S.Hrg.119-318

1[Senate Hearing 119-318]2[From the U.S. Government Publishing Office]34                                                       S. Hrg. 119-31856                 FLYING ON EMPTY: HOW SHUTDOWNS THREATEN7                   AIR SAFETY, TRAVEL, AND THE ECONOMY89=======================================================================1011                                HEARING1213                               before the1415            SUBCOMMITTEE ON AVIATION, SPACE, AND INNOVATION1617                                 of the1819                         COMMITTEE ON COMMERCE,20                      SCIENCE, AND TRANSPORTATION21                          UNITED STATES SENATE2223                    ONE HUNDRED NINETEENTH CONGRESS2425                             FIRST SESSION2627                               __________2829                           NOVEMBER 19, 20253031                               __________3233    Printed for the use of the Committee on Commerce, Science, and34                             Transportation3536                 [GRAPHIC NOT AVAILABLE IN TIFF FORMAT]3738                Available online: http://www.govinfo.gov3940                               ______4142                 U.S. GOVERNMENT PUBLISHING OFFICE434462-988 PDF                WASHINGTON : 20264546       SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION4748                    ONE HUNDRED NINETEENTH CONGRESS4950                             FIRST SESSION5152                       TED CRUZ, Texas, Chairman5354JOHN THUNE, South Dakota             MARIA CANTWELL, Washington,55ROGER WICKER, Mississippi                Ranking56DEB FISCHER, Nebraska                AMY KLOBUCHAR, Minnesota57JERRY MORAN, Kansas                  BRIAN SCHATZ, Hawaii58DAN SULLIVAN, Alaska                 EDWARD MARKEY, Massachusetts59MARSHA BLACKBURN, Tennessee          GARY PETERS, Michigan60TODD YOUNG, Indiana                  TAMMY BALDWIN, Wisconsin61TED BUDD, North Carolina             TAMMY DUCKWORTH, Illinois62ERIC SCHMITT, Missouri               JACKY ROSEN, Nevada63JOHN CURTIS, Utah                    BEN RAY LUJAN, New Mexico64BERNIE MORENO, Ohio                  JOHN HICKENLOOPER, Colorado65TIM SHEEHY, Montana                  JOHN FETTERMAN, Pennsylvania66SHELLEY MOORE CAPITO, West Virginia  ANDY KIM, New Jersey67CYNTHIA LUMMIS, Wyoming              LISA BLUNT ROCHESTER, Delaware6869                 Brad Grantz, Republican Staff Director70           Nicole Christus, Republican Deputy Staff Director71                   Lila Harper Helms, Staff Director72                 Melissa Porter, Deputy Staff Director7374                                 ------7576            SUBCOMMITTEE ON AVIATION, SPACE, AND INNOVATION7778JERRY MORAN, Kansas, Chairman        TAMMY DUCKWORTH, Illinois, Ranking79JOHN THUNE, South Dakota             JACKY ROSEN, Nevada80TED BUDD, North Carolina             JOHN HICKENLOOPER, Colorado81ERIC SCHMITT, Missouri               JOHN FETTERMAN, Pennsylvania82TIM SHEEHY, Montana                  ANDY KIM, New Jersey83SHELLEY MOORE CAPITO, West Virginia8485                            C O N T E N T S8687                              ----------88                                                                   Page89Hearing held on November 19, 2025................................     190Statement of Senator Moran.......................................     191    Statement from the Modern Skies Coalition....................    6792    Prepared statement from Ed Bolen, President and CEO, National93      Business Aviation Association..............................    6994    Letter dated November 19, 2025 to Hon. Ted Cruz, Hon. Maria95      Cantwell, Hon. Jerry Moran and Hon. Tammy Duckworth from96      Jeff Shockey, Executive Vice President, Government97      Operations, Global Public Policy & Corporate Strategy, The98      Boeing Company.............................................    7199    Letter dated November 18, 2025 to Hon. Jerry Moran and Hon.100      Tammy Duckworth from Zane Kerby, President and CEO,101      American Society of Travel Advisors........................    72102Statement of Senator Duckworth...................................     2103    Statement from April Barrett, President, Service Employees104      International Union........................................    45105    Letter dated September 24, 2025 to Hon. Jerry Moran, Hon.106      Roger Marshall, Hon. Tracey Mann, Hon. Derek Schmidt, Hon.107      Sharice Davids, and Hon. Ron Estes from Kansas Healthcare108      Providers..................................................    46109    Urban Institute and Commonwealth Fund Health Policy Brief110      dated September 2025 entitled, ``4.8 Million People Will111      Lose Coverage in 2026 if Enhanced Premium Tax Credits112      Expire'' by Matthew Buettgens, Michael Simpson, Jason113      Levitis, Fernando Hernandez-Lepe, and Jessica Banthin......    49114Statement of Senator Kim.........................................    28115Statement of Senator Capito......................................    30116Statement of Senator Sheehy......................................    33117Statement of Senator Cantwell....................................    34118119                               Witnesses120121Nick Daniels, President, National Air Traffic Controllers122  Association, AFL-CIO...........................................     4123    Prepared statement...........................................     6124Governor Christopher T. Sununu, President and Chief Executive125  Officer (CEO), Airlines for America............................    10126    Prepared statement...........................................    12127James A. Viola, President and Chief Executive Officer, General128  Aviation Manufacturers Association.............................    17129    Prepared statement...........................................    18130Eileen Spickler, Advocate........................................    23131    Prepared statement...........................................    24132133                                Appendix134135Response to written questions submitted by Hon. Jacky Rosen to:136    Nick Daniels.................................................    75137    Govenor Christopher T. Sununu................................    76138    James A. Viola...............................................    80139140                 FLYING ON EMPTY: HOW SHUTDOWNS THREATEN141                   AIR SAFETY, TRAVEL, AND THE ECONOMY142143                              ----------144145                      WEDNESDAY, NOVEMBER 19, 2025146147                               U.S. Senate,148   Subcommittee on Aviation, Space, and Innovation,149        Committee on Commerce, Science, and Transportation,150                                                    Washington, DC.151    The Subcommittee met, pursuant to notice, at 2:36 p.m., in152room SR-253, Russell Senate Office Building, Hon. Jerry Moran,153Chairman of the Subcommittee, presiding.154    Present: Senators Moran [presiding], Sheehy, Capito,155Duckworth, Cantwell, and Kim.156157            OPENING STATEMENT OF HON. JERRY MORAN,158                    U.S. SENATOR FROM KANSAS159160    Senator Moran. I'll wait a few minutes to call the meeting161to order, and we're waiting on, particularly, Senator162Duckworth, and there's a vote going on in the House. I've cast163my vote, and I assume that's what she's doing now, but we'll164begin shortly.165    [Pause.]166    Senator Moran. The Subcommittee on Aviation, Space, and167Innovation will come to order. I'm pleased to be here, and I168thank our witnesses for joining us this afternoon for what I169hope is a valuable discussion and expect to be a valuable170discussion.171    We convened this hearing because of the importance of the172aviation and travel industry, a vital component of our Nation's173economy, and trying to find ways to make certain that that174industry is stable, including in difficult times like a175government shutdown. That stability is severely inhibited by176the critical functions that the Federal Aviation177Administration, when they're suspended or when they're178interrupted and when Congress fails to act, the FAA and the179aviation industry suffer. I'm pleased that the cancellations180and delays plaguing our flights, airlines, and airports are181easing. One of the witnesses and I were on a flight that was182delayed but only for mechanical reasons this week, which has183been different than it was previously. Our air traffic184controllers are reporting to work, and other essential185activities at the FAA are back underway.186    Thanksgiving, however, is just a few days away, and while187we anticipate the airlines will be fully or nearly fully188recovered, come next week, lingering strain and fatigue on the189system perhaps is to be expected. Roughly 31 million passengers190are expected to fly next week for the holiday, but there may be191lingering impacts on the system because of the shutdown. I look192forward to the former Governor, Governor Sununu, speaking to us193this afternoon, hopefully providing us with a roadmap as to194what Americans flying next week will expect from the airlines.195Last week, the U.S. Travel Association noted that more than $6196billion were lost in travel spending because of the inability197to fly, and we cannot afford them. Sure, the airlines and198others, the people who work in the airports and in aviation,199cannot further afford the instability and chaos. Our recent200inaction in Washington has undoubtedly deterred young people201from pursuing careers as air traffic controllers or other202aviation professionals, a workforce we must prioritize.203    I hope that consideration of the Fiscal Year 2026 THUD, the204transportation appropriation bill, will begin in the Senate205this week. That is the plan, and we're working to try to206accomplish that, and will lay a groundwork for Congress to207fully fund the Department of Transportation and the FAA with208the resources it needs. The Senate appropriators passed the209THUD bill in July by a vote of 27 to 1, very bipartisan210demonstration there. Within this bill, we provided the211Department of Transportation nearly $26 billion and the FAA212nearly $20 billion between their operations and facility and213equipment accounts, which fund air traffic control and214modernization activities. This funding is, in part, there to215allow Secretary Duffy and Administrator Bedford to modernize216our national airspace system after decades of insufficient217budget requests that merely sustained an outdated system.218    This issue received particular attention by me on January21929 when the tragic circumstances occurred involving a flight220from Wichita, Kansas to DCA occurred. It was a moment that this221Congress, this subcommittee, and the administration all222gathered around the idea of improving the safety of our223airways. We must do our part to enable the FAA and the224Department of Transportation to make certain that Americans225remain the--that America remains the standard for aviation and226air safety.227    The sole integrator of the brand new air traffic control228system is set to be announced soon and will fully fund the229Department of Transportation for Fiscal Year 2026 as a230necessary step to modernizing our airspace. We'll hear from231industry about ways to potentially insulate the FAA from future232government shutdowns. I introduced legislation in many233Congresses that allow for the continuation of essential FAA234activities in the event of future shutdowns. By examining the235delays, the cancellations, the staffing triggers, and236certification interruptions, we're laying the groundwork to237better support an industry that is critical to our country.238    Again, I thank all of our witnesses for being here and I239look forward to this discussion, and I recognize the Ranking240Member of the Committee, Senator Duckworth.241242              STATEMENT OF HON. TAMMY DUCKWORTH,243                   U.S. SENATOR FROM ILLINOIS244245    Senator Duckworth. Thank you, Mr. Chairman. Mr. Chairman,246today's hearing injects cheap, partisan politics into a247subcommittee that, up until this point, had rightly prided248itself on working in a bipartisan manner, whether you or I249wielded the gavel. Using this subcommittee to mount a partisan250attack on Senate Democrats under the guise of exploring a251question that everyone already knows the answer to--are252shutdowns bad for aviation safety--is an unfortunate departure253from our past practice. Yes, government shutdowns are bad.254Shutdowns are painful for all members of the career civil255service that Donald Trump has gleefully attacked and256traumatized since the first day of his chaotic second term in257office. Shutdowns harm Americans that rely on their government258for critical support and services, like the hungry kids that259Trump refused to feed, despite sitting on a $6 billion SNAP260contingency fund. That's why Democrats voted to prevent a261shutdown and voted repeatedly to reopen the government.262    Look, it's good that Senate Republicans finally agree with263us that shutdowns are bad. I only wish there had been264bipartisan agreement that millions of Americans losing265healthcare coverage is also bad. Had Donald Trump and my266Republican colleagues merely agreed with us on that principle,267there would never have been a government shutdown in the first268place, period. The sad irony is that failure to extend middle-269class tax relief will hit red states the most, and the damage270won't be merely disruptive and damaging. It will be271catastrophic for Americans already struggling to get by. If272Republicans fail to cleanly extend the ACA tax credits, the273uninsured rate in Kansas will explode by 32 percent in 2026,274and in Texas, the threat is even worse with the Texas uninsured275rate projected to skyrocket by 39 percent. Thirty-nine percent.276    Now, when it comes to championing our chronically277overworked at understaffed ATC workforce, I will take a278backseat to nobody on this committee. I will not be lectured--I279will not be lectured by a senator who professes to love our280controllers only when it's politically convenient, but when281behind closed doors away from cameras, that Cancun-loving282Senator not only failed to advocate for a max hiring283requirement during FAA reauthorization negotiations, he284actually opposed it. Let's make it clear: the guy that you285think loves air traffic controllers opposed max hiring286requirements for air traffic controllers during FAA287reauthorization.288    So, if Senate Republicans truly cared about controllers289beyond using them as partisan political pawns, they would've290done what they've done numerous times before when they truly291care about something: change the rules. Yet, not only did292Senate Republicans fail to change the rules or allow a simple293majority to reopen the government, they blocked numerous294Democratic bills from passing that would've paid civil servants295during the shutdown. They even failed to force a vote on296Chairman Cruz's bill to pay controllers during that shutdown.297He had a bill to pay you.298    I also don't want to hear any BS