Air Traffic Control: Status of FAA's Implementation of the Display System
Replacement Project (Testimony, 10/11/1999, GAO/T-RCED-00-19).

Pursuant to a congressional request, GAO discussed the status of the
Federal Aviation Administration's (FAA) implementation of the Display
System Replacement (DSR) project, focusing on: (1) the status of FAA's
overall modernization program; (2) FAA's progress in implementing DSR,
with particular emphasis on events surrounding Boston's implementation;
and (3) opportunities for continued success by FAA in completing its
modernization projects.

GAO noted that: (1) FAA's revised approach to modernization--acquiring
new systems by using a more incremental approach as opposed to its prior
practice of tackling large, complex projects all at once--appears to be
paying dividends; (2) the DSR project, which evolved from FAA's
restructuring of the Advanced Automation System, reflects this
incremental approach; (3) with DSR, FAA has concentrated on replacing
the controllers' workstations and other supporting equipment and plans
to add new functions and capabilities later; (4) with the former
project, FAA had attempted to do both--replace old equipment and add new
functions concurrently; (5) another aspect of the new modernization
approach involves working actively with the aviation community to make
decisions more collaboratively, as opposed to unilaterally making
decisions about air traffic control modernization; (6) FAA has achieved
a more successful implementation of DSR than other aspects of its
modernization program; (7) FAA developed DSR within its estimated cost
and schedule milestones; (8) nationwide, DSR has been delivered to all
of the facilities that were scheduled to receive it, and FAA is in
various stages of testing and using it; (9) one of these facilities
(Boston) is expected to begin using DSR in a limited capacity in late
October and should begin full operations in January 2000; (10) one
lesson learned from the earlier implementation of DSR at en route
facilities is that the transition of new equipment, coupled with other
factors, had an impact on FAA's delivery of air traffic services; (11)
FAA has an opportunity to replicate its success with DSR on other
modernization projects that are underway and with future efforts; (12)
however, it will be very important for FAA to continue to incorporate
the factors contributing to DSR's success, namely: (a) using an
incremental approach to modernization; (b) collaborating with internal
users and with external users; and (c) implementing recommendations to
improve the modernization program; (13) FAA has begun to take actions to
develop a complete systems architecture to guide modernization, improve
its investment management approach, develop mature software acquisition
capabilities, and change its organizational culture; and (14) as FAA
embarks on full implementation of DSR and other planned equipment
upgrades to improve safety and efficiency, it will be important for the
agency to continue to monitor efficiency measures to determine if the
changes that have been implemented are having the intended effect of
minimizing impacts on service.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  T-RCED-00-19
     TITLE:  Air Traffic Control: Status of FAA's Implementation of the
	     Display System Replacement Project
      DATE:  10/11/1999
   SUBJECT:  Systems conversions
	     ADP procurement
	     Information resources management
	     Strategic information systems planning
	     Systems design
	     Internal controls
	     Federal procurement
	     Cost control
	     Air traffic control systems
IDENTIFIER:  FAA Display System Replacement Project
	     FAA Advanced Automation System

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Cover
================================================================ COVER

Before the Subcommittee on Aviation, Committee on Transportation and
Infrastructure, House of Representatives

For Release
on Delivery
Expected at
11a.m.  EDT
Monday
October 11, 1999

AIR TRAFFIC CONTROL - STATUS OF
FAA'S IMPLEMENTATION OF THE
DISPLAY SYSTEM REPLACEMENT PROJECT

Statement of Gerald L.  Dillingham,
Associate Director, Transportation Issues,
Resources, Community, and Economic
Development Division

GAO/T-RCED-00-19

GAO/RCED-00-19T

(348198)

Abbreviations
=============================================================== ABBREV

============================================================ Chapter 0

Mr.  Chairman and Members of the Subcommittee: 

