is going to be through autonomous vehicles, drones, and
otherwise. And that's going to be a new challenge that presents
itself, but this workforce will be ready enough for it as long
as the commitment stays there to ensure that they have all the
bodies that are needed.
Senator Cantwell. Thank you. Mr. Sununu?
Mr. Sununu. And I would just 100 percent, I mean, and
making sure that they're funded and paid, that should be the
low bar. I think making sure that you don't disincentivize
people from coming into the industry, as Mr. Daniel was
highlighting earlier, not just when seeing folks walk away from
the academy during the shutdown. How do you go into a high
school and encourage a--someone who's about to graduate to get
excited about aviation, get excited about the industry, when
the headline every single day is you don't get paid. So, I
think the concern is not just did we see negative effects over
the last 6 weeks, but that is going to have, unfortunately,
negative reverberations unless we jump on top of the messaging,
we ensure the American public that not just, you know, the
appropriation bill that we're looking at moves forward, but
Senator Moran's bill is real, everyone gets behind it, we make
sure that this just cannot happen again because otherwise, the
uncertainty added to the system could be really detrimental for
years to come.
Senator Cantwell. I have two more questions for you. So,
one, did you--did the airlines comply with what the Secretary
requested?
Mr. Sununu. Oh, yes. Look, the airlines made every good-
faith effort. In the--in the early--in those first days--
Friday, Saturday, Sunday--I think they had to meet a 4-percent
cancellation. I think on Sunday we were over 10----
Senator Cantwell. Well, do you think----
Mr. Sununu.--because it was such a logistics nightmare.
Senator Cantwell. Well, do you think there's data that
shows that--there's data that shows that?
Mr. Sununu. Yes, there were over 10 percent. I think--I
mean, I can pick individual--OK. I think Delta at one point hit
16 percent the following Monday, something like that, and what
they realized is, you know what? If the--if they had to hit,
let's say, 4 or 6 percent--I think Monday it hit 6 percent--
they realized, OK, we're going to plan for a few percent below
that. Why? Because it could be a maintenance issue or a weather
issue, just the natural other cancellations. They had to----
Senator Cantwell. Yes.
Mr. Sununu.--they realized they had to kind of build into
the calculus so they didn't over cancel. And then as the--if I
may, as the week went on, it wasn't just we'll take that one
flight down. Well, when you take the flight from Boston to
Washington down, that means that Washington to Kansas City,
Kansas City to LA, and LA back to Chicago flights can't happen
either. So, moving the assets around, consolidating those
customers and the crews because there are laws and regulations
and protections around those crews. A crew from a 737 can't
jump on a 787. The flight crew from that flight can't just jump
on that one because they need a break. They need----
Senator Cantwell. Yes.
Mr. Sununu. So, it got very complex.
Senator Cantwell. Yes, it's very complex, but I am--I am
interested in some analysis of this and some information
because I'm--I think we might've also found some optimization
of the system, and I do think that we push sometimes to get
maximum, like the DCA. I'm sure we'll hear from NTSB in January
about the flow of traffic into DCA the night of the crash, and
was there too much flow in and should it have been slower, and
then the warning bells that, basically, air traffic controllers
had said went off for months and months and months unheeded
because there was too much going on. So, I'm--I am curious if
we ended up actually having, like, optimization. Like, if we
had more on-time flight arrivals because we weren't pushing it.
We were actually--the system can be optimized at a certain
level of service delivery. Now, that isn't--that isn't a
moneymaker for--that isn't, like, maximizing profits to the nth
degree, but there probably is a system that is calibrated in
the right way to make sure that you have more on-time
performance and certainly on the safety side.
I want to ask you about--you guys, A4A, and I know you're
new at this and we welcome you in that capacity. We are
encouraged by the Department of Transportation reviewing
unnecessary burden regulations exceeding their authority. I'm
talking about this issue of our authority directed to DOT to
take care of secondary rules--secondary costs on hotels and
meals.
Mr. Sununu. Yes.
Senator Cantwell. What happened is the Southwest meltdown
left my constituents--the Rainier Beach basketball team, Coach
Bethea, and his wife had to pay thousands of dollars of out-of-
pocket expenses. You remember the meltdown that winter, and
they were stuck in Las Vegas, had to pay all these out-of-
pocket expenses, so we said let's not have this happen again,
and let's come up with rules for secondary cost in these
situations. And so, I think the administration is trying to
scrap that consumer product rule. I'm saying that's a bad idea.
You need to do it, and--but it seems like A4A is cheerleading
them.
Mr. Sununu. Yes. So, if we're talking about the--two
things. Number one, I do want to address your--is there a
system that where everything can be optimized. There absolutely
is, and it costs $31.5 billion, and we appreciate the first
$12-and-a-half billion. The technologies with that next $19
billion are going to be absolutely phenomenal. You're talking
about efficiency, more Americans traveling safer. It'll be
amazing, and so I think everyone appreciates that.
On the deregulation aspects, yes, there's no doubt some
regulations have come into play in the last 4 years or so, kind
of prior to 2025, that, frankly, didn't make any sense, not for
the industry, but even for the consumer. They were punitive.
They would've raised costs on the consumer. There were
instances where the industry was going to have to pay tens of
thousands dollars for act-of-God type situations. And we simply
said, look, every law and every rule that's on the books, we
always comply to on the consumer protection side. We never
overlooked that.
Senator Cantwell. But do you--do you want--did you want
this rolled back is what I'm asking. Are you asking--this rule
that came into effect. We wrote it. We all wrote it here and
said, put this in the bill that--have the administration think
of these secondary costs----
Mr. Sununu. Mm-hmm.
Senator Cantwell.--and have a rulemaking on it because it
is complex. I mean, what happened was far more than just a
winter meltdown. Some airlines were better prepared to address
the concerns of constituents and give them information about
when they might be able to get on a flight and how they might
be able to get home, and then other airlines were very ill
prepared because they never invested in the technology.
Mr. Sununu. Yes.
Senator Cantwell. And that was the frustration, so.
Mr. Sununu. So, I would simply say--yes, so I think the
concern is having those rules in place is very important.
Making sure we're not creating one-size-fits-all structures
based on that one winter storm, which was devastating. As you
pointed out, some airlines did it very well. Some airlines
didn't. There was a lot of complexity in it. We just want to
make sure that the rules are there and they're--they fit the
need----
Senator Cantwell. Yes.
Mr. Sununu.--of the moment, and they're not so broad based
that they crush the consumer with higher costs.
Senator Cantwell. If I could, Mr. Chairman, one more.
Senator Moran. Senator Cantwell.
Senator Cantwell. I don't see any of my colleagues waiting
in line here on either side, so thank you. We have a bunch of
people here with us today, and we've tried to deal with this
issue two or three times, and it's really frustrating. The
people who are ramp workers at airports clean our planes, they
help with the security of the system, they are part of the
aviation system, we tried during COVID to help them and met
with huge opposition, even though we worked very hard in about
25 days to come up with a plan to help the airline industry
survive during COVID. We tried in the last FAA authorization
bill to also resolve the issue, and the issue is these people,
they're not falling through the cracks when it comes to
cleaning the planes and servicing our airports, and taking
people in wheelchairs and getting them to locations. They're
not falling. They're doing their job, but everybody acts like
they are an island where they just appeared somewhere. They're
not. They're part of this ecosystem. They are part of the
aviation ecosystem, and they deserve to have healthcare. I do
not want them coming on a plane sick. The whole point of
getting on the plane and trying to make it not an unhealthy
environment, why do you want the plane cleaned by people who
are sick?
So, will you commit to work with me to find a solution to
resolve this issue and help us get some compensation for the
healthcare workers? Only people at the airport. Everybody
else--flight attendants, stewards, people who work in the
coffee shop--everybody else in this entire system has
healthcare but these people. And everybody dodges it because
they think that it's not their problem, but they are part of
the delivery system and they deserve healthcare. Will you work
with me on this?
Mr. Sununu. Yes. Look, in terms of the healthcare issue,
obviously it's a giant issue, and it just doesn't affect the
airline industry. It affects 350 million Americans, of course.
