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Audit Reports

Date

Despite Implementing the National Training Initiative and Increasing Supplemental Pay, FAA Still Faces Challenges Meeting Air Traffic Controller On-the-Job Training Goals

Origin
Self-Initiated
Project ID
AV2026031
File Attachment
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Our Objective(s) 
To assess the impact of supplemental pay on FAA meeting on-the-job (OJT) goals since implementing the National Training Initiative (NTI). Our findings are organized as follows: (1) the impact of supplemental pay on FAA’s hourly training goals, and (2) FAA’s overall progress and challenges on improving OJT since implementing the NTI.

Why This Audit 
In July 2019, FAA implemented the NTI with the goal of increasing controller certifications and addressing a years-long staffing shortage. In August 2024, FAA began offering certified professional controllers (CPCs) additional supplemental pay as an incentive to conduct OJT and certify new controllers more quickly. Given the importance of increasing the number of certified controllers to meet staffing needs and safely manage the National Airspace System, we initiated this audit. 

What We Found 
Despite increasing supplemental pay, FAA has not achieved hourly OJT training target goals. 

  • The NTI established targets for the number of OJT hours trainees should receive. Yet, while FAA increased the amount of supplemental pay offered to OJT instructors, which raised OJT instruction costs by 160 percent, the number of training hours conducted has increased less than 20 percent. 
  • Most facilities did not meet the NTI’s hourly training targets due to several unresolved impediments, such as facility staffing shortages and leave usage.

FAA has made progress in improving OJT since implementing the NTI, but opportunities remain to further accelerate the controller certification process. 

  • Overall, FAA has made progress in improving training since implementing the NTI. Since relaunching the NTI in March 2022, the time to certify a new controller has decreased.
  • FAA does not adequately prepare CPCs to serve in the critical OJT instructor role. Training for OJT instructors is limited and outdated, and FAA lacks a formal program for improving instructors’ teaching skills.
  • The use of simulation can improve controller training. However, FAA faces challenges ensuring most trainees have sufficient access to the most useful computer-based simulation training. 

Recommendations 
We made six recommendations to improve FAA’s implementation of the NTI and the impact of supplemental pay on meeting the NTI’s hourly training goals.

Recommendations

No. 1 to FAA
Identify and implement meaningful ways to measure on-the-job training (OJT) instructor performance and take action to address poor performers.
No. 2 to FAA
Develop and implement a long-term strategy for identifying, standardizing, reducing, mitigating, and resolving impediments to OJT.
No. 3 to FAA
Assess the benefits of implementing more flexible and differentiated NTI expectations (e.g., by facility type, phase of training, etc.) and implement any identified beneficial revisions.
No. 4 to FAA
Review and revise the OJT Instructor Course, inclusive of any ongoing or previously planned efforts, to ensure it best reflects current standards and expectations.
No. 5 to FAA
Adhere to the current OJT instructor selection process and strengthen the program by ensuring the most qualified instructors are identified.
No. 6 to FAA
Assess the benefits of expanding the NTI to include other types of training (e.g., debriefs, audio and video reviews, etc.) and implement any identified methods to improve the initiative.