We appreciate the opportunity to provide our observations on the
status of the Federal Aviation Administration's (FAA) implementation
of the Display System Replacement (DSR) project.  DSR, which replaces
the controllers' workstations and other equipment in the nation's en
route centers,\1 is one of FAA's major projects under the air traffic
control modernization program.  In 1981, FAA began a
multibillion-dollar modernization effort to improve the safety, the
capacity, and the efficiency of this system to meet the increasing
demand for air traffic services and to replace aging equipment.  The
agency plans to spend approximately $41 billion on the modernization
effort from fiscal years 1982 through 2004.  FAA has historically
experienced some major difficulties in delivering modernization
projects within cost, schedule, and performance parameters.\2
However, over the past couple of years, FAA has taken steps to
improve its management of the modernization program.  In particular,
the agency has revised its approach to acquiring new systems by
limiting their scope to manageable segments.  Continuing with its new
approach to modernization is key to allowing FAA to consistently
deliver new systems within established goals. 

In this context, you asked us to address (1) the status of FAA's
overall modernization program, (2) FAA's progress in implementing
DSR, with particular emphasis on events surrounding Boston's
implementation, and (3) opportunities for continued success by FAA in
completing its modernization projects.  GAO has a long history of
reviewing the modernization program as well as individual projects,
and this testimony is based on prior reports and testimonies.\3

My testimony today is structured around a series of slides (see app. 
I).  In summary, the slides show the following: 

  -- FAA's revised approach to modernization--acquiring new systems
     by using a more incremental approach as opposed to its prior
     practice of tackling large, complex projects all at
     once--appears to be paying dividends.  DSR, which evolved from
     FAA's restructuring of the Advanced Automation System,\4
     reflects this incremental approach.  With DSR, FAA has
     concentrated on replacing the controllers' workstations and
     other supporting equipment and plans to add new functions and
     capabilities later.\5 With the former project, FAA had attempted
     to do bothï¿½replace old equipment and add new functions
     concurrently.  Another aspect of the new modernization approach
     involves working actively with the aviation community to make
     decisions more collaboratively, as opposed to unilaterally
     making decisions about air traffic control modernization.  FAA's
     decision to revise the schedule for implementing DSR at some
     facilities to minimize potential impacts on service, after
     collaborating with the aviation industry, is a positive example.

  -- FAA has achieved a more successful implementation of DSR than
     other aspects of its modernization program.  FAA developed DSR
     within its estimated cost and schedule milestones.  Nationwide,
     DSR has been delivered to all of the facilities that were
     scheduled to receive it, and FAA is in various stages of testing
     and using it.  One of these facilities (Boston) is expected to
     begin using DSR in a limited capacity next week and should begin
     full operations in January 2000.  One lesson learned from the
     earlier implementation of DSR at en route facilities is that the
     transition to the new equipment, coupled with other factors, had
     an impact on FAA's delivery of air traffic services.  For
     example, FAA managers at some facilities added extra distance
     between aircraft (known as miles-in-trail) while controllers
     were becoming familiar with the new equipment.  The extra
     distance, coupled with severe weather and other factors,
     contributed to delays.  FAA has since modified its procedures,
     including revising the dates for Boston's limited use of the
     equipment, to reduce the potential impacts associated with the
     transition.

  -- FAA has an opportunity to replicate its success with DSR on
     other modernization projects that are underway and with future
     efforts.  However, it will be very important for the agency to
     continue to incorporate the factors contributing to DSR's
     success, namely (1) using an incremental approach to
     modernization, (2) collaborating with internal users
     (controllers and maintenance technicians) and with external
     users (airline industry), and (3) implementing recommendations
     to improve the modernization program.  FAA has begun to take
     actions to develop a complete systems architecture to guide
     modernization, improve its investment management approach,
     develop mature software acquisition capabilities, and change its
     organizational culture.  As we have discussed in our previous
     reports, shortcomings in these areas have led to problems in the
     past.  While FAA's efforts to correct these shortcomings are
     encouraging, more remains to be done.  Additionally, as FAA
     embarks on full implementation of DSR and other planned
     equipment upgrades to improve safety and efficiency, it will be
     important for the agency to continue to monitor efficiency
     measures to determine if the changes that have been implemented
     are having the intended effect of minimizing impacts on service. 

