FCM Controller and PC-12 pilot described a miscommunication event which resulted in a runway incursion.
Synopsis
FCM Controller and PC-12 pilot described a miscommunication event which resulted in a runway incursion.
Narrative
I was working Ground Control when Aircraft X called for IFR clearance. I issued the IFR clearance; which the pilot read back correctly. The pilot advised he had the current ATIS; and was ready to taxi; requesting Runway 10R. I coordinated a crossing of Runway 10L at Golf with Local. I issued taxi instructions - 'turn right; taxi to Runway 10R via Alpha; Golf; cross Runway 10L at Golf.' I verified the pilot had the latest convective SIGMETS and icing reports for the area. A short time later; it appeared the aircraft was not going to stop in time to hold short of Runway 10R. I instructed the aircraft to hold short of Runway 10R but by the time he stopped; he was across the hold lines. I then had him continue crossing Runway 10R at Golf and taxi to Runway 10R full-length via Bravo; and I issued the 'possible pilot deviation' statement to the pilot. Recommendation; our airport has a very high runway incursion rate. In fact; at one point; we were leading the nation in runway incursions. As a result of this; various runway safety action teams and other committees and management personnel have come up with all kinds of special phraseology; unique rules; statements on the ATIS; etc. that we are required to use. For example; we are required to instruct pilots to either 'turn left' or 'turn right' out of parking. This; combined with a 'left' or 'right' in the runway they are taxied to; can confuse the pilot; and this resulted in an increase in the rate of incorrect read backs. Management does not see things this way; though; they just like to look like they are doing something to address the problem; to get the Region off their backs. It does not seem to matter to anybody if their 'fix' to the runway incursion problem actually makes things worse. At a certain point; it gets ridiculous. I think in this situation; it may have helped the pilot if I had re-iterated to hold short of Runway 10R at Golf; even though the pilot cannot cross the runway he/she is taxied to without specific clearance to do so. On the other hand; I think it is a double-edged sword. If we continue to dumb down our phraseology and re-iterate things that we should not have to; then eventually when the runway incursion rate subsides; and all the runway safety action teams and special phraseology go away; pilots may think the lack of re-iterating hold short instructions is by default a clearance to cross. In short; I am not sure what the solution to this problem is; other than doing a better job of educating our local pilots of the rules.
Second reporter narrative
I listened to ATIS and received clearance ATC clearance from Ground Control. I requested taxi clearance for Runway 10R. The airplane was located on the north side of the parallel Runways 10L (3;900 FT) & 10R (5;000 FT). I requested Runway 10R for takeoff for the greater safety margin of the extra runway length. The Ground Controller instructed me to 'make a right turn; taxi to Runway 10R via Alpha; the north parallel taxiway; and Gulf; the crossing taxiway of Runway 10L and 10R; and cross Runway 10L on G.' I understood the Ground Controller wanted me to taxi to the departure end of Runway 10R by taking the only route to the departure end which is Alpha; Gulf and Bravo; the south of 10R parallel taxiway. I proceeded to taxi down Alpha; and Gulf as per the taxi instructions. When I was on Runway 10R the Ground Controller said hold short of Runway 10R. Then the Controller said continue and take a right on Bravo and taxi to the end. After arriving at my destination airport I telephone the FCM Tower. They stated that the Ground Controller said that he/she wished they would have given me a hold short of 10R instruction on the taxi clearance; indicating it was the Controllers intention to depart me from the Gulf intersection on 10R. This made no sense to me because the only reason I requested Runway 10R was to have a longer runway for departure and by making a Gulf intersection departure it would have given me a shorter runway. I did not request an intersection departure. The Controller did not ask me if I could accept an intersection departure. I would not have accepted an intersection departure. I understand there are some regulatory changes that will be taking effect next month that will address this situation. Ground Controllers will be required to state in the taxi clearance either; 'cross runway;' or 'hold short of runway' for all runway crossings.
Source: NASA Aviation Safety Reporting System (public domain). Reports are voluntary submissions and are not verified by NASA.