about Donald Trump caring299about air traffic controllers. If Trump cared about controllers300being paid, he would've paid them. Does anyone seriously think301that Donald Trump needs congressional permission to raid the302Airport and Airway Trust Fund to keep the FAA operating during303a shutdown? Please. He didn't ask for permission to raid the304DOD R&D accounts to ensure that the military received paychecks305during a shutdown. I'm glad they did, but he paid them because306he wanted to. He didn't pay you because he didn't want to pay307you. When Trump cares about something, like building a308ballroom, building out Argentina, denying SNAP benefits for309low-income Americans, he just does it. If he wanted to pay air310traffic controllers, he would've paid you, consequences, laws,311and norms be damned as far as he's concerned. Trump's failure312to simply cut paychecks for air traffic controllers confirms313what should have already been obvious: Donald Trump doesn't314give a damn about the ATC workforce.315    Look, the shutdown is over, but for a half million316Illinoisans, millions of Texans, and over 200,000 Kansans, the317threat of a devastating healthcare crisis looms large. This318includes Americans like our witness here today, Mrs. Eileen319Spickler of Ottawa, Kansas. Eileen's husband, Barry, may be320forced to forego health insurance because they simply can't321afford to lose $1,100 in tax relief that enables them to afford322their monthly premiums. Eileen and Barry are not unique.323They're among the 24 million Americans who are desperate for324Republicans to extend enhanced premium tax credits. This should325be easy. We just need to strike a word or two or simply replace326numbers in two places in the Tax Code. That's it. If Speaker327Johnson had the courage to bring it to a vote, there are at328least 229 votes in the House to pass the bipartisan Premium Tax329Credit Extension Act, a Republican-authored bill that would330cleanly extend the ACA's enhanced premium tax credits.331    I truly hope Senate Republicans will see the light and332realize delivering tax relief that makes healthcare affordable333for middle-class Americans can be and indeed should be a334commonsense affordability policy that unites Republicans and335Democrats alike, and let's stop turning this committee into336partisan sham attacks on one another and get down to the real337work of keeping America's flying public safe. I yield back.338    Senator Moran. I'd like to introduce our witnesses for339today. Our first witness is Nick Daniels, the President of the340National Air Traffic Control Association. In his role, Mr.341Daniels advocates for the dedicated air traffic controllers who342oversee the--and safeguard our national airspace. Prior to his343role, he served as an air traffic controller and as a former344U.S. Marine. Our second witness is Chris Sununu, the President345and CEO of Airlines for America, which represents our country's346major carriers and cargo companies. Mr. Sununu is the former347Governor of New Hampshire and the longest-serving Republican348Governor in nearly a century. I believe it's your first349appearance before a committee, and we welcome you. Our third350witness, James Viola, and I believe this is a maiden appearance351for you, Mr. Viola, is President and CEO of the General352Aviation Manufacturers Association. In his role, Mr. Viola353represents the interests of over 140 airframe, avionic engine,354and component manufacturers for the aviation industry. And our355final witness is Mrs. Eileen Spickler, a resident of Ottawa,356Kansas. Mrs. Spickler, a special welcome to you.357    I now recognize Mr. Daniels for his opening statement.358359  STATEMENT OF NICK DANIELS, PRESIDENT, NATIONAL AIR TRAFFIC360                CONTROLLERS ASSOCIATION, AFL-CIO361362    Mr. Daniels. Thank you very much. Chairman Moran, Ranking363Member Duckworth, other members of the Subcommittee, thank you364for the opportunity to testify before you today on the effects365of the 43-day Federal Government shutdown, the longest in366American history. Every day that the shutdown continued, the367margins of safety that we and the flying public depend on were368reduced in our Nation's airspace system.369    I am proud to have earned the title of air traffic370controller with 22 years of experience at both an FAA tower and371an en route facility, as well as 5 years as an air traffic372controller in the United States Marine Corps. Unfortunately,373before the shutdown ended, air traffic controllers and other374aviation safety professionals that NACA represents received one375partial paycheck and two zero-dollar paychecks, despite working376full time and, in many cases, mandatory overtime: seven weeks377of work with no certainty of when we would be paid again. That378said, controllers showed up and stepped up for the American379flying public and for each other. No American should ever be380forced to work without a paycheck, and failing to pay the381workforce that keeps our skies safe is not acceptable and not382sustainable.383    Throughout the shutdown, air traffic controllers ensured384that the safety of nearly 3 million passengers a day on more385than 45,000 flights a day arrived at their destinations, and386controllers did this while operating with an overall shortage387of 3,800 fully certified controllers that the system requires.388Now, the unfortunate reality is this is not new. NACA has been389advocating for increased controller staffing for more than a390decade. NACA thanks this committee for its work on--to address391the shortage in the FAA Reauthorization Act of 2024. It not392only updated the FAA's controller staffing targets, it also393requires the FAA to hire the maximum number of controller394trainees for five years and deploy tower simulator systems at395every FAA tower to improve training and reduce training times.396This committee must continue its oversight role to ensure that397the requirements it established come to fruition, but the398effects of the shutdown had real consequences for hardworking,399patriotic American workers.400    Two weeks ago, we delivered over 1,600 handwritten letters401from air traffic controllers to congressional offices402expressing the hardships that they were experiencing. We heard403from an air traffic controller that is training at our new404facility. Her husband is a 20-year, five-time combat veteran405who had 45 documented explosions and seven direct hits. He406returned from Iraq and Afghanistan with a 100-percent permanent407and total service-related disability. Consequently, she is the408single source of income for her family. Their son just409graduated an aviation school, but they couldn't afford to410attend the graduation. In addition to training at her new411facility, she sold plasma twice, started driving for DoorDash,412and toward the end of the shutdown, she had to take a part-time413job on her regularly scheduled days off. We heard from recent414graduates of the Oklahoma City Air Traffic Controller Training415in Oklahoma where they were resigning because they could not416begin this challenging new career without a paycheck. We've417heard from air traffic controllers who were struggling to find418ways to pay for gas to get to and from work, while others419struggled to pay for childcare so they could go to work.420    Air traffic control is one of the most mentally demanding421and high-consequence professions in the world. Every moment we422are at work, it requires everything we have--focus, judgment,423decisiveness, perfect decisionmaking--thousands of times a424shift, and what hangs in the balance is our responsibility to425safety in order to prevent tragedy. Air traffic controllers426must show up day in and day out, fully prepared to handle the427stress, pressure, and the weight of our responsibility to the428American flying public and their safety. And this is why NACA429does support Chairman Moran's Aviation Funding Stability Act430that would ensure the FAA would be able to pay employees and431perform all of its functions in the event of a future shutdown.432We also support the passage of any other legislation that would433ensure this Nation's air traffic controllers and other aviation434safety professionals are paid during any future shutdown,435including Chairman Cruz's ``Keep America Flying Act of 2026''.436    Air traffic controllers and other aviation safety437professionals are this country's patriots, dedicated to the438safety of the flying public, and they should never be subjected439to these challenges that distract them from their critical440safety responsibilities. They are real people, they are real441Americans, and they were facing very real problems. They442deserve better, and I'll be happy to take your questions.443    [The prepared statement of Mr. Daniels follows:]444445  Prepared Statement of Nick Daniels, President, National Air Traffic446                    Controllers Association, AFL-CIO447    Thank you for the opportunity to testify on behalf of the National448Air Traffic Controllers Association, AFL-CIO (NATCA) at today's hearing449titled ``Flying on Empty: How Shutdowns Threaten Air Safety, Travel,450and the Economy.''451    NATCA is the exclusive representative for nearly 20,000 dedicated452American workers, including the Federal Aviation Administration's (FAA)453air traffic controllers, traffic management coordinators and454specialists, flight service station air traffic controllers, staff455support specialists, engineers and architects, and other aviation456safety professionals, as well as Department of Defense (DOD) and457Federal Contract Tower (FCT) air traffic controllers.458    NATCA takes great pride in its role as an aviation safety459organization that stands shoulder-to-shoulder with government and460industry stakeholders to ensure that the National Airspace System (NAS)461remains the safest and most efficient in the world. The air traffic462controllers and other aviation safety professionals NATCA represents463are vital to the U.S. economy, ensuring the safe and efficient movement464of passengers and cargo within the National Airspace System (NAS).465    The NAS moves approximately 45,000 flights, 3 million passengers,466and more than 59,000 tons of cargo every day across more than 29467million square miles of airspace. Although it remains the safest, most468efficient, and most complex aviation system in the world, NATCA always469strives to bolster safety, mitigate risk, and improve efficiency.470    NATCA grieves for the families, friends, and communities that have471been devastated by the aviation accident on January 29 at Washington472National Airport (DCA), as well as the UPS cargo plane that crashed473just after takeoff on November 4 from Louisville Muhammad Ali474International Airport (SDF). Although NATCA does not comment on ongoing475National Transportation Safety Board (NTSB) investigations, these476tragedies highlight the critical and high-consequence nature of air477travel. NATCA remains steadfast in our commitment to work with all478Federal agencies investigating these accidents to ensure we can479identify the root causes.480    NATCA's testimony today will focus on (1) the negative effects of481government shutdowns, (2) the persistent challenges with controller482staffing and funding for modernization programs that predate the most483recent shutdown, and (3) the legislative solutions that would help484eliminate future shutdown risks for the NAS and its frontline485workforce.486I. Negative Effects of Government Shutdowns487    NATCA shares in this Committee's serious concerns about the risks488inherent in a government shutdown and the compounding negative effects489a shutdown has on aviation safety and the U.S. economy. Government490shutdowns--of any length--are also incredibly stressful and distracting491for the nearly 20,000 air traffic controllers and other aviation safety492professionals NATCA represents, the vast majority of whom work without493pay during a shutdown. This is not acceptable and not sustainable.494    Nevertheless, during the recent 43-day shutdown, controllers495continued to show up and step up for the American flying public and496each other, deftly performing their safety-critical functions at the497highest level despite operating 3,800 fully certified controllers short498of the Federal Aviation Administration's (FAA) staffing target.499    Although NATCA is thankful that Congress reached an agreement last500week to end the shutdown, the current continuing resolution (CR)501funding the Department of Transportation and other departments and502agencies expires on January 31, 2026. This means we could be facing503another government shutdown less than three months since controllers504and other excepted aviation safety professionals were required to work505full time without pay, including mandatory overtime in many cases. It506would be incredibly unfair to ask these hard-working, patriotic507American air traffic controllers and their families to prepare for or508endure another protracted shutdown. We cannot continue to ask air509traffic controllers and their families to bear the burden of policy510disagreements in Congress.511A. Shutdowns Historically Harm Controller Staffing and Delay the512        Development, Testing, and Implementation of Critical513        Modernization and Safety Programs514    Although it is difficult to predict what new challenges may arise515during a shutdown, NATCA is extremely grateful to Department of516Transportation Secretary Sean Duffy for keeping the FAA's controller517hiring and training pipeline open, as well as his commitment to518ensuring critical modernization and safety programs were not negatively519affected during the shutdown.520    In fact, for the first time ever, Secretary Duffy directed the FAA521to continue hiring and training controller candidates at the FAA's522Academy in Oklahoma City during the shutdown, thereby ensuring523controller staffing would not be as negatively affected unlike previous524shutdowns. From the beginning, NATCA has also strongly supported525Secretary Duffy's plan to supercharge the hiring of controller526trainees, bringing in the best and brightest controller candidates.527    The controller workforce has been understaffed for more than a528decade, resulting in mandatory overtime, including regular 10-hour days529and six-day weeks. Last year, controllers at 40 percent of FAA530facilities worked six days a week at least once per month. Several531facilities require six-day workweeks every week. In addition, we may532not know for months or years the negative effects of shutdowns on533recruitment and retention. The FAA and NATCA are acutely aware of these534thin staffing margins and the compounding effects they have on535controller stress and fatigue.536    Similarly, Secretary Duffy directed the FAA to continue supporting537modernization, safety, and infrastructure programs through the538shutdown. Thanks to his leadership, NATCA subject matter experts539continued to participate in testing, development, and deployment540activities. This was critical because any disruption would have541severely hindered Secretary Duffy's critical initiative to modernize542the FAA's physical