--------------------
\1 En route centers, also called air route traffic control centers,
are one of three types of facilities that FAA uses to control air
traffic.  These facilities control planes in transit and during
approaches to some airports.  The airspace that most en route centers
control extends above 18,000 feet for commercial aircraft.  En route
centers also handle aircraft at lower altitudes when dealing directly
with a control tower. 

\2 Because of the size, the complexity, the cost, and the
problem-plagued past of FAA's modernization program, we have
designated it a high-risk information technology investment since
1995.  It is one of four high-risk system development and
modernization efforts.  See High-Risk Series:  An Overview
(GAO/HR-95-1, Feb.  1995); High-Risk Series:  Information Management
and Technology (GAO/HR-97-9, Feb.  1997); and High-Risk Series:  An
Update (GAO/HR-99-1, Jan.  1999). 

\3 A list of related GAO products is attached. 

\4 Advanced Automation System, the one-time centerpiece of the
modernization program, was designed to replace the computer hardware
and software, including workstations, used by controllers in air
traffic control facilities.  Numerous problems during development led
FAA to restructure the project in 1994. 

\5 One such capability already planned is the User Request Evaluation
Tool, which is a ï¿½conflict probe.ï¿½ This tool will provide controllers
with a 20-minute ï¿½look aheadï¿½ to detect potential conflicts when
considering pilots' requests for altitude or route changes. 
Detection of potential conflicts early will help improve system
safety and allow pilots to fly preferred routes that will save the
airlines time and fuel costs. 

   CONTACT AND ACKNOWLEDGEMENT
---------------------------------------------------------- Chapter 0:1

For additional information about this testimony, please contact
Gerald Dillingham at (202) 512-2834.  Individuals making major
contributions to this testimony include Danielle Bartoni, Pete
Maristch, John Noto, and Belva Martin. 

=========================================================== Appendix I

   (See figure in printed
   edition.)

   (See figure in printed
   edition.)

   (See figure in printed
   edition.)

   (See figure in printed
   edition.)

   (See figure in printed
   edition.)

   (See figure in printed
   edition.)

   (See figure in printed
   edition.)

   (See figure in printed
   edition.)

RELATED GAO PRODUCTS
============================================================ Chapter 1

Aviation Acquisition:  A Comprehensive Strategy Is Needed for
Cultural Change at FAA (GAO/RCED-96-159, Aug.  22, 1996) and Air
Traffic Control:  FAA's Modernization Investment Management Approach
Could Be Strengthened (GAO/RCED/AIMD-99-88, Apr.  30, 1999). 

Air Traffic Control:  Observations on FAA's Air Traffic Control
Modernization Program (GAO/T-RCED/AIMD-99-137, Mar.  25, 1999). 

Air Traffic Control:  Status of FAA's Modernization Program
(GAO/RCED-99-25, Dec.  3, 1998). 

Air Traffic Control:  Evolution and Status of FAA's Automation
Program (GAO/T-RCED/AIMD-98-85, Mar.  5, 1998). 

Air Traffic Control:  Observations on FAA's Modernization Program
(GAO/T-RCED/AIMD-98-93, Feb.  26, 1998). 

Air Traffic Control:  Immature Software Acquisition Processes
Increase FAA Systems Acquisition Risks (GAO/AIMD-97-47, Mar.  21,
1997). 

Air Traffic Control:  Complete and Enforced Architecture Needed for
FAA Systems Modernization (GAO/AIMD-97-30, Feb.  3, 1997). 

Air Traffic Control:  Improved Cost Information Needed to Make
Billion-Dollar Modernization Investment Decisions (GAO/AIMD-97-20,
Jan.  22, 1997). 

*** End of document. ***