	JPDO and ATO Have Issued Key NextGen Plans, and FAA Has Made Some Progress in Developing and Demonstrating NextGen Technologies

Since 2003, JPDO and ATO have made progress in planning for and  implementing NextGen. According to ATO, it and JPDO  have worked to align and ensure linkages between these planning  documents. The current version of the NextGen Implementation Plan,  released in January 2009, focuses on the midterm (2012 though 2018)  implementation of NextGen capabilities. Recent versions of NextGen planning documents have  partially addressed some of these concerns, but industry stakeholders  continue to express frustration that the planning documents lack any  specific timelines or commitments. Beyond these planning efforts, FAA has continued to move forward in  planning and conducting demonstrations of some key NextGen  technologies. Industry Stakeholders Seek More Rapid Midterm Implementation of Existing Capabilities, but Progress Depends Both on Airlines’ Investments and on FAA’s Validation, Certification, and Rulemaking

To help address current congestion and delays, many stakeholders have  suggested that FAA focus on maximizing what can be done with existing,  proven capabilities and existing infrastructure. In part to help accelerate the implementation of existing capabilities in the  midterm—including technologies that are part of NextGen’s five  transformational programs such as ADS-B—FAA has created a NextGen  Midterm Implementation Task Force through RTCA. A member of the task force indicated that it will be  identifying a handful of capabilities that can be implemented in the  midterm and prioritizing them according to their relative net benefits. Current plans call  for the task force to provide final conclusions and recommendations to  FAA in August 2009. These could include mandated  deadlines or operational preferences—such as preferred airspace,  routings, or runway access. We and others have previously expressed  concerns about the time and human resources required for these efforts  and have identified them as a significant risk to the timely and cost-  effective implementation of NextGen. Resolving NextGen Management Issues, Involving Stakeholders, and Acquiring Expertise Will Be Critical to NextGen’s Success

We have previously reported on stakeholders’ concerns about the  fragmented management structure for NextGen and resulting lack of clear  accountability for NextGen’s implementation, as well as concerns about  JPDO’s and FAA’s efforts to fully involve stakeholders and acquire needed  expertise. Resolving these issues will be critical to advancing both the  implementation of capabilities in the midterm and the full transformation  to NextGen in the long term. FAA has said that it and JPDO are working with the Department  to clarify roles and responsibilities in executing the executive order. We maintain that input from current air  traffic controllers with recent experience controlling aircraft, who will be  responsible for managing traffic in the NextGen environment, and from  current technicians, who will maintain NextGen equipment, is important  when considering human factors and safety issues. FAA will also need technical skills, such as systems engineering and  contract management expertise, to implement NextGen. According to an FAA official, FAA plans to fill a total of 378 NextGen  positions in fiscal years 2009 and 2010. Addressing Ongoing Research and Development, Facility, and Infrastructure Challenges Will Be Critical for NextGen’s Implementation Going Forward

A number of other challenges affect FAA’s ability to move forward with  NextGen’s implementation, such as addressing ongoing research and  development needs, reconfiguring and maintaining existing facilities, and  enhancing the physical capacity of airports. Prioritizing the research and development needed for NextGen is also  important to avoid gaps and delays. FAA faces an immediate task to maintain and repair existing  facilities so that the current ATC system continues to operate safely and  reliably. Planning infrastructure projects to increase capacity, such as building  additional runways, can be a lengthy process, and will require substantial  advance planning and safety and cost analyses. Joint Planning and Development Office: Progress and Key Issues in  Planning the Transition to the Next Generation Air Transportation  System.
Why GAO Did This Study

To prepare for forecasted air traffic growth, the Federal Aviation Administration (FAA), including its Joint Planning and Development Office (JPDO) and Air Traffic Organization (ATO), is planning for and implementing the Next Generation Air Transportation System (NextGen) in partnership with other federal agencies and the aviation industry. NextGen will transform the current radar-based air traffic control system into a more automated, aircraft-centered, satellite-based system. GAO's previous work has identified issues related to the usefulness of NextGen planning documents, FAA's organizational structure to manage the transition to NextGen, and FAA's workforce to oversee and implement NextGen. Recently, the focus of NextGen planning and implementation has shifted to capabilities that can be achieved in the midterm, defined as 2012 through 2018. GAO's testimony focuses on (1) JPDO's and ATO's progress in planning and implementing NextGen, (2) ongoing efforts to implement midterm capabilities to address capacity constraints and delays, (3) the potential impact on NextGen of organizational changes and human capital issues, and (4) research and development and facilities maintenance and reconfiguration challenges going forward. GAO's testimony updates prior GAO work with FAA data and interviews with agency and union officials and industry stakeholders, including airline, aircraft, and avionics manufacturer representatives.

What GAO Found

JPDO and ATO have made progress in planning for and developing NextGen. JPDO has continued to update its basic planning documents, and in January 2009, ATO released the current version of its NextGen Implementation Plan, which focuses on the midterm implementation of capabilities. Recent versions of NextGen planning documents have partially addressed some of GAO's concerns about their usefulness, but industry stakeholders continue to express frustration that the documents lack any specific timelines or commitments. In addition to these planning efforts, FAA has continued to plan and conduct several demonstrations of some key NextGen technologies. To help address current congestion and delays, industry stakeholders have frequently suggested that FAA focus on maximizing what can be done with existing, proven capabilities and existing infrastructure. Partly to help accelerate the implementation of capabilities in the midterm, FAA has created a NextGen Midterm Implementation Task Force, which is to report its recommendations to FAA in August 2009. The task force plans to identify and prioritize capabilities that can be implemented in the midterm and potentially be deployed regionally to address key bottlenecks. Essential to the mid- and long-term success of these efforts is persuading the airlines to make costly investments in NextGen equipment--a step they are reluctant to take without clearly demonstrated benefits. Incentives that could encourage such investments include operational preferences--such as preferred airspace, routings, or runway access--and equipment investment tax credits. FAA will also have to validate, certify, and issue rules for these capabilities. Recent changes in the management structure for NextGen, though designed to address industry stakeholders' and others' concerns about fragmentation of authority and lack of accountability, have not fully addressed these issues and have raised further questions about parties' roles and responsibilities. Additionally, human capital issues remain to be resolved, including the degree to which key stakeholders, such as controllers and technicians, are involved in NextGen efforts and whether FAA is able to acquire the systems engineering, contract management, leadership, and other skills needed for NextGen. FAA plans to fill 378 NextGen positions in fiscal years 2009 and 2010. Going forward, FAA faces challenges in addressing ongoing research needs, reconfiguring and maintaining existing facilities, and enhancing the physical capacity of airports. For NextGen, research on the environmental impact of aviation, human factors, and weather will be critical. Air traffic facilities will also have to be reconfigured to support NextGen, and existing facilities require maintenance to ensure safety and reliability. FAA is currently reviewing its facility needs.Finally, even with the efficiencies anticipated from implementing NextGen, FAA has determined that it will need additional airport and runway capacity. Efforts to develop new infrastructure will require significant advance planning and cost and safety analyses.