and technological infrastructure, so that the U.S.543continues to be the gold standard for global aviation. NATCA strongly544supports this initiative, and controllers play a critical role in the545development, testing, training, and implementation of new modernization546and safety programs. We also thank Congress for its downpayment to547modernize the air traffic control system. We look forward to working548with you to secure the remaining funding.549B. This Shutdown Pushed the System and Its Workforce to the Brink550    During the 43-day government shutdown, controllers and other551aviation safety professionals received one partial paycheck and then552missed two consecutive full paychecks. Asking these dedicated,553patriotic American workers to survive working full time for more than a554month without pay is simply not sustainable. That situation creates555substantial distractions for individuals who are already engaged in556extremely stressful work. The financial and mental strain increase557risks within the NAS, making the system less safe with each passing day558of a shutdown.559    As a result, NATCA advocates were tireless in their pursuit and560support of all possible solutions. NATCA consistently said that it561would support any measure that would end the shutdown and pay air562traffic controllers and other aviation safety professionals, including563a clean CR. NATCA also strongly supported other bills that would have564paid air traffic controllers during the shutdown.565    Another alternative that NATCA continues to strongly support is566Chairman Moran's bill, S. 1045, the Aviation Funding Stability Act of5672025, which would provide continuing appropriations for the FAA out of568the Airport and Airways Trust Fund in the event of a shutdown. Over the569years, NATCA has supported previous versions of this bill and currently570also supports substantially similar bills in the House of571Representatives introduced by Rep. Aaron Bean (FL-04), H.R. 5455, and572Rep. Steve Cohen (TN-09) and Rep. Andre Carson (IN-07), H.R. 5451.573    With the recent shutdown in the past, but with another funding574deadline looming in January, NATCA has turned its attention to575supporting, advocating for, and passing Chairman Moran's bill, the576Aviation Funding Stability Act of 2025. Shutdowns create real problems577for real American workers, but the Chairman's bill solves many of those578problems in a practical and sustainable way.579    If it were to pass, the Aviation Funding Stability Act of 2025580would ensure that the FAA could operate despite a government-wide581shutdown, meaning that controllers would not be forced to make582difficult practical and financial choices as a result of not being paid583such as how to pay for housing/rent, gas, food, and/or childcare584services. Thus, these controllers and other aviation safety585professionals would be able to remain completely focused on their586safety-critical jobs, instead of worrying about paying the bills.587II. Persistent Challenges Remain That Predated Shutdown588    As we mentioned earlier, controller staffing and modernization589funding challenges were two critical issues that predated the 43-day590government shutdown. That is why NATCA continues to strongly support591Secretary Duffy's initiatives to supercharge controller hiring and592training and modernize the FAA's physical and technological593infrastructure to support the NAS of the future.594A. Controller Staffing Remains Near a 30-Year Low and Had a595        Disproportionate596        Effect on System Capacity During the Shutdown597    The controller workforce has been understaffed for more than a598decade, resulting in mandatory overtime, including regular 10-hour days599and six-day weeks. Last year, controllers at 40 percent of FAA600facilities worked six days a week at least once per month. Several601facilities require six-day workweeks every week. The FAA and NATCA are602acutely aware of these thin staffing margins and the compounding603effects they have on controller stress and fatigue.604    NATCA remains focused on improving the system-wide controller605staffing shortage. A properly-staffed controller workforce is necessary606in order to safely and efficiently meet all of its operational,607statutory, and contractual requirements, while also having the608personnel resources to research, develop, deploy, and then train the609existing workforce on new procedures, technology, and modernization610initiatives. Without a sustainable hiring, training, and staffing model611like the one612    outlined in the FAA Reauthorization Act of 2024, which passed both613chambers with overwhelming bipartisan support, the FAA will struggle to614maintain the current capacity of the system, let alone modernize or615expand it for new users. This Committee should continue to oversee the616FAA's efforts to implement the staffing provisions contained in the617Reauthorization Act, including maximum hiring and deployment of Tower618Simulator Systems, which have proven to reduce training times by 27619percent.620B. FAA Safety and Technology Modernization Programs Need Additional621        Resources622    Controller staffing and infrastructure progress are inextricably623linked. A properly-staffed workforce of fully certified controllers is624needed for the FAA to successfully develop, test, deploy, and train the625workforce on new technology and modernization programs on time and626under budget. Without proper controller staffing, investments in627infrastructure and modernization programs will not yield their full628potential.629    It is critical that NATCA remain a productive and collaborative630partner throughout development, testing, training, and implementation631across a wide range of safety, technology, and modernization programs.632NATCA's continued involvement will ensure that the FAA delivers these633initiatives to industry stakeholders and the flying public on-time and634at a cost-savings to the American taxpayers. When NATCA representatives635are not involved throughout the entirety of a process, modernization636programs are delayed and experience cost overruns, because of637extensive, costly, and time-consuming revisions following development,638testing, and after implementation.639    The FAA also must continue to be transparent with its need for640increased Facilities and Equipment (F&E) funding so that it can meet641its own equipment sustainment, replacement, and modernization needs. If642not, it will continue to exacerbate the FAA's significant sustainment643and replacement backlog. Failing to maintain and replace critical644safety equipment that has exceeded its expected life introduces645unnecessary risk into the system. These funding limitations also have646prevented the FAA from designing and implementing new technologies that647will improve safety. We are encouraged that FAA has increased its F&E648request for Fiscal Year 2026 and the Senate Appropriations Committee649has increased its allocation for F&E.650C. FAA's Physical Infrastructure is Rapidly Aging and Many Facilities651        Have652        Exceeded Their Expected Lifecycles653    The FAA operates more than 300 air traffic control facilities of654varying ages and conditions. The FAA's 21 Air Route Traffic Control655Centers (ARTCCs) located in the continental United States were built in656the 1960s and are more than 60 years old. The FAA's Terminal Radar657Approach Control facilities (TRACONs) are, on average, more than 25658years old. In addition, the FAA has 132 combined TRACON/towers, which659are, on average, approximately 35 years old. Finally, the FAA has an660additional 131 stand-alone Towers which average more than 30 years old.661    Many FAA facilities have exceeded their expected lifecycles. Others662have major systems that have exceeded their expected functional663lifecycle such as roofs, windows, HVAC systems, plumbing, and664elevators, which no longer perform their necessary functions. Some of665these issues have led to periodic airspace shutdowns and many others666have led to safety concerns for the workforce. When these major systems667fail, or facilities have integrity problems, it can lead to increasing668delays, which negatively affect the flying public and the economy.669    The FAA is addressing its aging infrastructure through a670combination of (1) realignments and consolidations, (2) repairing,671sustaining, and maintaining some facilities, and (3) replacing a672handful of others. However, that process has been slow and hampered by673funding limitations. The FAA will need a substantially increased674investment in its F&E budget or a supplemental funding source to675adequately maintain, let alone, replace its aging physical676infrastructure.677    Although NATCA recognizes that the FAA's future facility footprint678is likely to be different than the current footprint, realigning and679consolidating facilities for the sake of consolidation--or based on680real estate considerations that are unrelated the agency's core681mission--is not in the best interest of the NAS or the flying public.682As the FAA considers options for ATC facility realignment and683consolidation, several key factors should be considered such as safety,684continuity, capacity and efficiency, cost savings, and the effects on685the workforce. NATCA stands ready to partner with Congress, the686Administration, and the FAA to address these critical issues.687III. Legislative Solutions to Future Shutdown Risks688    During the shutdown, NATCA consistently said that it would support689any measure that would end the shutdown and pay air traffic690controllers, including a clean CR. But NATCA also strongly supported691numerous other bills that would have paid controllers during the692shutdown. However, now is the time to pass long-term, meaningful693legislation so that controllers and other aviation safety professionals694don't ever have to experience that level of stress and financial695instability again.696A. NATCA strongly supports S. 1045, Chairman Moran's Aviation Funding697        Stability Act of 2025, which would ensure the FAA has stable698        and predictable funding in the face of future shutdown threats.699    Chairman Moran's bill, S. 1045, the Aviation Funding Stability Act700of 2025, would provide continuing appropriations for the FAA out of the701Airport and Airways Trust Fund in the event of a shutdown. NATCA also702supports substantially similar bills in the House of Representatives.703With another funding deadline looming in January, Chairman Moran's bill704has become one of NATCA's top priorities.705    During the shutdown, NATCA also supported several other Senate706bills that would have appropriated funds to pay Federal employees,707including NATCA air traffic controllers: S. 3012--The Shutdown Fairness708Act introduced by Sen. Ron Johnson (WI); S. 3039--The True Shutdown709Fairness Act introduced by Sen. Chris Van Hollen (MD); S. 3031--The710Keep America Flying Act introduced by Sen. Ted Cruz (TX); and S. 3043--711The Military and Federal Employee Protection Act introduced by Sen.712Gary Peters (MI).713    NATCA strongly supported each of these bills because they would714have alleviated the financial hardships created by the shutdown by715paying certain groups of Federal employees, such as air traffic716controllers and members of the military.717B. Other Aviation Safety Legislation718    NATCA strongly supports other legislation that would improve719aviation safety.720    One of those bills is the bipartisan agreement between Chairman721Cruz and Ranking Member Cantwell on S. 2503--the Rotorcraft Operations722Transparency and Oversight Reform (ROTOR Act), which would improve723aircraft safety in and around airports.724    Additionally, NATCA supports S. 1985--the Safe Operations of Shared725Airspace Act of 2025, which would improve aviation safety, enhance726safety reporting systems, improve controller training, and extend FAA's727max hiring requirements contained in the FAA Reauthorization Act of7282024 for an additional five years, because it will take a long-term729commitment to fully staff the air traffic controller workforce.730    Finally, NATCA supports both bills that Ranking Member Duckworth731and Senator Hoeven are soon to introduce regarding controller and pilot732mental health. Both the Mental Health in Aviation Act and the Aviation733Medication Transparency Act will improve safety by bringing mental734health to the forefront improving access to care and medication.735IV. Conclusion736    NATCA will continue to leave shutdown politics unrelated to737aviation safety to the elected representatives in Congress. Controllers738did not start the shutdown and were not responsible for ending the739shutdown.740    Congress now must engage in bipartisan negotiations on other741pressing issues facing our Nation so that we are not back in the same742position nine weeks from now. Congress also must prioritize passing743Chairman Moran's bill so this never happens to controllers and aviation744safety professionals again.745    NATCA looks forward to working with members of this Committee, the746Administration, appropriators, all other Members of Congress, and747aviation stakeholders to achieve these and many other shared goals.748    Thank you for holding this important hearing and providing the749opportunity to testify.750751    Senator Moran. Mr. Daniels, thank you. Senator Sununu--752Senator. Excuse me. I know a Senator Sununu. Governor Sununu.753754          STATEMENT OF GOVERNOR CHRISTOPHER T. SUNUNU,755756          PRESIDENT AND CHIEF EXECUTIVE OFFICER (CEO),757758                      AIRLINES FOR AMERICA759760    Mr. Sununu. Sorry, no senator here, but I appreciate it.761Well, let me just begin by obviously thanking Chairman Moran762and Senator Duckworth for holding the hearing. Coming off the763unprecedented 6-week shutdown, the airline industry definitely764appreciates the promptness that this body showed in having this765discussion on how government shutdowns not just affect the766airlines, but the American people and the American economy.767    I also want to recognize and thank the efforts of the TSA768employees, the CBP employees, and, of course, the air traffic769controllers represented here by Nick Daniels, all those770individuals who showed up week-in and week-out without771paychecks, without certainty, and made those personal772sacrifices because they understood that the national airspace773isn't something that this country can put at risk. They774understood that the airline industry and its people, they are a775national strategic asset and, I hope we can all agree, should776never be used as a political football. Now, the good news is we777all know that this problem can and should be avoided, and there778are opportunities before this body that would remedy the779situation, not just temporarily, but permanently. That leads me780to a special thanks to Chairman Moran for his Aviation Funding781Stability Act. We need solutions like this to be implemented to782shield the FAA and its workforce from the politics of a783shutdown.784    So, let me put into perspective the trends that the785industry saw and was forced to react to as that shutdown786progressed, one