Tower Controller described a general aviation aircraft off field landing event due to fuel starvation.
Synopsis
Tower Controller described a general aviation aircraft off field landing event due to fuel starvation.
Narrative
A neighboring Tower called over the ETVS (Enhanced Terminal Voice Switch) and said there was an aircraft; a Cherokee; 20 miles northwest of the airfield with minimum fuel. They said the aircraft doesn't want to declare an emergency but wanted no delay. The Cherokee; called up and I told the aircraft to proceed direct the field; as I was instructed directly by my CIC (Controller in Charge). The Cherokee said he had the field in sight; and I told him the wind was calm and all runways were available and asked which runway he preferred. The Cherokee asked for the right runway and I cleared him to land. The Cherokee then asked if he could stay as high as possible as a precaution. He was currently at 6;900 FT. I coordinated with the neighboring Tower and my CIC coordinated with TRACON and we were approved to have the Cherokee have whatever he needed. I told him his altitude was approved as requested. The Cherokee then stated he was having fuel starvation; then said to never mind. I then asked if he required any assistance. He was about 10 miles northwest of the airfield. He said to standby; and that he saw a dry wash basin that if he wasn't able to make the airfield he was going to go for the dry wash basin. I told him to continue directly towards the field; again as instructed directly by my CIC. He said he would continue towards the field for now. The crash phone was then activated and an emergency declared. I then asked him how much fuel left on board and how many souls on board. He said he was indicating 5 gallons and had 3 souls on board. The Cherokee then reported intermittent choppiness of the engine; and a couple minutes later he said he was gliding and looking at the roads as a possible landing option. He was on about a 3-4 mile final. As he descended I asked him what road he was landing on; if it was possible to tell. When he on the ground he gave the name of the road he was on.
Second reporter narrative
I was making a flight from ZZZ1 TO ZZZ. I arrived at the aircraft in ZZZ1 around XA:15 local to begin preflight inspection. I had anticipated a 2.5 to 3.0 hour trip enroute. I knew there were limited options for fuel between ZZZ1 and ZZZ; so proper fuel planning was one of my primary concerns. I asked the fueler to add two gallons to my left wing tank (which was almost full) and 10 extra gallons to the right wing tank. Based on many previous flights; this should have been enough fuel to fly for approximately 4.0 hours; well beyond the 2.5-3.0 hour flight. After completing the preflight inspection; to include removal of a light layer of frost; I proceeded with the flight; departing ZZZ at approximately XB:30 local time. I departed ZZZ1 with the fuel selector burning fuel from the right fuel tank (which was full).The flight continued uneventful for some time. I switched from the right tank to the left fuel tank just north of the ZZZ2 VOR and proceeded Southbound towards ZZZ. Approximately abeam the military base; the engine began running rough. I noticed the fuel pressure was slightly low and selected the electric fuel pump on. I also switched the fuel selector back to the right fuel tank. Upon selecting the right fuel tank; the engine ran normally again. Shortly thereafter; I became very concerned that the left tank had run dry so quickly. At the normal fuel burn; 10 gallons of fuel should have lasted longer than the time it did. I immediately began suspecting that the fuel in the right tank could be very low as well; or there could be another problem in the fuel system. I contacted ATC to explore fueling options; specifically asking about fuel availability at the military base. I was informed by ATC that the base was closed and nobody was at the base. I was also informed that ZZZ was only 20 miles away and the controller asked if I could make it. I became concerned about an emergency landing at a military base with no emergency personnel available in the event of a complete engine failure. I elected to continue towards ZZZ.Approximately 10 miles North of ZZZ; I began experiencing engine roughness again. I attempted to adjust the mixture control and carburetor heat. The engine would run rough; then achieve full power; then run rough again. I continued to fly at best glide with partial engine power for what I would estimate was 4-5 miles. Approximately 2-3 miles from ZZZ; I experienced a total loss of engine power. I judged that I did not have adequate altitude to glide for a landing at ZZZ and opted to look for an alternate emergency landing spot. I identified a street that had a small stretch with few to no obstructions and turned the aircraft towards that street. I landed with no engine power and was fortunate to make a safe landing with no damage to persons or property.At the time of this report; the aircraft has not yet been inspected for engine abnormalities. I have considered strongly the possibility of landing at the military base or making a precautionary landing in the desert North of intended destination; where fewer people on the ground would have been exposed to possible harm. Both those options would have put the occupants of my aircraft at considerably higher risk and we would have been far more isolated from emergency responder help. I have also considered the different outcome if I had simply topped both fuel tanks in anticipation of the flight. Carrying full fuel may have certainly prevented this occurrence (assuming the aircraft is found to have low fuel upon inspection by a mechanic); though I also wonder if it would have masked a larger problem within the fuel system (like a potential leak experienced in flight).
Source: NASA Aviation Safety Reporting System (public domain). Reports are voluntary submissions and are not verified by NASA.