So, but I'm here to--I'm not--I'm here to represent the
airlines and making sure that the airlines are safe, they're
moving on time, that we're----
Senator Cantwell. The air----
Mr. Sununu.--we don't get caught in the political side of
things, and not the airlines, that the American public doesn't
get caught on the political side of things, but those
discussions have to happen. Those solutions have to be brought
to bear on the healthcare section.
Senator Cantwell. It's not--it's not the political side.
They are part of the--a plane can't just come and land without
somebody cleaning it, OK?
Mr. Sununu. Sure.
Senator Cantwell. The airport and that sector work together
to try to have the security team, the cleaning team, the
maintenance team, everybody have a robust system. So, I think
what happens here is everybody points the finger to somebody
else that, oh, they're our contract workers--so they're our
contract workers, so we don't have to provide healthcare, and--
--
Mr. Sununu. Well, I would say, if I may, for those workers
with--they obviously don't work directly for the airlines per
se, but if they're our contractors or they----
Senator Cantwell. They work--they are contracted--they are
contracted through airlines.
Mr. Sununu. And----
Senator Cantwell. So, that's the issue, and then the
contractors don't deliver the care, don't deliver access.
Mr. Sununu. Yes, and I would look to their unions as well.
I mean, a lot of them are represented by unions, and I would
imagine that they need to make sure that they're incorporating
that. But yes, we'll--look, we're part of the big ecosystem,
and we know we're the big dog, so.
Senator Cantwell. So, you will work with me?
Mr. Sununu. Absolutely, yes.
Senator Cantwell. Thank you. That's what I wanted to hear.
Thank you. Thank you, Mr. Chairman.
Senator Moran. Senator Duckworth, anything further? I have
a couple of questions.
Senator Duckworth. Well, if you're going to do a second
round, I'll do some as well.
Senator Moran. If you want to, you can.
Senator Duckworth. OK.
Senator Moran. Please.
Senator Duckworth. Thank you.
Senator Moran. You go, and I'll wrap up.
Senator Duckworth. OK. Thank you. Thank you, Mr. Chairman.
In the days leading up to the Trump administration issuing an
emergency order mandating a significant reduction in flights,
separate and apart from restrictions triggered by ATC staffing
shortages, the Trump administration claimed that this order was
dictated by data. As Secretary Duffy stated, ``The data would
dictate what we are going to do. Data driven. Safety driven.''
Now, the irony is that under normal circumstances, nobody would
cheer louder than me for evidence of FAA changing its culture
to be more proactive in using real-time safety data and, most
importantly, making tough decisions to prevent deadly
incidents. That is why the Trump administration's failure to
transparently disclose the data underlying its emergency order,
combined with Secretary Duffy's overt threats to ramp up flight
restrictions unless Democrats rolled over and just voted for
whatever plan Republicans proposed, was and remains deeply
disappointing. It fails to strengthen confidence in good
government, and the American people are understandably
suspicious of a DOT and FAA that does not show its work.
I have a--I have a fifth grader who I work with every day
saying, ``Honey, I know you're doing long division, but you
need to show your work. Otherwise, your teacher thinks you use
a calculator.'' Right now, frankly, the FAA's failure to
respond to basic information requests from my office and the
ranking member's office over the past few weeks does nothing to
dispel accusations that the Trump administration weaponized our
aviation industry against American people to score partisan
political points. In justifying its emergency order, FAA noted
that voluntary safety reports submitted in October indicated
that operators, presumably many employees of the air carriers
that A4A represents, had concerns about the safety of the
National Airspace System, despite the mitigation measures that
had been put in place. Governor Sununu, did any airlines
proactively restrict flight volumes independent of staffing
triggers or even preemptively contact FAA to recommend that the
Agency consider emergency action along the lines of the
emergency order that the FAA eventually issued? I know you're
new to the organization.
Mr. Sununu. I don't believe that any of the carriers
actually said we're going to cancel flights because of this,
but to be clear, the carriers, Airlines for America, and the
FAA were talking constantly about data, about what they're
seeing, staffing triggers, hotspots. And I would note that what
was interesting about this shutdown from the first day on
October 1, all the way to the end, there was never consistency.
It wasn't like the Northeast has a problem. It was one day it
was in the West, one day it was in Newark, one day it was
Burbank, one day it was Nashville, so there was--it was very
hard to manage. It was almost like playing whack-a-mole, but at
no time did they--did the carriers say we have to take more
flights out. They said we just need to put more mitigation
strategies in to ensure safety, which they did, resulting in
the delays, and that's why the cancellations were well under 1
percent for, you know, the bulk of October until the pressures
really built.
Senator Duckworth. So, in that emergency order, FAA stated
the Agency had ``observed evidence of increased stress in the
National Air Traffic System and aviation safety data,
particularly 40 high-traffic airports,'' which I think is what
you're talking--speaking to.
Mr. Sununu. Yes.
Senator Duckworth. Unfortunately, FAA did not provide
further insight into precisely what evidence and what specific
metrics it used to determine that emergency order was required
to immediately halt flights at high-traffic airports. Did you--
did they--did your members provide any data to FAA, or did they
share any data to you behind that----
Mr. Sununu. Well, the biggest piece--yes.
Senator Duckworth.--especially at those 40 because I
haven't seen it, and I've been requesting it.
Mr. Sununu. Well, the biggest piece of data is incredibly
obvious: all the staffing callouts.
Senator Duckworth. Well, I don't----
Mr. Sununu. The fact that was increasing day by day by day.
Senator Duckworth. Right.
Mr. Sununu. The fact that you had--I mean, Nick, you could
probably give more accurate data. On Halloween alone, the
staffing triggers and callouts from just the morning to the
afternoon skyrocketed, and then sometimes we'd see that go
down, but Saturday was brutal. Sunday went down. Monday,
Tuesday were--so the data, at least that we were looking at,
were those staffing triggers and callouts, and we were watching
that hour by hour, and post-Halloween, it really never went
down. It was really, really tough. Beyond that, I mean, I'd
have to refer to the FAA for any other data points, but those
are the ones that we specifically were looking at----
Senator Duckworth. Did you get the----
Mr. Sununu.--and then there were the close calls.
Senator Duckworth. Where did you--and that data came to you
from the FAA, or that was--how did you get the callout data on
how many air traffic controllers----
Mr. Sununu. We get that data literally hourly. There's a
couple different services that we use.
Senator Duckworth. OK.
Mr. Sununu. So, we get--morning, I can see what they call
staffing triggers----
Senator Duckworth. Mm-hmm.
Mr. Sununu.--and then that gets--again, Nick can probably
give you more information, but that can get to actual potential
shutdowns where the actual towers just don't become sustainable
to be manned in terms of landing and not landing, and we had a
couple instances there. And if I may, shortly before the FAA
came to us and said, look, we may need to talk about forced
cancellations. You had three or four close calls on the
taxiways, physical close calls, so that was clearly of concern.
And I'm not here to defend the FAA, they can defend themselves,
but I think they said, look--to the point that was made
earlier--we want to be preventative here. We're not going to
wait for a tragedy or a crisis to happen. Let's be preventative
and make sure we can keep the airspace viable. Let's not be
like, you know, frankly, the rest of government and wait for a
tragedy before we do something. They said, we're going to get
ahead of it.
And that was really tough for the airlines, but if you talk
to the CEOs, they all say it was the right thing to do. Being
safe and smart is always best, and staying ahead of it and
being proactive, and the number--those number of callouts were
huge. Other data, I'd have to just refer you to the FAA.
Senator Duckworth. My problem is there's, like, all this
different callout data. I've been trying to get ahold of all of
the data, and if you guys were getting specific data from the
FAA, I want to see that because FAA has not provided it. At one
point, Secretary Duffy said he was getting 56 retirements a
day. That was the number he put out----
Mr. Sununu. Mm-hmm.
Senator Duckworth.--which I've not seen that backed up
anywhere, and if it is, then I would need to know that. I'm
just deeply concerned that there is a nebulous term of the
data, and we don't know what that is. And if we want to look
toward the future and do better the next time and do better
even now, we need to know what that data is, and we should be
sharing that data. And it concerns--deeply concerns me that FAA
is not actually sharing the same set of data with everyone so
that we're operating off of the same sheet of music.
Mr. Sununu. Yes.