of the bigger questions that we receive.787Typically, on any given regular travel day, we can expect to788see any controller staffing shortages cause about 5 percent of789the overall delay. So, for every delay that's out there, 1 out790of every 20 might be because of a staffing shortage on a791typical day. And so, to ensure safety during the first 4 weeks792of the shutdown, we saw that number triple to 16 percent,793which, again, to put into perspective, the cancellations794weren't there, right? The delays were there because it was all795about safety, but for the cancellations in those first 4 weeks,796it was well under one percent of actual cancellations, which797means the system was slowed down with increased delays, but the798airlines, the FAA, the air traffic controllers themselves, they799were mitigating the situation around the clock to ensure that800passengers were getting where they were going and they were801doing it safely. It was a herculean effort, but with far better802results than were seen in the last 2019 shutdown.803    Then came Halloween, which was America's true nightmare for804our passengers. After four weeks of building pressures, the805controller shortage spiked and remained elevated through the806remainder of the shutdown. I'll leave it to Nick here to807describe a lot of the strains felt by each of those individuals808and their families, but understandably, it was clear that the809system that was understaffed and antiquated before the shutdown810was now overwhelmed. On November 6, the FAA released Order811Number 1, outlining the required airspace reductions starting812at four percent, with the idea that it would build to 10813percent of forced cancellations in about a week. And these814numbers may not sound like a lot, but for airline operations815that require crew placement, management, asset placement, you816know, moving the actual airplanes to get them into position and817repositioned, and then dealing with all the customer service818demands that inevitably will result from such cancellations, it819really became a 24-hour, nonstop logistical nightmare for the820airlines themselves.821    Just three days later, the number of delays had dropped,822but the cancellations increased, had skyrocketed not to 4, but823to well over 10 percent, and cancellations themselves increased824from about 140 around November 5 to 2,800, 20 times that, in825just 4 or 5 days. Luckily, the Senate passed the Continuing826Resolution less than a week after the initial order, but827believe me when I tell you that while safety was always828maintained through the shutdown, there were discussions within829the industry that in order to ensure that level of safety,830which is absolutely required, much larger portions of the831American commercial fleet may have to be grounded because,832logistically, it just wouldn't have been possible to keep833meeting those cancellation requirements.834    So, what did this cost us? And by ``us,'' I don't mean the835airlines. I mean, what did this cost America? The airlines836themselves were taking a hit of about $50 million a day just in837the potential refunds to canceled passengers, but, more838importantly, the American economy was feeling all of these839dominoes fall. And when you add the impact to airlines and840hotels and restaurants and rentals, the low estimate we found841says that the flight cancellation impact was close to $500842million per day by November 10, and for the entirety of the843shutdown, some estimates are clocking it at a $20 billion hit844to America's GDP.845    So, how do we make sure this doesn't happen again? First,846it's--as it was outlined here, Congress has to pass the847Transportation and Homeland Security appropriation bills, a848minimum first step that's critical for all airspace functions.849Second, Senator Moran's Aviation Funding Stability Act will pay850for FAA during times of government shutdown. It's a public-851private partnership, and we appreciation--we appreciate his852leadership to ensure that the government is living up to its853responsibility to the American public. And third, we're854grateful for the first $12-and-a-half billion, but there's855another $19 billion that absolutely has to come. Modernization856is absolutely key, but you can't just put in one piece of the857puzzle. The whole thing has to be there. And so, to ensure858those funds are there are going to be critical to making sure859that, again, we don't have a lasting problem in America's860airspace. Thank you.861    [The prepared statement of Mr. Sununu follows:]862863  Prepared Statement of Governor Christopher T. Sununu, President and864          Chief Executive Officer (CEO), Airlines for America865    Good afternoon, Chairman Moran, Ranking Member Duckworth and866members of the Subcommittee. My name is Chris Sununu, and I am the867President and CEO of Airlines for America (A4A). Thank you for inviting868me here today, and on behalf of all our A4A members\1\, I appreciate869the opportunity to participate in the Subcommittee's expeditious870examination of legislative solutions to end the practice of using the871traveling and shipping public as pawns during Federal government872shutdowns.873---------------------------------------------------------------------------874    \1\ A4A is the trade association for the leading U.S. airlines,875both passenger and cargo carriers. Members of the association are876Alaska Airlines; American Airlines; Atlas Air; Delta Air Lines; FedEx;877JetBlue Airways; Southwest Airlines; United Airlines; and UPS. Air878Canada is an associate member.879---------------------------------------------------------------------------880    The old adage ``the definition of insanity is doing the same thing881over and over again and expecting different results'' can surely be882applied to the circumstances of the last couple months and the specter883of yet another potential shutdown at the end of January 2026.884    Urgent Legislative Actions Needed: In the short term, I believe two885actions are clearly necessary:886887  1.  Congress must pass the Fiscal Year (FY) 2026 Transportation,888        Housing and Urban Development, and Related Agencies (THUD) and889        Department of Homeland Security (DHS) appropriations bills to890        make sure the Federal Aviation Administration (FAA),891        Transportation Security Administration (TSA) and Customs and892        Border Protection (CBP) are not subject to shutdown impacts for893        the rest of FY 2026; and894895  2.  Congress must identify and enact solutions that will ensure the896        FAA, TSA and CBP are insulated from the impacts of any future897        lapses in appropriations, ensuring their employees can continue898        their work uninterrupted and with pay.899900    Chairman Moran, I would like to specifically thank you for your901leadership in trying to find legislative solutions that would alleviate902many of the impacts felt by the aviation community and the traveling903and shipping public. The bill you introduced in March (S. 1045), which904would address the lapse in appropriations for the FAA, is a tremendous905starting point, and I am hopeful we can carry these types of provisions906over to the TSA and CBP who also play a critical role in supporting the907daily operations of the aviation sector.908    I am in no manner downplaying the criticality of other government909agencies or employees impacted by the shutdown; however, the unique910nature and funding structure of our aviation system should allow for911efficient and effective budgetary contingency plans that would allow912FAA, TSA and CBP to operate normally during shutdowns caused by a lack913of funding.914    Shutdown Impacts are Disastrous: More than most, this Subcommittee915knows that shutdowns are not new and they are becoming more frequent.916In just the last 15 years alone, the FAA has been subjected to several917partial or government-wide budget reductions and shutdowns.918919   In July 2011, the lapse in FAA's authorization caused the920        FAA to stop work on numerous projects including air traffic921        control modernization projects;922923   In April 2013, the government-wide sequester caused the FAA924        to furlough air traffic controllers resulting in massive delays925        throughout the air traffic control (ATC) system and the926        cancellation of hundreds of flights, impacting hundreds of927        thousands of passengers;928929   In October 2013, the government shutdown resulted in many930        FAA employee furloughs; and931932   In December 2019, the partial government shutdown resulted933        in many FAA employee furloughs.934935    Today, we find ourselves recovering from another government936shutdown--this one 43 days long, the longest in history, with the937looming threat of another in January.938    Too much is at stake to continue with the status quo. Commercial939aviation drives 5 percent of U.S. GDP and helps to support more than 10940million U.S. jobs. We operate the safest mode of transportation, with941U.S. airlines alone operating 27,000 flights carrying 2.7 million942passengers and 61,000 tons of cargo every day across the globe.943    Shutdowns drive both human and economic consequences and can impact944safety throughout the national airspace. Airlines effectively mitigated945the brunt of the impacts of the shutdown through October and early946November. After 5 weeks of managing an already strained system, fatigue947and economic pressures on controllers drove increased staffing triggers948resulting in the FAA implementing a flight reduction program for 40949airports around the country. The FAA cited an increase in pilot reports950that highlighted the growing weariness among air traffic controllers as951well as a couple of near-miss ground events that raised concerns among952the regulators. Administration officials linked this safety risk to the953financial strain of working without pay for such an extended period. We954cannot ignore the long-standing underlying issue, which is that our955system has been experiencing an air traffic controller shortage for956many years. A4A's top priority during the most recent FAA957Reauthorization cycle was to address the controller shortage as well as958our country's antiquated air traffic control technology. Unfortunately,959this shutdown moved ATC staffing and modernization efforts two steps960backwards.961    The data from this most recent shutdown shows the material impact962and real-world consequences of extended shutdowns and will hopefully963convince policymakers that we should never subject our air traffic964control system to this chaos again.965    Controller Staffing Triggers and Operational Limitations. According966to FAA data, controller staffing issues contributed to 5 percent of967National Airspace System (NAS) delay minutes from January through968September, jumping to 16 percent in October and 62 percent in November.969Over 6 million A4A member airline passengers were affected during the970shutdown.971972[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]973974    Many of the disruptions faced by passengers between October 1 and975early November were a function of controller staffing-driven flight976delays. During that period, A4A airlines incurred over 30,000 staffing-977related delays but were able to minimize cancellations to about 400978(<0.1 percent). This shutdown disrupted 3.7 million passengers in that979time period and pushed the airlines to scramble to minimize customer980impacts. The air traffic controller staffing issues then led to an981unprecedented shutdown consequence where the FAA issued an Emergency982Order (Order #1) directing air carriers to reduce domestic schedule983operations across the NAS at 40 airports. Specifically, Order #1984directed a 4 percent reduction in operations on Friday, November 7,985ramping up to 6 percent by November 11, 8 percent by November 13 and 10986percent by November 14. On November 12, citing substantial and rapid987improvement in facility staffing conditions, the FAA issued a new988Emergency Order (Order #2), which superseded Order #1. Order #2989modified the operational limitation escalation to 6 percent. From990November 7--the first day of the FAA-mandated flight-schedule991reductions--through November 12, A4A airlines incurred more than 15,600992staffing-related delays and more than 7,100 staffing-related flight993cancellations, disrupting 2.3 million passengers.994995[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]996997    The operational reduction percentages may seem trivial to the998average observer, but when put into context they are extreme. On999November 12, for example, 99.8 percent of the 861 staffing-related1000cancellations were attributable to FAA-mandated flight reductions at 401001airports. For perspective, in November 2024, data from the Bureau of1002Transportation Statistics show that U.S. airlines canceled just 0.461003percent of scheduled flights--and that's across all categories of1004causation, including NAS issues. Promulgating a cancellation rate of 61005percent for several consecutive days, if not longer, for ATC staffing1006reasons alone, without a chance for operations to recover, is highly1007disruptive to our customers and takes a toll on our frontline1008employees--at the airport, on the plane, on our help desks, etc. At the100940 target airports, applying the 6 percent directive translates to1010approximately 875 cancellations and 60,000 disrupted passengers per day1011which is more than 13 times the normal rate.1012    A4A estimates that if Order #1 would have reached the original 101013percent threshold, by November 14, the daily average toll on the U.S.1014economy would have reached as much as $580 million depending on the1015degree to which airlines could reaccommodate cancellation-disrupted1016passengers on the remaining flights.1017    Of note, that economic impact estimate is tied solely to compliance1018with the flight-reduction directive, and it does not include the costs1019associated with the value of passenger time, reduced bookings,1020passenger refunds, etc. It does include indirect and induced impacts1021tied to reduced visitor spending, state and local tax revenue and1022spending across the broader economy as individuals within and outside1023the aviation supply chain curtailed expenditures.1024    The air traffic controller staffing crisis also triggered broad1025secondary impacts. In many instances, even those passengers who1026successfully reach their destination encountered long departure delays,1027extended tarmac times and highly unpredictable arrival times. For the1028airlines, many flight crews were timing out (per regulated limits) or1029missing connections because of late aircraft arrivals and equipment1030mis-positioning.1031    For the controller staffing issues in particular, unlike weather-1032driven disruptions, each controller shift change or facility staffing1033trigger could result in added hours of delay with no advance notice,1034undermining the airlines' ability to plan, staff or accommodate1035impacted customers. Despite airline mitigations, it created mass1036disruptions and should serve as an example of the