the emphasis on the word "priority" by the Avianca crew might have come from training and bulletins from Boeing that used the word in relation to fuel emergencies. Avianca also used the word "priority" in its publications on low-fuel status procedures. ATC controllers testified that "Mayday", "pan-pan", and "emergency" were the three phrases that they would respond to immediately. The report also stated that "priority" was defined in the ATC Handbook as "precedence, established by order of urgency or importance." As a result of this linguistic confusion, the NTSB recommended that the FAA work with the International Civil Aviation Organization to develop a standard glossary of clearly defined terms, as well as notify foreign carriers that they must be knowledgeable of ATC rules and procedures. The NTSB also cited the captain's inability to land on his first attempt as contributing to the crash. The investigation revealed that wind shear was a significant factor in the failed approach, but that other factors probably contributed. The report cited recurring maintenance problems with the airplane's autopilot as a possible factor. If the pilots had been forced to fly manually from Medellín, investigators believed this might have added to exhaustion and stress in the cockpit. For evidence, the NTSB pointed to nine instances where the captain asked the copilot to repeat the ATC instructions or to confirm the aircraft configuration. This stress, investigators asserted, would have degraded the flight crew's performance on final approach. Investigators also looked at the traffic management by the Central Flow Control Facility (CFCF). The CFCF, in communication with NY TRACON, established an airport acceptance rate of 28 aircraft landings per hour that morning. Later, a CFCF supervisor contacted NY TRACON and requested a higher rate of 33 landings per hour. This acceptance rate, investigators concluded, was based on inaccurate weather conditions. The report concluded that these traffic-management problems contributed to the conditions that led to the accident but did not lead directly to the accident. Controversy The probable cause of the crash was determined by the NTSB to be "the failure of the flight crew to adequately manage the airplane's fuel load, and their failure to communicate an emergency fuel situation to air traffic control before fuel exhaustion occurred." However, two NTSB members filed dissenting opinions in the report. Jim Burnett voted against the adoption of the report because he felt it did not adequately address the failures of