Senator Duckworth. Thank you, Mr. Chair.
Mr. Sununu. Yes, the only thing we really looked at was
those calls. I don't mean to put Nick on the spot, but there
are a couple different areas where I think you can see the
actual number of calls and the triggers. We subscribe to a
system that gives us that data, but.
Senator Duckworth. Right, but yet----
Mr. Sununu. Yes.
Senator Duckworth.--Secretary Duffy put out a number that
was not consistent.
Mr. Sununu. Mmm. Thank you.
Senator Moran. Thank you, Senator. Just a couple of things
to wrap up, at least in my thinking. You all have been kind to
mention the bill I first--I first introduced in 2019 in an
earlier shutdown. This is not a unique circumstance. We've been
through this before. Is there anything in that legislation--
maybe I should explain for our audience that the Aviation
Funding Stability Act is legislation that seeks to insulate the
FAA in the event that there's a government shutdown. The bill
authorizes the FAA to continue to draw from the Airport and
Airway Trust Fund during a lapse in appropriations with no
General Fund contributions. The AATF generates sufficient
revenues independently to sustain all Agency programs,
including air traffic control operations, staffing and
training, aircraft certification, and other essential
functions. Any of you have suggestions of how we might improve
that legislation? Are there things that--and if you don't have
an answer today, you're welcome to provide an answer later, but
if we are able to pursue the passage of this legislation, what
are we missing or what have we erred in, in any way?
Mr. Daniels. Chairman Moran, we'll obviously work with you
and Senator Duckworth on any changes to the language, but we
fully support it as written, anything or any legislation that
prevents air traffic controllers and other aviation safety
professionals from not getting paid during a government
shutdown. So, we're in full support of it as written currently,
and if there are any other suggestions, we'll make sure they
get to your office.
Senator Moran. Thank you.
Mr. Sununu. If I--if I may add one thing, it's terrific.
It's awesome. We really hope it passes, like, tomorrow, but,
and maybe even out of the--out of this committee's wheelhouse,
understandably, TSA, CBP are also very important, and, as was
noted, other aspects that might not fall directly within the
FAA structure, but are part of that National Aviation
Ecosystem.
Senator Moran. Good reminder. We need everyone at work. Mr.
Viola?
Mr. Viola. Sir, I would say we strongly support the
Aviation Funding Stability Act.
Senator Moran. I wasn't really looking for that compliment,
but it's helpful to be able to say that you do----
[Laughter.]
Senator Moran.--and I appreciate that. You have both--you
have highlighted two things: that legislation and then the
importance of THUD and its appropriations process. I'd like to
give you another opportunity as we are trying, as we speak, to
clear holds that various senators have on appropriation bills.
And the effort is to bring the defense appropriation bill to
the floor with a vote this week, and then allow for other bills
to be added, including the transportation appropriation bill.
Tell us why it's important to pass an appropriation bill for
the Department of Transportation in the arenas in which you
work or represent?
Mr. Daniels. We'll start with the Modern Skies Coalition,
as we're a part of it and has done a well--a great job of
articulating the issues. Secretary Duffy has gone out as well
talking about the need for the changes to staffing and
modernization. We share many of the same components and the
same vision. The true answers that America is looking for, the
American flying public, are these long-term commitments in
these bills, and that they are bipartisan and that we're
working together, and that are supported by the entire aviation
community and not just by one group, is that we're all coming
together saying what makes this system better. And that's the
true, I would say, value and importance of what's happening
right now is you have an entire community speaking in unison of
what is needed instead of just one entity politicking for
themselves. I think anything that is focused on continuing to
ensure that that voice is moved forward is the true answer
that's going to bring the solutions that the American people
want and deserve.
Mr. Sununu. I would only add, it's obviously immensely
critical in providing that confidence in the system. I think
because the shutdown was so big, so impactful to the American
public, folks are going to be watching. Maybe appropriations
bills don't take headlines typically, but I think come mid-
January, folks are going to be watching and saying is this an
industry we can count on, not just in terms of booking travel,
but for the workforce aspects, all the things that Nick has
been talking about and God bless his teams for hitting on. We
want to encourage that recruitment, and it will, at a minimum,
keep some confidence into the system.
I would--the one argument--I'm not arguing against it by
any means--is that it only goes until maybe mid-20-2026,
something like that. So, we're going to be back in this pickle
again a little bit, which is why your--I'll call it your
follow-on bill on aviation funding is so critical because it
really makes sure that regardless of which side, what the
politics are today or 10 years from now, the aviation system in
itself aren't held hostage to it. So, it's--for us, it's really
about instilling that confidence for both the consumer and,
more importantly, for the workforce that we need to keep coming
into the system.
Mr. Viola. So, the government employee, and, of course, for
our sector, the aviation employee, the FAA, you know, the year
has been very distracting to try to get work done with the FAA.
I think the stability that the workforce needs, a long-term
stability that you've heard here, not just, OK, we're going to
make it now to January 30, but they need to know that they are
going to get paid, that they have jobs to do, that can actually
dig into these certification issues that my members need to get
this new technology on the aircraft to make the system safer.
The Modern Skies Initiative that we're all members of, you
know, we want to see a great system out there that--that's able
to support the new increased capacity, not reduced capacity
that we had to show we can do here during the shutdown, but we
want to get the EV tools of the future going. We want to get
these new aircraft that serve the rural communities, the new
capabilities that don't need the longer runways. So, there's so
much activity right now with aviation that, you know, we want
that momentum, and the passage of this bill right now, I think,
would be key for investment in the workforce of the future.
Senator Moran. Thank you. I'll express those views to my
colleagues. I know that you will as well.
Mr. Daniels. Senator Moran, if I could add just one thing--
--
Senator Moran. Mr. Daniels.
Mr. Daniels.--since we're talking about those bills and
what's moving through in the support from them. I'd be remiss--
it was brought up on this panel about another air traffic
controller who took their life and also about the mental health
bill for aviation and the aviation professionals and the
archaic medical system that remains in getting, you know,
aviators and air traffic controllers true help. That is
something else that is a must-pass bill and along with the
appropriations that are--is going to go a long way for finally
bringing this workforce up to the standards that are needed in
getting them the help in advance of them taking their own
lives.
Senator Moran. What's missing in doing that?
Mr. Daniels. The support of finally getting it passed
through. It's out there, it's moving, and we're looking for
everyone to support it.
Senator Moran. Thank you. I offer my condolences to the air
traffic control community and the individuals involved in that
death. It is unfortunate sometimes the circumstances of a
tragedy is what motivates us to do our jobs better. The January
29 is a circumstance of mine, and I know that the families of
the--of the--those who died in that crash are in constant
contact and encouragement to Members of Congress, including me,
about the importance of moving forward on the air traffic
safety plan. And we will do our part, and it's a reminder that
you just gave us about things need to be long term. It's not
just fixing a problem for the moment but needs consistent
attention and consistent appropriations and financial support,
and I appreciate that reminder.
It's always been my practice to give the witnesses of a
hearing I chair the opportunity to say anything that they
didn't have a chance to say that they now thought of, they wish
they'd have said. I find myself in that circumstance often, and
maybe something I said that I wish I wouldn't have, and you can
retract something if you'd like. But anybody want to make
certain that there's something included in the record that they
feel like they need to now say?
Mr. Daniels. I'd like to start with one thing. First, thank
you for having us. Thank you for allowing us the opportunity to
talk about the issues. I think what this has highlighted and
this shutdown has shown in the aviation world is how fragile
the system is, but there are some terms that get thrown around,
and I would say quite loosely: the terms of ``calling out.''
Air traffic controllers have an extremely high record for
showing up in the emergencies and crises of this country--
September 11, a pandemic, two of the longest government
shutdowns in history--and air traffic controllers showed up and
stepped up day in and day out, but the term of art keeps
continues to be ``they're calling in sick.''