real-world economic1037and human impact of a government shutdown. This simply should never1038happen again, and it is most certainly preventable.1039    Transportation Security Impacts. Adequately staffing and supporting1040the DHS and its component agencies, TSA and CBP, is also extremely1041important to the smooth operation of the aviation sector and is vital1042to our industry. In 2025 to date, U.S. airlines have experienced travel1043volumes comparable to last year's all-time high. Several of the busiest1044days in TSA history have occurred in 2025, including a record-setting10453.1 million passengers and crewmembers screened on June 22.1046    Fortunately, from a TSA perspective, most hot spot locations during1047the shutdown were appropriately mitigated by TSA deploying personnel1048from its National Deployment Force to help support airports with higher1049travel volumes. However, as the shutdown progressed, some airports were1050starting to experience negative operational impacts of higher1051Transportation Security Officer (TSO) call-out rates.1052    The shutdown also had larger security impacts via the temporary1053expiration of several critical security authorities that the Committee1054and Congress should consider granting permanent authority in order to1055avoid future lapses. Specifically:10561057   TSA's Reimbursable Screening Services Program (RSSP): The1058        RSSP program is a vital component to distributed passenger1059        screening for the upcoming 2026 FIFA World Cup events and TSA1060        should be granted permanent authority.10611062   Authority for the Unified National-Level Response to1063        Persistent Unmanned Aircraft Systems (UAS) Disruption of1064        Operations at Core 30 Airports expired on Sept. 30, 2025. TSA1065        is the Lead Federal Agency responsible for overseeing any1066        Counter-UAS (C-UAS) response to persistent and disruptive UAS1067        activities at our Nation's airports. Disruptive UAS in1068        restricted airspace around our Nation's airports remains a1069        persistent and evolving threat with thousands of sightings1070        reported annually. Congress should extend and expand C-UAS1071        authorities immediately to ensure the NAS is protected from1072        errant, disruptive and nefarious UAS.10731074   The expiration of the 2015 Cybersecurity Information Sharing1075        Act (CISA'15) led many industries to reevaluate the risk of1076        voluntarily sharing cybersecurity information with the Federal1077        government. CISA'15 established a legal framework that is1078        intended to facilitate the voluntary sharing of cyber threat1079        indicators and defensive measures between and within the1080        Federal government and non-federal entities, including private1081        sector organizations and state, local, tribal and territorial,1082        including airlines.10831084    From a passenger travel experience perspective, the Administration1085was fortunately able to utilize reconciliation funds included in the1086One Big Beautiful Bill Act to fund and pay CBP officers and TSA air1087marshals during the shutdown.1088    However, that only covered law enforcement officers and is likely a1089one-time solution, not a long-term remedy to address future shutdowns.1090    Finally, we are also concerned that the shutdown negatively1091impacted operational readiness for upcoming global events like the 20261092FIFA World Cup and America 250. Much work will need to be done to1093prepare for the safe and secure execution of these events and1094unnecessary government shutdowns are detrimental to the public-private1095collaboration necessary to ensure transit to and from these events is1096safe and secure.1097Solutions--ATC Staffing, Brand New Air Traffic Control System, Never1098        Subject Aviation to Shutdown Again1099    Address the Air Traffic Controller Shortage. One of the biggest1100detriments to growth in the airline industry has been the ongoing air1101traffic controller staffing shortage, which was an acute issue prior to1102the shutdown and will only be exacerbated by the long-term impacts of1103the most recent shutdown. Beginning in October 2023, airlines reduced1104their flying from the New York metropolitan area by 10 percent to1105accommodate the lack of controller staffing at critical facilities.1106    In November 2024, the Department of Transportation Inspector1107General (DOT IG) put out its DOT Top Management Challenges report. That1108report states:11091110   ``. . . FAA has not ensured adequate controller staffing at1111        its most critical facilities. For example, we (IG) found that1112        20 of 26 critical facilities were staffed below the Agency's1113        threshold of 85 percent.''11141115   ``FAA's implementation of pauses in air traffic controller1116        training during the COVID-19 pandemic contributed to controller1117        staffing challenges by resulting in an increase in1118        certification times for controllers. FAA needs improved1119        resiliency in staffing and contingency planning for1120        disruptions, and our audit work shows that FAA's lack of a plan1121        to address these staffing challenges limits the capacity of the1122        NAS.''11231124    Build the Brand New Air Traffic Control System. The U.S. ATC system1125is very safe, but the lack of government action has made it1126inefficient, antiquated and far from the ``gold standard'' Americans1127deserve. Unnecessary travel delays cost the U.S. economy and passengers1128more than $30 billion annually. These delays are the direct result of1129systemwide ATC inefficiencies resulting from the use of outdated, World1130War II-era radar technology. Controllers are still using paper strips1131to control traffic instead of electronic strips. Some computer system1132updates are done with floppy disks. It should not be a surprise that1133flights between Washington, D.C., and New York used to take 55 minutes,1134but to account for air traffic delays and inefficiencies, these flights1135are now scheduled to take 80 minutes or longer. Despite being a vital1136part of U.S. economic infrastructure, our airspace and the technology1137that supports it is the modern equivalent of driving a horse and buggy1138on a gravel road. This lack of efficiency and the resulting reduced1139capacity directly and negatively impacts carriers' ability to grow and1140compete and robs consumers and the economy of growth, jobs and related1141benefits.1142    A4A is not alone with these recommendations, as we are part of an1143unprecedented, industry-wide broad aviation community coalition1144established earlier this year, the ``Modern Skies Coalition''. The1145coalition wholeheartedly endorses Secretary of Transportation Duffy's1146plans to ``supercharge'' air traffic controller hiring at the Federal1147Aviation Administration (FAA) and modernize the air traffic control1148system. The Coalition strongly supported Congress's $12.5 billion1149downpayment toward air traffic control modernization and we continue to1150advocate in support of Secretary Duffy's acknowledgment that additional1151funding of at least $19 billion will be needed to completely build a1152new air traffic control system.1153    The most recent shutdown distinctly showed the lengths at which the1154FAA and the aviation community will go to maintain safety in the1155system, but it also plainly displayed the system's growing1156inefficiencies fragility. Congress has a responsibility to establish a1157governance and funding system that will provide stable and predictable1158funding to not only avoid future shutdown scenarios but also1159holistically address the controller shortage and the efficiency of the1160ATC system.1161Ensure the FAA Is Not Harmed by Another Government Shutdown1162    This shutdown has demonstrated the serious safety, human and1163economic consequences of subjecting the aviation sector to this kind of1164stress and chaos. It must never happen again.1165    To that end, we strongly support Senator Moran's bill, S. 1045,1166that ensures that FAA continues to operate during a government shutdown1167by drawing on monies from the Airport and Airway Trust Fund (AATF). We1168know that aviation is an ecosystem and would additionally support the1169ability to pay TSA and CBP from existing user fees. We look forward to1170continuing to work with authorizers and appropriators on any1171legislation that meets our goals of ensuring safety and the operating1172integrity of the FAA, TSA and CBP. Any bill achieving these goals will1173have our support. This shutdown has demonstrated that our system can no1174longer withstand being collateral damage of Washington policy debates.1175The Congressional Budget Office's (CBO) January 2025 baseline1176projections for the AATF show end-of-year uncommitted balances of $4.81177billion in FY 2025 and $12.4 billion in FY 2035.1178    Our view is that the Administration and Congress should make1179changes to its administration of the AATF in such a way that continues1180the appropriators and authorizers important oversight role while giving1181the FAA the ability to more effectively utilize the AATF balance. This1182would bring the FAA's Operating and Facilities & Equipment (F&E)1183capital programs more in line with the approach taken for other1184transportation programs like the Harbor Maintenance Trust Fund, surface1185transportation contract authority from the Highway Trust Fund and the1186Airport Improvement Program.1187    We stand by to engage and discuss optimal pathways for creating1188sustainable and predictable funding mechanisms with Congress. Along1189with a general fund contribution, the FAA is mainly funded from the1190AATF, which is supported by aviation fuel taxes, ticket taxes and other1191fees. The FAA must be allowed to fully utilize the existing funds1192within the AATF to meet current obligations under the recently passed1193FAA reauthorization law and execute long-term focused investment to1194modernize the national air space. Developing a predictable source of1195funding via a multi-year account is necessary to begin recapitalizing1196major infrastructure assets and ensure the continued safety and1197efficiency of U.S. airspace.1198Conclusion1199    On behalf of our member airlines, I would be remiss not to1200acknowledge and sincerely thank the dedicated employees at the DOT,1201FAA, DHS, TSA, and CBP who dutifully went to work during the shutdown.1202Despite significant and prolonged hardships, they kept our aviation1203system operational and safe. We are extremely grateful for their1204efforts and hopeful that their professionalism does not come into play1205again on January 30, 2026.1206    Thank you again for the opportunity to testify. As we approach1207Thanksgiving--which is expected to see a record 31 million passengers1208over the holiday--I strongly urge Congress to pass the annual1209appropriations bills and find long-term solutions to expeditiously1210enact practical solutions that will eliminate any future air1211transportation disruptions caused by government shutdowns.12121213    Senator Moran. Thank you. Mr. Viola.12141215           STATEMENT OF JAMES A. VIOLA, PRESIDENT AND12161217           CHIEF EXECUTIVE OFFICER, GENERAL AVIATION12181219                   MANUFACTURERS ASSOCIATION12201221    Mr. Viola. Senator Moran, Senator Duckworth, and members of1222the Subcommittee on Aviation Space and Innovation, thank you1223for inviting me to testify regarding the impact of the recent1224government shutdown on the aviation sector. GAMA is privileged1225to represent companies that continuously modernize and improve1226existing aircraft fleet and are working on new aircraft and new1227technologies that will transform aviation. I want to1228acknowledge the dedication and sacrifice of the FAA employees1229and others who are responsible for the safety and the security1230of the aviation sector. They have conducted themselves1231commendably, despite multiple missed paychecks and job1232uncertainty.1233    As a former FAA employee, I saw firsthand how difficult1234shutdowns are for the Agency and the workforce, and I know1235they're not easily recovered from. The shutdown limited the FAA1236to conducting essential activities only, which are those1237necessary to protect life and property or required by law. As1238the shutdown continued, the FAA recognized that the delays in1239oversight and design approval certification activities were1240increasing and delaying U.S. development of product1241improvements and safety-enhancing technologies, and the1242leadership began to call back more of the workforce inside the1243FAA to conduct additional safety oversight and limited1244certification activities. Nevertheless, the shutdown1245significantly disrupted important activities of the FAA,1246including areas that this Congress prioritized during the FAA1247Reauthorization Act of 2024, such as FAA workforce growth and1248development, FAA certification activities, and the support of1249U.S. technologies and innovation.1250    The most important impact of the 2025 government shutdown1251on manufacturers is that they saw no new certification projects1252or other applications were allowed to start. Even with the1253shutdown's end now, the FAA will be unable to act upon all1254those new applications immediately, which will likely take1255months before they can get at them. The FAA certification and1256safety workforce, recruiting and skills enhancement, and1257training initiatives were also severely impacted by the1258shutdown. We are very concerned about approximately 6001259engineers, pilots, inspectors, and technical specialists that1260AVS was actively hiring when the shutdown began on October 1.1261These candidates were left in limbo and may now decide not to1262pursue Federal employment. The shutdown also resulted in missed1263opportunities to advance U.S. leadership in global1264international aviation forums that support U.S. aviation1265standards and technology. It also delayed critical safety1266oversight functions, like flight testing, and those will1267require months to reschedule.1268    Another area of continued impact is rulemaking, again,1269including many directed by the 2024 Reauthorization Act, in1270areas like aviation safety, cybersecurity, certification1271modernization, and drone detect-and-avoid technology. These1272issues underscore the importance of Congress acting quickly now1273to pass the Fiscal Year 2026 Transportation, Housing, and Urban1274Development appropriations bill. Passage will provide the1275needed stability to the Agency and allow for key investments in1276the workforce modernization and aviation safety. We strongly1277support Senator Moran's Aviation Funding Stability Act to avoid1278effects of future shutdowns, as well as legislation introduced1279by the House Transportation and Infrastructure Chair Graves,1280and Ranking Member Larsen, and others to address these issues.1281We appreciate these initiatives and will stand ready to work1282with everyone to find the best path forward.1283    In the wake of the accident at DCA, the aviation industry1284came together to form the