Incident Overview
On August 27, 2008, two operational errors (OE) occurred at Reading Regional Airport/Carl A. Spaatz Field (RDG) in Reading, Pennsylvania. At the time, four controllers were assigned to the facility: two were in the tower cab (one working radar approach control/flight data, one working local control/ground control/controller-in-charge), and two were on break. Runway 18/36 had been closed for four weeks due to construction of a safety area at the approach end of runway 18. Notices to airmen (NOTAM) 07/003 and 07/014 were in effect, and the closure was broadcast on ATIS and posted on the SIA board in the tower cab. Both incidents occurred during day visual meteorological conditions with 10 miles visibility; the runway surface was dry.
First Error
At approximately 1609 EDT, the RDG arrival controller cleared the pilot of N44763, a PA-28, for a GPS RWY 18 approach and directed him to contact the tower. After the pilot contacted the tower, the RDG local controller cleared him for a low approach to runway 18—a closed runway—without providing an altitude restriction. This constituted the first operational error.
Second Error
About ten minutes later, at 1621 EDT, the arrival controller instructed N54020, a Cessna 172, to enter a left downwind for runway 13 and to contact the tower. The pilot reported established on left downwind and was advised pattern altitude 1400 feet with instructions to report mid-field downwind. At 1623, N56FE, a Cessna Citation, checked in and received radar vectors for a visual approach to runway 13. The local controller, aware that the arrival controller was vectoring the Citation behind the slower Cessna 172, queried the pilot of N54020 if he could accept runway 18 with the wind 130 degrees at 6 knots. The pilot agreed, and at 1625 the local controller cleared him: "Cessna 020 thank you, you're crossing over the [runway 18] approach end now you can make a right turn around into final, runway 18 cleared to land, hold short runway 13, landing traffic, 3000 feet available." At 1627, N54020 landed without incident.
Runway Closure Information
Runway 18/36 had been closed from 0700 to 1700 EDT Monday through Friday for nearly four weeks. The closure facilitated construction of a safety area at the approach end of runway 18. On August 27, 2008, no personnel or equipment were on or near the runway. A memorandum from Airport Operations, faxed to tower management at 0810 that morning, stated that lighted X's were required for all runway closures and should be located at each runway end over the numbers; however, X's were not on the runway at the time of the incidents.
Relevant ATC Procedures
FAA Order 7110.65 defines a "closed runway" as "a runway that is unusable for aircraft operations." Paragraph 3-1-1 requires controllers to "[p]rovide airport traffic control service based only upon observed or known traffic and airport conditions." Paragraph 3-10-10, "Altitude Restricted Low Approach," states that a low approach with an altitude restriction of not less than 500 feet above the airport may be authorized, and controllers must not clear aircraft for such approaches over personnel unless airport authorities have advised those personnel. The first error involved clearing an aircraft for a low approach without an altitude restriction; the second error involved landing an aircraft on a closed runway.