They were calling in with no money. They were calling in
with not being able to put gas in their car. They were calling
in with not being able to pay for childcare. Those are real
issues, real Americans, real patriots that are doing everything
they can. They don't want to see that burden on another air
traffic controller. So, while the term of art may be ``air
traffic controllers are calling out,'' it's not in protest. We
absolutely condemn any coordinated efforts to call out, and the
reasons that you saw it in different locations around the
country is because you--what you can't pinpoint is when
somebody's life situation and money situation and they're going
to run out of it, or when the stress, the pressure, and the
fatigue of being perfect absolutely crushes them that day, and
they need to take a moment before reporting to duty to just
say, well, I'll give it my best. Air traffic controllers don't
have the option to give it their best. They have the duty to be
perfect, and anything that we can do to support them through
this bill and not allowing them to be subjected as a political
pawn, again, we absolutely support, we absolutely endorse, and
we absolutely need.
Senator Moran. Thank you, Mr. Daniels. Mr. Sununu?
Mr. Sununu. No, I would just say thank you and thank you
for the timeliness. I mean, we're just on the heels of it, and
so the fact that you're moving so promptly is--instills a lot
of confidence.
Senator Moran. Mr. Viola, we were concerned--when we
scheduled the hearing, we perhaps expected that maybe the
shutdown was still continuing and had some thought about
whether the hearing still had merit after the shutdown
concluded, and my conclusion was it did have merit so that we
could learn from circumstances. Mr. Viola, anything?
Mr. Viola. Yes. Well, thank you very much for having us
here today. I would like to say, you know, the Modern Skies
Coalition and getting the money now, I mean, my time in the
FAA, 2015 when we were trying to work forward to get--to keep
being a leader in aviation and being able to have these new
vehicles that service society better. So, keeping that momentum
going with the $12-and-a-half billion and getting the
additional funding would be great.
Senator Moran. Who do I call now, Mr. Viola, that--when I
want something--some certification, some new rule and
regulation, some statutory deadline to be met at the FAA?
Mr. Viola. At the FAA?
Senator Moran. Yes.
Mr. Viola. Call the Administrator.
Senator Moran. Oh, of course.
[Laughter.]
Senator Moran. I was hoping that you were still going to
intercede on my behalf.
Mr. Viola. Oh, you could call me. I absolutely would do my
best to work behind the scenes as well.
Senator Moran. Yes, sir. Mrs. Spickler, thank you. Your
maiden testimony to Congress, I assume, and thank you very much
for being here. Anything you'd like to make sure that we hear
before I conclude this hearing?
Mrs. Spickler. I thank you again for the opportunity to
tell my story and to be heard.
Senator Moran. Thank you for your willingness to tell us. I
got to find some magic words in a script.
Senator Duckworth. Oh, I have to read them items I'd like
to----
Senator Moran. OK. Yes, Senator Duckworth.
Senator Duckworth. Yes. Mr. Chairman, I'd like to request
unanimous consent the following documents be entered into the
hearing record: original statement of April Barrett, President
of Service Employees International Union; a September 24, 2025
letter from Kansas Healthcare Providers to the Kansas
congressional delegation in support of extending enhanced
premium tax credits; and a September 2025 Urban Institute and
Commonwealth Fund Health Policy Brief titled, ``4.8 Million
People Will Lose Coverage if 20--in 2026 if Enhanced Premium
Tax Credits Expire.''
Senator Moran. Without objection, those documents will be
entered into the Committee's record.
Senator Duckworth. Yes.
[The information referred to follows:]
Contact:
SEIU National Media
Issued November 9, 2025
SEIU'S VERRETT: WORKING PEOPLE MADE CLEAR THROUGHOUT THE SHUTDOWN THAT
HEALTHCARE IS A PRIORITY--WE WON'T BACK DOWN NOW
WASHINGTON, DC--Service Employees International Union (SEIU)
President April Verrett released the following statement today after
the Senate took a procedural vote clearing the way to end the
government shutdown:
``I'm proud of how working people showed up across the longest
government shutdown in our Nation's history to demand that Congress
protect affordable healthcare for every American. But unfortunately,
Republican leaders showed that they would rather jeopardize people's
health and punish Federal workers than make billionaires pay taxes.
Now that the shutdown is ending, Federal workers will get paychecks
again. But this weak deal is no cause for celebration. Millions of
working families of all backgrounds will now see their healthcare costs
skyrocket as ACA tax credits expire. Federally contracted workers are
still not guaranteed backpay.
We won't back down until Congress takes action to resolve our
healthcare crisis and ensures that every federal worker receives
backpay. Working people don't fold--we fight forward.''
______
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Senator Moran. Now----
Senator Duckworth. Did I take enough time?
Senator Moran. You did. I should've just turned the--turned
the page.
Again, I would thank all the witnesses for being here. I
wanted to perhaps join Senator Cantwell in her remarks about
people who work at airports. I'm a frequent traveler not--I
guess it's by choice, but I live in Kansas and work here, and
I'm in airports and on airplanes on a consistent basis like
almost all of my colleagues. And during the shutdown, I found
the employees at the airport, including the ones that Senator
Cantwell mentioned, to be--I don't know about good spirits, but
they were certainly polite, respectful, kind of we're all in
this together kind of attitude. And again, it's something
special, I suppose, about Americans and America at--in times of
difficulty and adversity. There's still a common sense that we
owe each other respect and try to make certain that the well-
being of those who we care for is maintained, and I experienced
that without exception. And so, I thank the folks who work at
an airport and the people who work at the airlines and across
the country. And just I worry that we're beginning to take
these kind of circumstances as too commonplace, and they ought
to be extraordinary and not the norm, but regardless of which
one they are, I appreciate people who are polite and
respectful.
Oh, let me see. Do I have something else I need to do on
documents? OK. There are documents from the Modern Skies
Coalition, the National Business Aviation Association, Boeing
Aircraft, and one for the American Society of Traveler Advisors
that I would ask to be placed in the record, and without
objection, I would do so.
[The information referred to follows:]
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
Prepared Statement of Ed Bolen, President and CEO,
National Business Aviation Association
Chairman Moran, Ranking Member Duckworth, and Members of the
Subcommittee on Aviation, Space, and Innovation, thank you for holding
this hearing to address the impact of the 43-day lapse in Federal
funding on Federal Aviation Administration (FAA) and Transportation
Safety Administration (TSA) services and the national economy. On
behalf of the National Business Aviation Association's (NBAA's) 11,000-
member companies, I am honored to provide this testimony for the
record.
I would like to start by thanking the dedicated public servants who
shouldered a tremendous burden, showing up day after day without
compensation to maintain the safety, security and efficiency of the
national airspace system-without their commitment and professionalism,
America's air transportation system and the national economy would have
come to a halt.
Business aviation is an important segment of the aviation industry.
Business aviation is an indispensable part of the aviation
ecosystem, providing an efficient, effective and flexible
transportation solution to users. It is essential to America's economy
and local communities supporting more than 1.3 million jobs and
contributing $339.2 billion per year in economic activity. General
aviation helps businesses be more competitive, especially those small
and mid-sized enterprises, headquartered in small towns and rural areas
that have little or no airline service.
Business aviation also provides emergency medical transportation,
and delivers humanitarian aid in times of need. Business aircraft
provide around 15,000 relief flights each year, responding to natural
disasters, transporting organs, and taking cancer patients to treatment
centers. With 46.7 million Americans living more than an hour away from
a Level 1 or 2 trauma center, business aviation is more critical than
ever.
The government shutdown impacted all segments of the aviation industry,
including business and general aviation.
The 43-day government shutdown stalled critical FAA work that
impacted business and general aviation safety oversight, certification,
training and operations; it impacted an industry that serves as a
lifeline to rural economies, provides emergency medical transportation
and delivers humanitarian aid in times of need.
The most severe impacts occurred on November 6, when the FAA
implemented an Emergency Order to reduce all flight operations,
including commercial and business aircraft operations, at 40 U.S.
airports. Just days later, on November 10, the FAA implemented
additional restrictions, banning non-scheduled operations at 12
airports, disproportionately impacting business aviation, an industry
that drives local economies, connects communities, and supports
humanitarian missions every day. General aviation complied with the
emergency order and avoided operating at the Nation's busiest airports
whenever possible to support the safety and efficiency of the system.
The national airspace is a public resource open to all users. With the
shutdown resolved, and moving forward, we ask Congress to ensure access
remains equitable and available to every segment of the flying
community.