Modern Skies Coalition to focus on1285air traffic modernization and staffing issues. The shutdown was1286counterproductive to these modernization and staffing efforts.1287Like the aviation safety and regulatory issues I discussed1288earlier, we must all work to regain that momentum on these1289modernization priorities. It is a national imperative.1290    GAMA appreciates the opportunity to share the manufacturer1291industry's perspectives today, and I look forward to working1292with members of this subcommittee on efforts to improve the1293strength and operation of the FAA. Thank you, and I look1294forward to your questions.1295    [The prepared statement of Mr. Viola follows:]12961297  Prepared Statement of James A. Viola, President and Chief Executive1298          Officer, General Aviation Manufacturers Association1299    Senator Moran, Senator Duckworth, and members of the Subcommittee1300on Aviation, Space, and Innovation, on behalf of the General Aviation1301Manufacturers Association (GAMA), thank you for inviting me to testify1302on the impact of the recent government shutdown on the aviation sector.1303We appreciate the opportunity to highlight how the Federal Aviation1304Administration (FAA) and partner agencies have fulfilled essential1305services and worked with manufacturers, maintenance, and training1306providers since October 1st to keep the FAA certification process and1307other aspects of aviation safety functioning during difficult times as1308well as outlining some impacts on product development, innovation, and1309U.S. aviation global leadership. Finally, I want to highlight some1310steps where industry and government can work together to advance1311aviation safety, its economic contributions, and competitiveness.1312    By way of background, GAMA is an international trade association1313representing more than 140 companies which comprise most of the world's1314leading manufacturers of general aviation airplanes, rotorcraft,1315engines, avionics, advanced air mobility powered lift aircraft,1316components, and related technologies. GAMA members are also providers1317of maintenance and repair services, fixed-based operations, pilot and1318maintenance training, and aircraft management companies. In the U.S.,1319general aviation supports $339 billion in total economic output1320annually and 1.3 million total jobs\1\, with GAMA companies having1321facilities in 49 states. General aviation contributes to the economies1322of all 50 states and the District of Columbia.1323---------------------------------------------------------------------------1324    \1\ Contribution of General Aviation to the U.S. Economy, PwC,1325February 20251326---------------------------------------------------------------------------1327    First and foremost, I want to acknowledge the dedication and1328sacrifice of Federal employees, including those at the FAA, partner1329agencies, and contractors, who are responsible for the safety,1330security, and economic health of the aviation sector. They have missed1331multiple paychecks, creating economic and emotional distress for1332employees and their families, including job status concerns in some1333cases. As a former FAA employee, I have seen how difficult shutdowns1334are for the agency and its workforce and know firsthand they are not1335easily recovered from. While the controller workforce has rightly been1336the focus of attention, these pay and job issues have challenged1337thousands of FAA employees, including those dealing with aviation1338safety issues for certification, manufacturing, operations,1339maintenance, and training.1340    On a personal and professional level, myself, my colleagues, and1341the companies that we are privileged to represent deeply value these1342public sector servants. Retaining them and providing support is1343critical to ensure our industry and nation can recover from this1344setback. The U.S. aerospace sector is an extremely complex and1345interdependent system that relies on fully functioning government and1346industry partners to thrive.1347Managing the 2025 Shutdown for Aviation Manufacturing, Maintenance, and1348        Training Organizations1349    The shutdown limited FAA to conducting essential activities which1350are those ``necessary to protect life and property'' or required by1351law. For GAMA member companies, this was confined to safety inspections1352and oversight, continued operational safety and addressing unsafe1353conditions through Airworthiness Directives. A significant number of1354the FAA workforce in the Aviation Safety Aircraft Certification and1355Flight Standards offices were put on furlough. FAA leadership exercised1356discretion, within the limits of the law, to identify available options1357to enable safety and productivity. Consistently, the agency, its1358leadership, and workforce engaged with our member companies to ensure1359we were kept informed and addressed issues as they arose. This includes1360working with manufacturers and maintenance providers proactively to1361conduct safety oversight and authorizations to enable ongoing aircraft1362certification, production, and airworthiness activities. The ability1363for manufacturers to continue product development certification and1364manufacturing is largely attributed to the abilities of companies to1365utilize existing FAA-approved delegation and related authorities.1366However, the ability to maintain support for programs was hampered1367because FAA was unable to fully engage in continued designee1368appointment and oversight activities. Since the ability to travel was1369severely restricted, the FAA was able to leverage alternate methods for1370conducting oversight and witnessing key activities, including the use1371of locally available resources and digital capabilities like video.1372    The FAA recognized that delays in oversight and design approval1373certification activities increase systemic risk. In addition, this1374delays U.S. development of product improvements and safety-enhancing1375technologies from entering the National Airspace System (NAS). As the1376shutdown continued to extend into weeks, FAA started to recall portions1377of the workforce to conduct additional safety oversight,1378authorizations, and certification activities which enabled1379manufacturers, repair stations, and training organizations to safely1380continue ongoing operations.1381    Partner agencies are also to be commended for their management1382during the six-week shutdown. The U.S. National Transportation Safety1383Board (NTSB), supported by FAA engineers, pilots, and inspectors as1384needed, continued to launch and conduct investigations of accidents1385that occurred during the past month-and-a-half. This is a different1386approach from the 2018-2019 shutdown where NTSB only conducted limited1387work during the funding lapse which caused a significant backlog that1388the agency spent years recovering from with implications on volume and1389timeliness to complete reports.1390    Along with its critical role in security screening, the U.S.1391Transportation Security Administration (TSA) has also supported the1392general aviation sector. The agency's Enrollment Services and Vetting1393Programs (ESVP) team conducted vetting of our pilots and training1394centers to support the industry during the shutdown. We want to say1395thank you to the TSA staff for their commitment to securing the1396transportation sector during these difficult times.1397Near and Long-Term Impacts of the 2025 Government Shutdown1398    Despite this tremendous work and sacrifice by the FAA workforce,1399the shutdown significantly impacted important activities of the agency1400and U.S. manufacturers and aviation businesses. Many of the areas1401facing disruption were areas this Committee, and Congress as a whole,1402prioritized during the FAA Reauthorization Act of 2024 (P.L. 116-83)1403including international leadership; FAA workforce growth and1404development; supporting U.S. technology and aviation; important1405aviation safety, security, and technology rulemakings; and1406modernization of the certification processes. The FAA is now in a1407deeper hole for addressing these and meeting congressional direction1408and intent.1409    The most significant impact of the 2025 government shutdown on1410manufacturers is that no new certification projects were allowed to1411start which impacted the pace of U.S. aerospace innovation and1412completely halted new business activities. During the shutdown, the FAA1413could not accept or facilitate work on any new applications for design1414and production approvals. GAMA is privileged to represent companies1415that continuously modernize and improve the existing aircraft fleet1416through safety retrofits, avionics upgrades, improved systems1417reliability fixes, and deployment of NTSB recommended safety1418enhancements. In addition, these companies are investing in the1419development of new future aircraft and technologies that could1420transform aviation. But the government shutdown results in delays to1421these projects. This significant backlog includes supplemental type1422certificates and modifications to existing aircraft. For example, there1423are many repair stations located in nearly every state which install1424supplemental type certificates (STCs) for new safety enhancing and1425other modern capabilities in aircraft. It is very common for customers1426to have specific requests for modification to their aircraft such as a1427different model of equipment, type of seat, or interior configuration1428which requires a change to the previously approved STC. The FAA will be1429unable to act upon all these new applications immediately and these1430will likely impact certification activities for months to come.1431    FAA Aviation Safety workforce in aircraft certification and flight1432standards recruiting and skills enhancement and training initiatives1433were also severely impacted by the shutdown. As an organization that1434has endured leadership changes and retirements, the opportunity to grow1435and maintain technical expertise is critical and something that the14362024 FAA Reauthorization strongly encouraged. A significant concern1437involves the approximately 600 engineers, pilots, inspectors, and1438technical specialists that AVS was actively hiring when the shutdown1439began. These candidates were left in limbo and may now decide not to1440pursue Federal employment. It takes 6-12 months to train a new1441certification engineer before they can just start to be productive. It1442is a multi-year process to qualify a new flight test pilot. This1443highlights the compounding effect of lost time and lost applicants. It1444isn't a six-week disruption, it's a multi-year set back, particularly1445for highly technical and unique skills such as structural loads,1446software, hybrid propulsion, system safety, and flight test pilots.1447    For these highly technical safety positions, direct-hire authority1448is one of the FAA's most effective tools for attracting, rebuilding and1449sustaining the specialized technical talent pipeline and ensuring the1450agency can meet its safety mission, support U.S. innovation, and uphold1451global aviation leadership. The FAA competes directly with1452manufacturers, technical firms, and global aerospace companies for the1453same highly skilled professionals, and industry hires in days while the1454traditional Federal hiring process can take months. Direct-hire1455authority allows the FAA to recruit in weeks instead of losing top1456candidates to faster-moving employers. Several of these direct-hire1457authorities for engineers, pilots, and inspectors expire at the end of1458this year so we recommend that this be extended or permanently1459implemented for these highly specialized safety positions particularly1460given the shutdown.1461    Additionally, the FAA was prevented from engaging in key aviation1462safety and cooperation leadership discussions both domestically and1463internationally. During the months of October and November, the FAA had1464to cancel InfoShare, the premier annual aviation safety data exchange1465conference, and was unable to fully participate in events at the1466International Civil Aviation Organization, Annual Certification1467Management Meetings with leading states of design, to advance aviation1468safety bilateral cooperation.1469    This inactivity reduces U.S. global leadership in aviation and1470misses opportunities to advance standards and implementation procedures1471which facilitate efficient global acceptance of new aviation products1472and technologies such as commercial aircraft, Advanced Air Mobility1473powered-lift aircraft, and electric and hybrid propulsion systems.1474Typically, strong engagement in these meetings provides opportunities1475to engage and establish global standards, promote safety, and1476facilitate industry growth. Because of the government shutdown, FAA1477participation was cancelled or limited in nature, diminishing the1478agency's leadership and standing with their peers. Competing1479authorities continue moving forward while FAA is frozen, making the1480U.S. appear unreliable as a certifying authority and, because of U.S.1481absence at international aviation standards meetings, provide1482opportunity for foreign States of Design to shape global rules.1483    Limitations on agency travel during the government shutdown have1484also had strong impacts. There are certain certification testing1485activities which require FAA involvement with technical experts that1486are not available at local offices. For example, FAA flight testing is1487a critical activity that requires specific pilot expertise which is1488very limited and tightly scheduled but needed across all aircraft1489manufacturers. The inability to conduct all needed safety functions1490such as flight testing directly impacts critical FAA resources and has1491created a backlog of activities that will continue to delay1492manufacturer certification activities for several months. This adds1493uncertainty and a lack of predictability in government and industry1494planning and coordination and undermines the agency's ability to meet1495commitments that slow down critical agency oversight and the work of1496U.S. manufacturers.1497    FAA workforce availability is essential to effectively and1498efficiently work through the backlog of activities that build up during1499the shutdown and restoring U.S. aviation business activities and1500competitiveness in product development, innovation, manufacturing, and1501global exports. Given the amount of change and uncertainty for the1502Federal workforce this year, further exacerbated by the six weeks of1503shutdown, one of the greatest challenges and significant risk to1504recovery is the backlog of the individual personal time off (PTO)1505``use-or-lose'' annual leave benefit which must be used by January 10,15062026, or be forfeited. Consistent with what was implemented following1507the 2018-2019 shutdown, we recommend that the Administration extend the1508ability for Federal employees to use their earned PTO annual leave1509benefit at least to the end of CY2026 so that the FAA does not face a1510significant