Specifically, the government shutdown had a significant impact on
business aviation as it delayed safety approvals, jeopardized
investments, reduced safety margins, and restricted airspace capacity.
The government shutdown forced the FAA to furlough safety
inspectors, resulting in reduced services and significant
delays to aviation businesses.
The furloughs meant operators waited on certification
approvals for more than a month which caused inefficient
operations and prevented operators from using aircraft to their
full capability.
The furloughs halted new certification activities, resulting
in certificate holders being unable to complete aircraft
conformity checks, keeping some aircraft grounded.
Inspectors did not approve revisions to manuals, delaying
implementation of safety-enhancing procedures.
Finally, furloughs meant inspectors were unable to review
and approve the use of new training simulators, creating a
backlog that will not begin to be addressed until March 2026
creating inefficiencies and sub-optimal safety.
Business Aviation supports critical modernization efforts and funding
stability.
Congress must pass legislation to provide stable funding for the
FAA during any future shutdown to mitigate harm to the safety and
efficiency of the aviation system, the travelling public, and the
national economy.
Long before the shutdown, Congress recognized that a modernized air
traffic control system was a national imperative, essential to safety,
and made an important down payment on needed reforms. The government
shutdown threatened that progress and drew critical resources away from
essential initiatives to expand controller hiring, improve training,
and update technology and facilities. Business aircraft operators rely
on a safe and efficient nation's air traffic control system and support
a renewed focus and investment in these much needed reforms.
Congress must act now to ensure funding stability for the FAA,
equitable airspace access and a returned focus on air traffic control
modernization work.
Congress must pass a full-year FY2026 Transportation,
Housing and Urban Development appropriations bill to ensure
continued investment in controller staffing, aviation safety
personnel, technicians, and the modernization of critical
aviation infrastructure.
We urge Congress to approve legislation to ensure user-
funded aviation services continue in the event of another
government shutdown. Airspace users pay billions in taxes and
fees to maintain air traffic control services, safety and
security and deserve uninterrupted delivery of those services.
Legislation such as Chairman Moran's Funding Stability Act of
2025, and The Aviation Funding Solvency Act introduced in the
House would ensure these services are uninterrupted.
Congress must continue its critical work on airspace
modernization, strengthening the staffing, technology,
infrastructure and facilities to build the best air traffic
control system in the world, enabling safe and efficient air
transportation.
Ending the government shutdown was an essential first step. Next,
Congress must establish funding stability to ensure aviation services
continue in the event of another government shutdown and return focus
to modernizing the air traffic control system to maximize safety and
efficiency in the national airspace system and strengthen the
resilience of the American economy.
Thank you for your consideration. I appreciate the Committee's
careful oversight of our Nation's aviation system and look forward to
working with you to enhance aviation safety, improve the airspace
system and maintain America's global leadership in aviation.
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
American Society of Travel Advisors
Alexandria, VA, November 18, 2025
Hon. Jerry Moran,
Chair,
Senate Subcommittee on Aviation, Space, and Innovation,
Senate Committee on Commerce, Science, and Transportation,
Washington, DC.
Hon. Tammy Duckworth,
Ranking Member,
Senate Subcommittee on Aviation, Space, and Innovation,
Senate Committee on Commerce, Science, and Transportation,
Washington, DC.
Re: Statement for the Record to the Subcommittee on Aviation, Space,
and Innovation: Subcommittee Hearing titled, ``Flying on
Empty: How Shutdowns Threaten Air Safety, Travel, and the
Economy,'' on November 19, 2025.
Dear Chairman Moran, Ranking Member Duckworth and members of the
Subcommittee:
On behalf of the American Society of Travel Advisors (ASTA) and the
more than 300,000 individuals working in the travel advisor profession,
thank you for the opportunity to submit this statement for the record.
We appreciate the Subcommittee's leadership in examining issues that
affect travelers, the air transportation system, and the broader travel
economy.
Travel advisors play a central and indispensable role in the global
travel and tourism industry. ASTA's membership encompasses the full
breadth of the marketplace from home-based entrepreneurs and
traditional brick-and-mortar agencies to large travel management
companies (TMCs) and online travel agencies. These professionals
provide critical services to the traveling public, offering informed
guidance, real-time problem solving, and dedicated assistance in the
event of emergencies, disruptions, or unexpected changes in plans.
Corporations rely on TMCs to manage their business travel programs
efficiently and effectively, ensuring policy compliance and cost
control while maintaining traveler safety and satisfaction.
With more than 300,000 travel advisors nationwide, nearly two-
thirds of which are independent contractors, the profession represents
a significant segment of the U.S. small business community. Ninety-five
percent of travel agencies are small businesses under the SBA standard,
and 80 percent are women-owned. In 2024, travel agencies sold 781,000
air tickets per day, totaling $99.2 billion in annual airline sales,
and were responsible for booking more than 66 percent of all cruises
and tour packages. The profession booked $119.3 billion in travel last
year alone, with continued industry growth projected by the U.S. Bureau
of Labor Statistics. Given this scale and economic importance,
understanding the challenges faced by travel advisors during the
government shutdown is essential to fully evaluating its effect on
their businesses, U.S. travelers, and the broader travel economy.
In the final days of the longest Federal government shutdown in
history, ASTA surveyed its members nationwide to assess the operational
and economic impacts on both travel advisors and the travelers they
serve. The results provide a clear and consistent picture of an
industry under significant strain.
Travel advisors overwhelmingly reported increased workloads,
heightened client anxiety, disrupted travel operations, and material
impacts on their business performance. While the severity of the impact
of the government shutdown varied, overall sentiment across the
profession was decidedly negative.
The following summary of the impacts from the 43-day government
shutdown on travelers and travel agencies presents a myriad of
challenges and concerns to the travel industry. ASTA would welcome
sharing the complete results of the research with the Subcommittee if
it is of interest.
Financial Impact on Travel Agencies and Advisors
The most common theme expressed by advisors in the survey responses
was a loss of income while their clients dealt with flight
cancellations, national park restrictions and postponement of future
travel. A large portion of survey respondents commented that travelers
were postponing trips until the shutdown ended, or even until next
year.
Travel advisors overwhelmingly reported that the shutdown created
significant financial strain for their agencies, largely due to
widespread flight disruptions that required hours of unpaid rebooking
work and lost commissions when trips were canceled. Many advisors noted
a sharp decline in new bookings, with clients delaying or abandoning
travel plans entirely because of uncertainty, fear of being stranded,
or financial stress from missed paychecks. For Federal government
employees and contractors hit directly by loss of pay, even long-
planned vacations were canceled in order to free up funds for basic
living expenses.
Many travelers expected advisors to have answers that didn't exist
given the day-to-day uncertainty around air traffic control staffing,
TSA operations, and flight cancellations. This anxiety translated into
a sharp decline in inquiries and bookings for many agencies, with sales
for some agencies dropping to levels not seen since the pandemic.
Advisors spent more time calming clients than creating new business,
and many noted that they were doing dramatically more service work
while earning less revenue.
In fact, nearly two-thirds reported clients delaying travel
decisions. The hesitation spanned both leisure and business travelers
and resulted in revenue drops averaging 25 percent for agencies.
Overall, the shutdown shook consumer confidence, with many advisors
reporting their phones had ``gone silent'' as clients adopted a wait-
and-see approach. These dynamics suppressed travel demand and
threatened long-term financial risk for small agencies.
Travel Agency Operational Disruption
More than seventy percent of advisors reported moderate or severe
impacts on their business operations during the shutdown. Additionally,
nearly eighty percent indicated they spent additional hours each week
resolving shutdown-related issues, time that was largely uncompensated.
While navigating crises for clients is part of the job, many advisors
reported serving as a therapist to their clients, who were rightfully
distressed about the possibility of missing an important client
meeting, long-planned vacation, occupational conference, or a cruise
departing from a distant port.
One comment from a travel agency owner summed up the sentiment
voiced throughout the survey: ``As a travel agency, we've definitely
felt the ripple effects of the government shutdown. Air travel has
become more unpredictable, with increased delays and limited staffing
impacting both flight schedules and traveler confidence. Our team has
spent much more time assisting clients with rebookings, schedule
changes, and [offering] reassurance due to the uncertainty. Customer
service has also been affected because many travelers are
understandably anxious, and we're working harder to provide the support
and communication they need. Overall, we've seen a slowdown in new
bookings as clients hesitate to plan future travel until things feel
more stable. It's been a challenging time, but we're staying proactive
and doing everything we can to guide our clients through it.''
Stress on the Air Travel System
Unsurprisingly, uncertainty around air travel represented the most
significant disruption. Delays, cancellations, or rebookings for
clients affected 83 percent of those responding. Travel advisors
absorbed the brunt of traveler frustration as airlines and air traffic
control faced capacity and staffing challenges. Government-mandated
restrictions of flights across the system had immediate disruptive
impacts resulting in fewer options to offer clients. These impacts
continue to be sorted out in the days following the shutdown.
While advisors also reported disruptions to sales volume, customer
service workloads, group tours and national park availability, air
travel disruptions far exceeded the other concerns. The concentration
on air travel issues reflects the role of the travel advisor on the
front lines of the traveler experience. Advisors are absorbing the
burden of airline disruption and uncertainty, which erodes efficiency
and client satisfaction.
Limited Federal Communication
Advisors also reported little to no communication from Federal
agencies during the shutdown, reducing their ability to provide
accurate and timely guidance to travelers. In the absence of complete
and comprehensive communication, advisors often relied upon anecdotal
information and their own experiences to guide travelers.
With limited guidance from Federal agencies and constantly changing
conditions, many advisors felt they were operating without reliable
information, trying to reassure clients in an environment where facts
shift daily. The industry spent far more time managing crises than
selling travel, leading to concerns about long-term revenue health.
Broader Industry Consequences
More than sixty percent of respondents believed the shutdown
produced ripple effects across the travel ecosystem, including concerns
about consumer confidence, airline reliability, and the economic health
of key travel-dependent destinations.
At the center of the disruption is the instability of the air
travel system. When flights are delayed or canceled, travelers miss
cruises, tours, hotel stays, meetings, and events, creating a chain
reaction of rebookings, refunds, and lost revenue for suppliers across
the industry. Advisors described airports as chaotic and unpredictable,
with limited information, long hold times, and inconsistent
communication from both airlines and government agencies. This
instability has eroded traveler confidence, which emerges as one of the
most damaging industry-wide consequences.
As one respondent summed it up: ``This shutdown is strangling our
industry. Airports are chaos. Flights delayed. Passports and visas
stalled. Conferences canceled. Small businesses are watching their
income vanish overnight. The ripple effect is devastating--hotels,
airlines, restaurants, drivers, guides, and local shops across the
country are paying the price for Washington's paralysis.''
Policy Considerations
Travel advisors serve every congressional district and provide
critical real-time support for millions of travelers. Based on the
survey results, ASTA respectfully urges Congress to consider the
following:
1. Prioritize stabilization of Federal travel infrastructure,
particularly aviation systems heavily affected during
government shutdowns.
2. Improve communication from Federal agencies to travel
professionals who disseminate critical information to
travelers.
3. Recognize travel advisors as essential partners in maintaining
consumer confidence and navigating system-wide disruptions.
4. Include travel advisors in stakeholder discussions related to
aviation reliability, shutdown impacts, and traveler-protection
initiatives.
Conclusion
While many advisors believe their own role becomes more valuable in
moments like these, the consensus is clear: government shutdowns
disrupt not just travel plans, but the fundamental functioning of and
confidence in the entire travel industry. The government placed
substantial operational, economic, and emotional burdens on travel
advisors, the travelers they support and the greater travel economy.
Advisors are working longer hours under immense pressure, managing
elevated traveler concerns, and absorbing the effects of widespread
travel disruptions. Despite these challenges, they continue to provide
stability and expertise during a period of significant uncertainty.
We appreciate the Subcommittee's time and consideration of our
concerns, and stand ready to assist in your ongoing work. To that end,
please don't hesitate to contact ASTA Vice President, Advocacy, Jessica
Klement at [email protected].
Sincerely,
Zane Kerby,
President and CEO,
American Society of Travel Advisors.
Senator Moran. As a Kansan and someone that the state is
hosting a FIFA and the Olympics coming up, and as Chair of the
Congressional Senate Caucus on Travel and Tourism, we need the
airlines fully operational and the travel industry capable of
meeting significant demands as many international travelers
will be visiting the United States, including Kansas City, in
the near future.
I thank all of our witnesses for their testimony today.
Senators on this committee will have until the close of
business on November 26 to submit questions for the record, and
the witnesses will have until the close of business on December
the 10 to respond to those questions. What that means is my
colleagues and I may ask you questions in writing, and then if
you would respond to those questions to--for the satisfaction
of those senators and for the Committee record by the December
the 10, that is what we would ask you to do.
And that concludes today's hearing, and the Committee
stands adjourned.
[Whereupon, at 4:06 p.m., the Subcommittee was adjourned.]
A P P E N D I X
Response to Written Questions Submitted by Hon. Jacky Rosen to
Nick Daniels
Question Topic: Shutdown Impacts on ATC Workforce Pipeline
During the 44-day government shutdown--the longest in our Nation's
history--Nevada's Federal aviation workforce, including air traffic
controllers (ATC) and TSA personnel, worked for weeks without pay.
Fortunately, our airports and local organizations stepped up to support
our workers. For example, the Reno-Tahoe Airport Authority partnered
with The Children's Cabinet and the Northern Nevada Food Bank to
provide essential support, from food to household necessities.
Question 1. From your perspective, despite these critically
important community efforts, how has the economic and emotional strain
of the shutdown affected morale, retention, and the future pipeline of
skilled aviation personnel?
Answer. The National Air Traffic Controllers Association (NATCA) is
extremely thankful for the efforts in Nevada through the partnership
that included the Reno-Tahoe Airport Authority to provide essential
support for air traffic controllers and other aviation safety
professionals who worked without pay during the shutdown. NATCA is also
grateful for the countless other organizations who provided support
across the country for these dedicated patriotic Federal workers.
Groups like the Air Line Pilots Association (ALPA), the Association of
Flight Attendants-CWA (AFA), the Southwest Airlines Pilots Association
(SWAPA), and the NetJets Association of Shared Aircraft Pilots
(NJASAP), and many individual airlines stood in solidarity and provided
food and other forms of support during the shutdown.
NATCA has always been concerned about the risks inherent in a
government shutdown and the compounding negative effects a shutdown has
on aviation safety, the U.S. economy, and the morale of the frontline
workforce that safeguards the National Airspace System (NAS) every day.
Government shutdowns--of any length--are incredibly stressful and
distracting for the nearly 20,000 air traffic controllers and other
aviation safety professionals NATCA represents, the vast majority of
whom worked without pay during the shutdown. This is not acceptable and
not sustainable.
Nevertheless, during the shutdown, controllers continued to show up
and step up for the American flying public and each other, deftly
performing their safety-critical functions at the highest level despite
operating 3,800 fully certified controllers short of the Federal
Aviation Administration's (FAA) staffing target.
It was incredibly unfair to expect hard-working, patriotic American
air traffic controllers and their families to bear the full burden of
policy disagreements in Congress. Increased stress decreased morale,
personally, for controllers and their families who were enduring the
effects of the shutdown as much as they were. Morale was also harmed as
the workforce struggled financially to pay for rent, food, utilities,
and childcare to make ends meet. The reality is that these
professionals were required to oversee the movement of the Nation's
passengers and cargo while many continued to work ten-hour days and
six-day workweeks due to the ongoing staffing shortage, all without
pay. All of these factors compounded to decrease morale.
In spite of this, even as they went without pay during the record-
long government shutdown, America's air traffic controllers remained
steadfast in their commitment to ensuring the safety and efficiency of
the National Airspace System.
Although stress, financial insecurity, and decreased morale led to
some unanticipated attrition among these professionals, NATCA does not
have any specific data on how many controllers retired or resigned as a
direct result of the shutdown. However, NATCA is extremely grateful to
Department of Transportation Secretary Sean Duffy who kept the FAA's
controller hiring and training pipeline open during the shutdown. In
fact, for the first time ever, Secretary Duffy directed the FAA to
continue hiring and training controller candidates at the FAA's Academy
in Oklahoma City during the shutdown, thereby ensuring controller
staffing would not be as negatively affected unlike previous shutdowns.