workforce shortage in November and December when they are1511needed most for starting to make up for lost ground.1512    Another area where there are impacts is the FAA's regulatory and1513rulemaking efforts. A contributing factor in delaying U.S. manufacturer1514product development activities, preventing safety and innovation from1515moving forward and benefitting the aviation system, has been1516significant delays in the FAA's promulgation of rulemaking, policies,1517and guidance. This has caused a large backlog of regulations, technical1518standards, policy memos, orders, and advisory circulars which enable1519new products and technologies and efficient certification processes.1520    Delays in promulgating modernization updates to airworthiness1521standards impede industry's ability to implement safety improvements1522and enhancements. This also causes significant regulatory and cost1523burdens on both industry and FAA by requiring individual redundant and1524inefficient processes for issue papers, special condition and exemption1525rulemakings, increasing risk and unpredictability when these regulatory1526materials are not adopted in a final format. Unfortunately, FAA1527regulatory and rulemaking processes for new standards and technology1528during the shutdown ceased, further compounding a situation that was1529already challenging. The result is that efforts to improve1530coordination, and yield support for safety, innovation, and1531international leadership for the entire aviation sector were1532effectively put on hold. This includes key congressionally directed1533rulemaking efforts in the 2024 FAA Reauthorization Act. For example,1534work halted on current priority rulemakings such as disclosure of1535safety-critical information, cyber security, 5G radar altimeter safety,1536and transport airplane and propulsion certification modernization, as1537well as regulatory standards and materials to enable new technologies1538such as unmanned aircraft system detect and avoid.1539    Along with their other significant oversight activities, the FAA1540Flight Standards team has continued to provide oversight of our member1541company pilot and maintenance training centers, recognizing these1542industry operational capabilities as ``essential'' to support aviation1543safety. However, all new activities such as the qualification of new1544simulator equipment, course approvals, and new examiner designees were1545put on hold. The FAA resources to perform this work are already scarce1546and, based on the experience of the 2018-2019 shutdown, it may take six1547to nine months to recover in this area, constraining the capacity to1548maintain and train the pilot workforce.1549Preventing Future Shutdowns1550    The extension of Federal funding until January 30, 2026, means that1551it is imperative for Congress to act swiftly in passing a Fiscal Year155226 (FY26) Transportation, Housing and Urban Development (THUD)1553Appropriations bill. While these proposed funding levels need to be1554reconciled and a final bill needs to be considered and passed, this1555legislation will make key investments in agency workforce staffing and1556training, modernization efforts, and aviation safety. We strongly urge1557policymakers to work to prioritize and complete a FY26 THUD Bill.1558Missing the opportunity to do so will only compound the challenges that1559the agency was already facing and have now mounted because of the1560government shutdown.1561    In the past, Congress has acted to address problems that have1562occurred at the FAA due to government shutdowns. For example, during a1563government shutdown in 2013 the FAA Registry Office was subject to1564closure, halting the registration and delivery of aircraft impacting1565almost $2 billion in transactions\2\. The U.S. Congress addressed this1566in the 2018 FAA Reauthorization (P.L 115-254) and deemed the office1567essential. Even with this legislation, the FAA realized that additional1568action needed to be taken to realize the full purpose of this1569legislation and has acted during this shutdown to enable the issuance1570of airworthiness certifications.1571---------------------------------------------------------------------------1572    \2\ GAMA Press Release--October 7, 20131573---------------------------------------------------------------------------1574    For GAMA, and other industry leaders, it is critical that Congress1575take action to prevent future shutdowns from hampering the critical1576work of the FAA. Senator Jerry Moran (R-KS) has introduced S. 1045, the1577Aviation Funding Stability Act of 2025, and similar legislation has1578been introduced by Congressmen Steve Cohen (D-TN), Andre Carson (D-IN)1579and Aaron Bean (R-FL) in the House. This legislation would enable the1580FAA to draw from the Airport and Airways Trust Fund, funded by users of1581the aviation system, to preserve the air traffic and safety operations1582of the agency. GAMA strongly supports this legislation and is open to1583working with all interested members on the best way to enact1584legislation that would protect the FAA as an entity from future1585shutdowns.1586The 2025 Government Shutdown and Air Traffic Modernization Efforts1587    As we have seen, the 2025 government shutdown has led to air1588traffic challenges across the U.S. We owe a great deal of gratitude to1589FAA management and the controller and technician workforce in managing1590these challenges. Despite those efforts, commercial, cargo, business,1591and general aviation operations have all been reduced during the1592shutdown to work to maintain aviation safety and address increased1593risk.1594    In the wake of the accident at DCA, the aviation industry came1595together to form the Modern Skies Coalition, and GAMA is a proud1596Steering Committee member along with A4A and NATCA and many others.1597This broad group of industry stakeholders, including airlines,1598operators, manufacturers, labor unions, and airports have identified1599the following priorities:16001601   Robust funding for FAA to make critical ATC technology and1602        infrastructure investment and to strengthen controller and1603        technician staffing and training.16041605   Direction to FAA to achieve prudent divestment from legacy1606        NAS elements and utilize existing procurement authority to1607        facilitate the effective deployment of state-of-the-art1608        technology.16091610   Realignment and modernization of ATC facilities to improve1611        operational efficiencies and leverage technological1612        developments.16131614   Exempting the FAA from government shutdowns to ensure more1615        predictable funding and support for continued safety and air1616        traffic control personnel hiring and training, and other1617        critical FAA personnel.16181619   Continuation of general fund support for FAA operations and1620        consideration of additional flexibility within the Airport and1621        Airways Trust Fund to manage long-term facility and technology1622        upgrades.16231624    Thanks to this Committee, Congress took a big step forward in the1625One Big Beautiful Bill Act (P.L. 119-21), in terms of progress on air1626traffic control investment. The law provided $12.5 billion as a1627downpayment for ATC modernization efforts focused on the replacement of1628FAA radar and information display systems, construction of a new air1629traffic control center and realignment of existing facilities,1630recapitalization of terminal radar approach control facilities, and1631other safety and infrastructure investments.1632    While this is an important step, we know much work remains to1633modernize the U.S. ATC system. Notably, Transportation Secretary Duffy1634has repeatedly stated the cost of this effort is likely to be at least1635$31.5 billion. Subsequent investment is likely to be focused on areas1636like a common automation platform and investment in air traffic towers1637and facilities. The shutdown was counterproductive to these1638modernization efforts and the addressing of controller staffing issues.1639Like the aviation safety and regulatory issues, we must all work to1640regain momentum on these Modern Skies priorities. It is a national1641imperative.1642Conclusion1643    GAMA appreciates the opportunity to share these perspectives with1644the members of the Senate Aviation, Space, and Innovation Subcommittee.1645The aviation sector needs policymakers to work in a bicameral and1646bipartisan fashion to provide stability to the agency and make critical1647investments to advance safety and efficiency improvements for the1648industry. We now have more to overcome but the U.S. is on the cusp of a1649new dawn in aviation technology and innovation that will be considered1650one day in line with other achievements like the Wright Brothers at1651Kitty Hawk in 1903, and the moon landing in 1969.1652    It is our hope that these policy suggestions inform you and your1653colleagues on ways to improve the strength and operation of the FAA1654given its criticality in supporting aviation safety, air service to all1655U.S. communities, and economic growth and competitiveness. Thank you1656and we look forward to working with this Subcommittee on these critical1657initiatives.16581659    Senator Moran. Thank you, Mr. Viola. Mrs. Spickler, you're1660now recognized for five minutes.16611662             STATEMENT OF EILEEN SPICKLER, ADVOCATE16631664    Mrs. Spickler. Thank you. Aviation Subcommittee Chair Moran1665and Aviation Subcommittee Ranking Member Duckworth, thank you1666for holding this hearing and for inviting me to be here today.1667Senator Moran, it was really nice to meet you in the airport1668yesterday. My name is Eileen Spickler, and I live in Ottawa,1669Kansas with my husband, Barry, who is here with me today. We1670moved to Kansas seven years ago from Gaithersburg, Maryland, to1671be closer to Barry's kids and grandkids. Being here has been a1672blessing and has allowed us to watch the grandchildren grow up.1673    I would like to sit here and tell you that we were affected1674by the many airport delays and canceled flights that were1675happening around the country. I have nothing but the utmost1676respect for the hardworking TSA agents, air traffic1677controllers, and others who worked overtime during the1678shutdown. The truth is that Barry and I cannot afford to travel1679right now. We would love to be able to visit friends and1680family, but the cost of a flight is just completely1681unfathomable to us right now. We are barely scraping by and1682struggling to afford our basic needs, and our healthcare costs1683keep going up each year. The only way we could be here today is1684due to the support of Families USA, and I want to thank Senator1685Duckworth's office for inviting us to share our story.1686    My husband, Barry, retired in--retired in June 2024 after168715 years of working as a government contractor for the Food and1688Drug Administration and after nearly 50 years in the workforce.1689Barry's retirement came earlier than we intended at age 63.1690Because the budget for his FDA contract was cut as a remote1691worker, Barry was marked for layoff because he could not report1692in person to Maryland. That's when our financial troubles1693really started, and it has been nearly impossible to keep our1694head above water ever since.1695    Barry runs a guitar booth at a local antique store and1696hosts weekly jam sessions for fellow musicians. He no longer1697has employer-sponsored health insurance, so in June 2024, we1698enrolled Barry in health insurance, joining the 200,000 Kansans1699on the ACA marketplace. Since enrolling in ACA coverage, Barry1700has undergone treatment for two kidney stones, one of them life1701threatening, and received numerous MRIs, CT scans, and X-rays1702that have all been covered by insurance. His plan is not1703perfect, and the cost of co-pays, premiums, and prescriptions1704have gone up each year, but the monthly payments have been1705affordable enough with the tax credits, and it has allowed1706Barry to get the care he needs. In 2025, we paid $109 a month,1707and we received almost $1,200 per month in subsidies. If it1708weren't for the premium tax credits, we would not have been1709able to afford insurance for Barry at all, and, honestly, I1710don't know where we'd be--or if we'd even be sitting here1711before you. Access to affordable health insurance is life and1712death for us.1713    In 2026, our plan is going up 125 percent, from $109 to1714$246 a month. Because of this increase and with the tax credits1715set to expire, we have decided not to enroll Barry in coverage1716for next year, and he will go uninsured until March when he is1717eligible for Medicare. At our age and with Barry's health1718issues, I'm terrified that in these two months, we could be1719faced with a health emergency we can't afford, and we'll end up1720buried in a mountain of medical debt. For the first time in our1721lives, we wait in line every other week at food pantries1722because that's the only way to afford our groceries. Earlier1723this week, the line in Ottawa was twice as long as it ever had1724been with an almost 3-hour wait.1725    We are so grateful for the Affordable Care Act because it1726has made it possible for us to survive on as little as we have1727right now. We're about $100 a month over the poverty limit for1728Medicaid because Kansas is 1 of 10 states that has not expanded1729Medicaid. I am a cancer survivor, an aggressive cancer with a1730high likelihood of a recurrence, and I'm still in treatment 91731years later. I receive disability benefits and Medicare. The1732peace of mind of knowing that we both have affordable health1733insurance is everything to me, but these last few weeks,1734knowing we're facing a gap in Barry's insurance for next year1735is terrifying for us both.1736    Our story is unique, but we are not alone. There are 221737million Americans that use the premium tax credits to help them1738stay on health coverage. I am here fighting for my family and1739for the millions more who know the struggle of fighting to1740afford basic needs like healthcare. Healthcare is a human1741right. Nobody should go without it, and what is the point of1742having a healthcare plan if you can't afford to use it? I hope1743you will remember my story and take immediate action because we1744cannot afford to wait.1745    Thank you for your time and for the chance to tell my1746story.1747    [The prepared statement of Mrs. Spickler follows:]17481749                 Prepared Statement of Eileen Spickler1750    Chair Cruz, Aviation Subcommittee Chair Moran, Ranking Member1751Cantwell, and Aviation Subcommittee Ranking Member Duckworth, thank you1752for holding this hearing and for inviting me to be here today.1753    My name is Eileen Spickler and I live in Ottawa, Kansas with my1754husband, Barry, who is here with me today. We moved to Kansas seven1755years ago from Gaithersburg, MD, to be closer to Barry's kids and1756grandkids. Being there has been a blessing and has allowed us to watch1757the grandchildren grow up. We also have three adorable, fluffy and1758snuggly cats--Angie, Kimmie, and Lilly--whom