Question 2. What long-term impacts could we see on ATC and TSA
workforce retention, and what policy solutions should Congress consider
to ensure that talented young people continue to pursue careers in the
Federal aviation workforce?
Answer. Currently, NATCA is not aware of any long-term impacts to
the ATC workforce in terms of recruitment or retention. However, the
FAA was already operating near a 30-year low in terms of fully
certified professional controllers: 3,800 controllers short of its
staffing target.
The controller workforce has been understaffed for more than a
decade, resulting in mandatory overtime, including regular 10-hour days
and six-day weeks. Last year, controllers at 40 percent of FAA
facilities worked six days a week at least once per month. Several
facilities require six-day workweeks every week. The FAA and NATCA are
acutely aware of these thin staffing margins and the compounding
effects they have on controller stress and fatigue.
Retention efforts could become more challenging in the future if
controllers elect to retire when first eligible, rather than waiting
until age 56 mandatory retirement. However, recent efforts in Congress
to raise the mandatory retirement age for controllers beyond age 56
would not solve the current staffing crisis. Earlier this year, there
were fewer than 50 controllers across only 32 facilities who would have
reached age 56 within a year. Therefore, permitting controllers to work
past age 56 would not have a meaningful effect on current controller
staffing challenges.
NATCA thanks this Committee for its work to address the shortage in
the FAA Reauthorization Act of 2024. It not only updated FAA's
controller staffing targets, but it also requires the FAA to hire the
maximum number of controller trainees for five years and deploy tower
simulator systems to every FAA tower to improve training. This
Committee must continue its oversight role to ensure that the
requirements it established come to fruition.
Additionally, NATCA supports S. 1985--the Safe Operations of Shared
Airspace Act of 2025, which would, among other things, improve
controller training and extend FAA's max hiring requirements contained
in the FAA Reauthorization Act of 2024 for an additional five years.
Finally, NATCA continues to strongly support Secretary Duffy's plan
to supercharge the hiring of controller trainees to bring in the best
and brightest controller candidates.
It is through these types of consistent, intentional, and sustained
hiring and training efforts that we will begin to approach improved
controller staffing numbers for years to come.
______
Response to Written Questions Submitted by Hon. Jacky Rosen to
Governor Christopher T. Sununu
Question Topic: Impact of Trump Policies on International Air
Travel
The Trump Administration's policies have been undermining
international travel and tourism for the past year. More visitors come
to Las Vegas from Canada every year than from any other country across
the globe. But thanks to Trump's tariffs, Canadian air travel to Las
Vegas is down more than a third year-over-year. That is in addition to
a 13 percent overall drop in international visitors--all of whom must
decide whether or not to travel to the U.S. amidst a backdrop of
foreign travelers being detained at airports, tariffs raising costs and
undermining trade with our allies, and new fees that make international
travel more expensive--like the $250 ``visa integrity fee'' created by
the so-called ``One Big Beautiful Bill Act''.
Question 1. Governor Sununu, can you talk about the impact these
policies are having on air travel to the United States and how Congress
should work to mitigate them in order to promote international travel
and tourism?
Answer. A4A, and our members, continue to support and are actively
collaborating with Federal partners to drive both policies and
investment that will benefit the travel and tourism industry. Travel
and tourism investment will play a critical role in accommodating
upcoming global events like the 2026 FIFA World Cup and America 250,
amongst many others.
Additionally, maintaining and promoting the deregulatory policies
that have democratized air travel to the benefit of both domestic and
international travelers will be key to growing and promoting
international tourism. We support the Department of Transportation's
deregulatory agenda and directives, which squarely align with
Congress's nearly 50-year mandate for a deregulated airline industry.
The successes of the Airline Deregulation Act of 1978 (ADA) are
undeniable, including a diversity of airline businesses that provide
consumers with record air travel and cargo choices, as well as
unprecedented affordability that allows more people to fly than ever
before. Straying from these bedrock deregulatory principles or
insisting on more regulatory controls will only create barriers for
travel and tourism.
However, the most material and impactful threats to a robust
travel, tourism and aviation sector that need immediate mitigation and
action are--
Ensuring the Aviation System Is Not Harmed by Government
Shutdowns--The most recent government shutdown clearly
demonstrated the serious safety, human and economic
consequences of subjecting the aviation sector to unnecessary
stress and chaos. It must never happen again. Congress should
take immediate actions to:
Short-term: Pass the Fiscal Year (FY) 2026
Transportation, Housing and Urban Development, and Related
Agencies (THUD) and Department of Homeland Security (DHS)
appropriations bills to make sure the Federal Aviation
Administration (FAA), Transportation Security
Administration (TSA) and Customs and Border Protection
(CBP) are not subject to shutdown impacts for the rest of
FY 2026; and
Durable Solution: Identify and enact solutions that
will ensure the FAA, TSA and CBP are insulated from the
impacts of any future lapses in appropriations, ensuring
their employees can continue their work uninterrupted and
with pay. Options include, but are not limited to, S. 1045
and H.R. 6086 that both guarantee that essential Federal
workers are paid for their essential work during any future
government shutdown.
Addressing the Air Traffic Controller Shortage. The ongoing
air traffic controller staffing shortage, which was an acute
issue prior to the shutdown and will only be exacerbated by the
long-term impacts of the most recent shutdown. Beginning in
October 2023, airlines reduced their flying from the New York
metropolitan area by 10 percent to accommodate the lack of
controller staffing at critical facilities.
Additionally, in November 2024, the Department of Transportation
Inspector General (DOT IG) put out its DOT Top Management
Challenges report. That report states:
``. . . FAA has not ensured adequate controller
staffing at its most critical facilities. For example,
we (IG) found that 20 of 26 critical facilities were
staffed below the Agency's threshold of 85 percent.''
``FAA's implementation of pauses in air traffic
controller training during the COVID-19 pandemic
contributed to controller staffing challenges by
resulting in an increase in certification times for
controllers. FAA needs improved resiliency in staffing
and contingency planning for disruptions, and our audit
work shows that FAA's lack of a plan to address these
staffing challenges limits the capacity of the NAS.''
Congress should work collaboratively with the Administration to
execute, implement and invest in Secretary of Transportation
Duffy's plans to ``supercharge'' air traffic controller hiring.
Building the Brand New Air Traffic Control System. The U.S.
ATC system is very safe, but the lack of government action has
made it inefficient, antiquated and far from the ``gold
standard'' Americans deserve. Unnecessary travel delays cost
the U.S. economy and passengers more than $30 billion annually.
These delays are the direct result of systemwide ATC
inefficiencies resulting from the use of outdated, World War
II-era radar technology. Controllers are still using paper
strips to control traffic instead of electronic strips. Some
computer system updates are done with floppy disks. Flights
between Washington, D.C., and New York used to take 55 minutes,
but to account for air traffic delays and inefficiencies, these
flights are now scheduled to take 80 minutes or longer. Despite
being a vital part of U.S. economic infrastructure, our
airspace and the technology that supports it are the modern
equivalent of driving a horse and buggy on a gravel road. This
lack of efficiency and the resulting reduced capacity directly
and negatively impacts carriers' ability to grow and compete
and robs consumers and the economy of growth, jobs, tourism and
related benefits.
The aviation sector strongly supported Congress's $12.5 billion
downpayment toward air traffic control modernization that was
included in the ``One Big Beautiful Bill Act,'' and we continue
to advocate for at least an additional $19 billion that will be
needed to completely build a new air traffic control system.
Fixing these fundamental government problems and challenges will
provide the necessary stability and predictability needed to
accommodate and grow the travel and tourism sector and will benefit
every member of the traveling and shipping public.
Question Topic: Impact of FAA Reduction Order
The FAA recently mandated flight reductions of up to six percent at
our busiest airports due to air traffic controller shortages that were
worsened by the government shutdown. Airlines were forced to adjust
tens of thousands of daily flights, directly affecting passenger travel
and creating significant operational and financial strain.
Question 1. Mr. Sununu, in your view, how have these travel
disruptions impacted airline operations, passenger confidence, and the
broader aviation system?
Answer. The data from this most recent shutdown shows the material
impact and real-world consequences of extended shutdowns and will
hopefully convince policymakers that we should never subject our air
traffic control system to this chaos again.
Controller Staffing Triggers and Operational Limitations. According
to FAA data, controller staffing issues contributed to 5 percent of
National Airspace System (NAS) delay minutes from January through
September, jumping to 16 percent in October and 62 percent in November.
Over 6 million A4A member airline passengers were affected during the
shutdown.
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Many of the disruptions faced by passengers between October 1 and
early November were a function of controller staffing-driven flight
delays. During that period, A4A airlines incurred over 30,000 staffing-
related delays but were able to minimize cancellations to about 400
(<0.1 percent). This shutdown disrupted 3.7 million passengers in that
time period and pushed the airlines to scramble to minimize customer
impacts. The air traffic controller staffing issues then led to an
unprecedented shutdown consequence where the FAA issued an Emergency
Order (Order #1) directing air carriers to reduce domestic schedule
operations across the NAS at 40 airports. Specifically, Order #1
directed a 4 percent reduction in operations on Friday, November 7,
ramping up to 6 percent by November 11, 8 percent by November 13 and 10
percent by November 14. On November 12, citing substantial and rapid
improvement in facility staffing conditions, the FAA issued a new
Emergency Order (Order #2), which superseded Order #1. Order #2
modified the operational limitation escalation to 6 percent. From
November 7--the first day of the FAA-mandated flight-schedule
reductions--through November 12, A4A airlines incurred more than 15,600
staffing-related delays and more than 7,100 staffing-related flight
cancellations, disrupting 2.3 million passengers.
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The operational reduction percentages may seem trivial to the
average observer, but when put into context they are extreme. On
November 12, for example, 99.8 percent of the 861 staffing-related
cancellations were attributable to FAA-mandated flight reductions at 40
airports. For perspective, in November 2024, data from the Bureau of
Transportation Statistics show that U.S. airlines canceled just 0.46
percent of scheduled flights--across all categories of causation,
including NAS issues. Promulgating a cancellation rate of 6 percent for
several consecutive days, if not longer, for ATC staffing reasons
alone, without a chance for operations to recover, is highly disruptive
to our customers and takes a toll on our frontline employees--at the
airport, on the plane, on our help desks, etc. At the 40 target
airports, applying the 6 percent directive translates to approximately
875 cancellations and 60,000 disrupted passengers per day which is more
than 13 times the normal rate.
A4A estimates that if Order #1 would have reached the original 10
percent threshold, by November 14, the daily average toll on the U.S.
economy would have reached as much as $580 million depending on the
degree to which airlines could reaccommodate cancellation-disrupted
passengers on the remaining flights.
Of note, that economic impact estimate is tied solely to compliance
with the flight-reduction directive, and it does not include the costs
associated with the value of passenger time, reduced bookings,
passenger refunds, etc. It does include indirect and induced impacts
tied to reduced visitor spending, state and local tax revenue and
spending across the broader economy as individuals within and outside
the aviation supply chain curtailed expenditures.
The air traffic controller staffing crisis also triggered broad
secondary impacts. In many instances, even those passengers who
successfully reach their destination encountered long departure delays,
extended tarmac times and highly unpredictable arrival times. For the
airlines, many flight crews were timing out (per regulated limits) or
missing connections because of late aircraft arrivals and equipment
mis-positioning.
For the controller staffing issues in particular, unlike weather-
driven disruptions, each controller shift change or facility staffing
trigger could result in added hours of delay with no advance notice,
undermining the airlines' ability to plan, staff or accommodate
impacted customers.
Despite airline mitigations, it created mass disruptions and should
serve as an example of the real-world economic and human impact of a
government shutdown. This simply should never happen again, and it is
most certainly preventable.
Question 2. Looking forward, what specific steps can airlines and
the FAA take collaboratively--such as workforce planning, accelerated
training, investment in advanced traffic management technologies, or
operational coordination--to address the underlying air traffic
controller shortage and ensure that the air travel system can safely
and efficiently handle peak demand, even during unexpected crises?
Answer. The most recent shutdown distinctly showed the lengths at
which the FAA and the aviation community will go to collaborate and
maintain safety in the system. A4A welcomes opportunities to
collaborate with the FAA, but ATC staffing is a uniquely governmental
responsibility that can only be addressed through government action.
A4A supports an ``all-of-the-above approach.'' Every facet of the
controller recruitment, retention, training, staffing and hiring
framework should be analyzed for better efficiency and effectiveness.
A4A also supports DOT Secretary Duffy's ATC staffing
``supercharge'' effort to hire at least 8,900 new air traffic
controllers through 2028.
In addition to fully utilizing and expanding the capacity of the
FAA Academy through the efforts above, A4A supports the FAA's expansion
of the Air Traffic-Collegiate Training Initiative (AT-CTI) program
which provides a strategic pathway to increase the hiring capacity for
air traffic controllers. As the FAA reestablishes and expands the AT-
CTI program, A4A supports the FAA establishing and certifying a program
that allows applicants to graduate and go directly to on-the-job
training at air traffic towers, Terminal Radar Approach Control
(TRACONs) and Air Route Traffic Control Center (ARTCC) facilities
across the country.
Congress and the Administration need to coordinate and establish a
governance and funding system that will provide stable and predictable
funding to holistically address the controller shortage. A4A is not
alone with these recommendations, as we are part of an unprecedented,
industry-wide broad aviation community coalition established earlier
this year, the ``Modern Skies Coalition,'' which wholeheartedly
endorses ``supercharging'' air traffic controller hiring.
______
Response to Written Question Submitted by Hon. Jacky Rosen to
James A. Viola
Question Topic: FAA Recovery from Shutdown Impacts
Question 1. Mr. Viola, your testimony has several suggestions on
ways FAA can manage the backlog from shutdown to expedite recovery. Can
you elaborate on that?
Answer. Thank you for the opportunity to elaborate on ways that FAA
can manage the backlog created by the recent government shutdown. My
response is focused on two areas: the FAA's ability to hire the
workforce needed to provide safety oversight and the ability of
existing employees to have flexibility to utilize their Personal Time
Off (PTO) into 2026.
A significant concern involves the approximately 600 engineers,
pilots, inspectors, and technical specialists that AVS was actively
hiring when the shutdown began. These candidates were left in limbo and
may now decide not to pursue Federal employment. It takes 6-12 months
to train a new certification engineer before they can just start to be
productive. It is a multi-year process to qualify a new flight test
pilot. This highlights the compounding effect of lost time and lost
applicants. It isn't a six-week disruption, it's a multi-year set back,
particularly for highly technical and unique skills such as structural
loads, software, hybrid propulsion, system safety, and flight test
pilots.
For these highly technical safety positions, direct-hire authority
is one of the FAA's most effective tools for attracting, rebuilding and
sustaining the specialized technical talent pipeline and ensuring the
agency can meet its safety mission, support U.S. innovation, and uphold
global aviation leadership. The FAA competes directly with
manufacturers, technical firms, and global aerospace companies for the
same highly skilled professionals, and industry hires in days while the
traditional Federal hiring process can take months. Direct-hire
authority allows the FAA to recruit in weeks instead of losing top
candidates to faster-moving employers. Several of these direct-hire
authorities for engineers, pilots, and inspectors expire at the end of
this year so we recommend that this be extended or permanently
implemented for these highly specialized safety positions particularly
given the shutdown.
FAA workforce availability is also essential to effectively and
efficiently work through the backlog of activities that build up during
the shutdown and restoring U.S. aviation business activities and
competitiveness in product development, innovation, manufacturing, and
global exports. Given the amount of change and uncertainty for the
Federal workforce this year, further exacerbated by the six weeks of
shutdown, one of the greatest challenges and significant risk to
recovery is the backlog of the individual personal time off (PTO)
``use-or-lose'' annual leave benefit which must be used by January 10,
2026, or be forfeited. Consistent with what was implemented following
the 2018-2019 shutdown, we recommend that the Administration extend the
ability for Federal employees to use their earned PTO annual leave
benefit at least to the end of CY2026 so that the FAA does not face a
significant workforce shortage when they are needed most for starting
to make up for lost ground.
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