we adore.1759    I would like to sit here and tell you that we were affected by the1760many airport delays and cancelled flights that were happening around1761the country. I have nothing but the utmost respect for the hardworking1762TSA agents, air traffic controllers, and others who worked overtime1763during the shutdown.1764    But the truth is that Barry and I cannot afford to travel right1765now. We would love to be able to visit friends and family, but the cost1766of a flight is just completely unfathomable to us right now.1767    We are barely scraping by and struggling to afford our basic needs,1768and our health care costs keep going up each year. The only way we1769could be here today is due to the support of Families USA, and I want1770to thank Senator Duckworth's office for inviting us to share our story.1771    My husband Barry retired in June 2024 after 15 years working as a1772government contractor for the Food and Drug Administration, and after1773nearly 50 years in the workforce. Barry's retirement came earlier than1774we intended, at age 63, because the budget for his FDA contract was1775cut. As a remote worker, Barry was marked for layoff because he could1776not report in person to Maryland.1777    That's when our financial troubles really started and it's been1778nearly impossible to keep our head above water ever since. Barry now1779runs a guitar booth at a local antique store and hosts weekly jam1780sessions for fellow musicians. He no longer has employer-sponsored1781health insurance, so in June 2024 we enrolled Barry in health1782insurance, joining the 200,000 Kansans on the ACA marketplace.1783    Since enrolling in ACA coverage, Barry has undergone treatment for1784two kidney stones, one of them life-threatening, and received numerous1785MRIs, CT scans, and X-rays that have all been covered by insurance. His1786plan isn't perfect, and the cost of co-pays, premiums and prescriptions1787have gone up each year, but the monthly payments have been affordable1788enough with the tax credits and it has allowed Barry to get the care he1789needs.1790    In 2025, we paid $109 a month and we received almost $1,200 per1791month in subsidies. If it weren't for the premium tax credits, we would1792not have been able to afford insurance for Barry at all, and honestly,1793I don't know where we'd be, or if we'd even be sitting here before you.1794Access to affordable health insurance is life and death for us.1795    In 2026, our plan is going up 125 percent, from $109 to $246 per1796month. Because of this increase, and with the tax credits set to1797expire, we have decided not to enroll Barry in coverage for next year1798and he will go uninsured until March when he is eligible for Medicare.1799At our age and with Barry's health issues, I'm terrified that in those1800two months, we could be faced with a health emergency we can't afford1801and will end up buried under a mountain of medical debt.1802    For the first time in our lives, we wait in line every other week1803at food pantries because that's the only way to afford our groceries.1804Earlier this week, the line in Ottawa was twice as long as it had ever1805been, with an almost 3 hour wait.1806    We are so grateful for the Affordable Care Act because it has made1807it possible for us to survive on as little as we have right now. We are1808about $100 over the poverty line limit for Medicaid because Kansas is1809one of 10 states that has not expanded Medicaid. I am a cancer survivor1810and receive disability benefits and Medicare. The peace of mind of1811knowing we both have affordable health insurance is everything to me,1812but these last few weeks, knowing we're facing a gap in Barry's1813insurance for next year, is terrifying for us both.1814    Our story is unique, but we are not alone. There are 22 million1815Americans, and nearly 200,000 Kansans, that use the premium tax credits1816to help them stay on health coverage. I am here fighting for my family1817and for the millions more who know the struggle of fighting to afford1818basic needs like health care. Health care is a human right. Nobody1819should go without it, and what's the point of having a health care plan1820if you can't afford to use it? I hope you will remember my story and1821take immediate action, because we cannot afford to wait.1822    Thank you for your time.18231824    Senator Moran. Thank you for telling your story, and it1825is--it is planted in your Senator's mind. Thank you.1826    Mrs. Spickler. Thank you.1827    Senator Moran. Let me see where to start with my1828questioning. Let's start with you, Mr. Sununu. Many Kansans1829will travel for the holiday. What do the airlines expect to be1830the circumstances those Kansans and Americans will face?1831    Mr. Sununu. As we go into the holiday, it's going to be1832full. It's going to be packed. The airlines are ready, the air1833traffic controllers are back, the skies are safe, so that's the1834great news. We want everyone to feel confident, first and1835foremost, about booking travel, but it'll be near record1836numbers, which is great. Looking into the Christmas season,1837we're hoping that those bookings pick up a little bit. I think1838some of the stories in October and some of the--just the1839politics around what was happening at the airlines scared a few1840people off, so we want them to know more than anything that,1841while it is going to be busy, the airlines and the system is1842ready, and it's more affordable than ever before, right? It's a1843better customer experience than ever before, more affordable1844domestically than ever before, more reliable now that we're out1845of the shutdown, and as an industry, we're looking to that end-1846of-January mark. That's the thing that scares us the most, but1847right now, we feel very confident about where things are and1848where they should be through the holidays.1849    Senator Moran. Mr. Daniels, what can we expect in the air1850traffic control world?1851    Mr. Daniels. Well, one of the things that I think this1852shutdown showed time and time again is the unfortunate reality1853of where the air traffic controllers--the air traffic control1854system is, which is we operate with less--or 25 percent less1855than the required essential employees. We operate with 10,8001856certified professional controllers where there should be185714,633. Any profession that had a 25-percent reduction in their1858essential workers would be screaming for help, but yet these1859men and women every day shoulder the responsibility and burden1860of moving the most planes in the history of the world,1861especially through this shutdown and seven weeks of1862uncertainty. So, we'll do what we do every day: we'll show up,1863we'll keep America safe, we'll keep the skies moving, and we're1864looking forward to getting back on track to the long-term1865commitment to hiring and training of the next-generation1866controllers, and fixing the equipment that is antiquated and1867needs to be done.1868    Senator Moran. Mr. Daniels, you highlighted this1869subcommittee's and the full committee, and actually the1870Congress' efforts to engage and further employ air traffic1871controllers. Part of that involves training, as you mentioned,1872in Oklahoma City. What's the circumstances in the Academy in1873Oklahoma City with students who still--who want to be air1874traffic controllers? The Academy did not close during the1875shutdown, as I understand it, but were the number--were1876students there, and is there a line still waiting to become air1877traffic controllers?1878    Mr. Daniels. There is still a line waiting. NACA absolutely1879commends Secretary Duffy, Administrator Bedford for finding a1880way to keep the Oklahoma City Academy open for our first time1881in history. It's also important to note that air traffic1882controllers not only took on the added stress and pressure, the1883fatigue that comes with the shutdown, the uncertainty, but they1884were also training the entire shutdown. But for our first time1885in history, we saw people start resigning out of the Academy1886saying, you know what? I can't afford to pass the Oklahoma City1887academy, move hundreds, if not thousands, of miles to one of1888the most high cost-of-living areas in America, which are near1889our major airports, to pick up a career in a profession that's1890not going to pay me and I have no idea when, and they started1891to resign. And not only their resignations, but also1892controllers in mid-career started resigning, saying, enough's1893enough. I have to go find a job that has more stability than1894this.1895    Senator Moran. Mr. Viola, you probably represent the1896opportunity to talk about an area that's not necessarily1897thought about during the circumstances we've been through, and1898that's the certification process by which we advance aviation's1899technology and capabilities and we build and produce more1900airplanes to fill the fleet. Tell us in your words what it is1901that was not occurring during the shutdown that matters to the1902safety and well-being of the flying public, as well as what it1903means to our ability to compete in the global economy?1904    Mr. Viola. So, as you know, new technologies are certified1905to get onto aircraft, the ability to get those new projects1906into the FAA to start that process to get them on board the1907aircraft, so the modernization of aircraft would be one thing.1908And then the fact that everything just kind of shifts and the1909rescheduling of the activities with the FAA to do those new1910projects, the new technology basis to be a leader in the1911aviation community.1912    Senator Moran. Thank you. Senator Duckworth.1913    Senator Duckworth. Thank you, Mr. Chairman. Mr. Daniels,1914you noted that for the first time in history, and you just said1915you commend Secretary Duffy and FAA Administrator for finding a1916way to keep the Air Traffic Controller Academy open and keep1917training. In your conversations with them during the shutdown,1918did you ask them to find a way to also pay air traffic1919controllers since they found a way to keep the Academy going?1920    Mr. Viola. I did not specifically have that request of them1921during it, but it was loud and clear that paying air traffic1922controllers is essential.1923    Senator Duckworth. So, it was--you commend them for keeping1924the academies going, but you don't--you didn't actually ask1925them to pay the air traffic controllers. I mean, if DOD and if1926FAA can continue hiring and training air traffic controllers1927because of failing to do so with risk to imminent loss of life1928or loss of personal property, surely there's a case to be made1929for paying air traffic controllers from reprogrammed funds or1930even donations from industry. I mean, if DOD can use funds that1931Congress authorizes and appropriate for R&D and not salaries1932and expenses, along with accepting a billionaire's donation of1933over $100 million to pay military men and women, what stops FAA1934from following suit and reprogramming funds from accounts like1935the Airport and Airways Trust Fund to pay air traffic1936controller salaries and--or solicit donations from industry?1937Did you have a conversation about using those funds to pay the1938air traffic controllers, which I would've supported?1939    Mr. Viola. I did not have a specific conversation as what1940you're referencing, but I'll put my request on record, from now1941on, in the future. I welcome any chance to pay air traffic1942controllers for the work that they're doing, and they should1943never go uncompensated for the work that's being done or used1944as a political pawn in this--in a political dispute.1945    Senator Duckworth. Right. I think that's what's happening1946today, is that you're being used as a political pawn. When this1947hearing was advised, it was called the ``Damage of the1948Democratic Shutdown.'' I have been the strongest supporter of1949air traffic controllers. I think you should have been paid. I1950think that we should have called up Senator Moran's bill with1951Senator Cruz's bill. We could have passed it, and you should1952have been paid. It is unconscionable that we had at least one1953death by suicide that I heard of an air traffic controller in1954the shutdown. This is not acceptable in our Nation, but what is1955happening today is political theater to use you guys as pawns1956to score points post-shutdown.1957    I would rather we be talking about what we need to do to1958get, for example, Mr. Sununu, the data that Secretary Duffy1959talked about that was forthcoming for why he wanted to--why we1960needed to do the slowdowns. I think we all would like to see1961that data. None of us have seen it. I think we should be1962talking about passing these pieces of legislation in a1963bipartisan way. We should not be scoring political points, but1964we are here now. So, since we are here, I'm going to talk about1965why we had a shutdown in the first place, which is healthcare.1966    Let me just ask my--our witness, Mrs. Spickler, as a cancer1967survivor yourself, how do you feel about Republican proposals1968that would revive high-risk pools and largely seek to promote1969schemes that lower health insurance premiums by giving young1970and healthy Americans junk plans in exchange for permission to1971screw over Americans with preexisting conditions, disabilities,1972and other serious medical conditions?1973    Mrs. Spickler. Thank you, Senator Duckworth. I remember1974what it was like before the ACA was passed, and it was1975horrible. When I was in my 30s, I went twice without health1976insurance. I could not afford it. I was getting medication from1977Canada until the whole donut hole thing started, which--1978anyways, yes, and I don't agree with it because I lived it.1979This is my lived experience, and I don't want to be a political1980pawn either. What I am dealing with is just as important as air1981safety, and so I don't understand why it has to be so bipolar.1982Why can't it be both/and instead of either/or? They are equally1983important. They both need to be addressed, and stealing money1984from one to pay billionaires is not fair. That is--none of this1985is fair, and I don't even know if I'm going off topic or not,1986but I would----1987    Senator Duckworth. No, you're very much on topic.1988    Mrs. Spickler. I did not--I could not--I had preexisting1989conditions, and I could not qualify for any kind of affordable1990plan. It was like $1,200, and that was 30 years ago, a month.1991    Senator Duckworth. You're right. We should not be pitting1992air traffic controllers against healthcare affordability for1993Americans, and that's not the purpose of this committee. The1994purpose of this committee is air--and the Subcommittee is air1995traffic safety, and that's what we should be focused on, so1996let's stop with the games. We can focus on what we need to do1997to move forward, but let's remember how we got here, but also1998remember who championed you----1999    Mrs. Spickler. Yes.2000    Senator Duckworth.--during the FAA reauthorization. I did.2001I was the biggest supporter of air traffic controllers, and to2002come in here and act like you don't remember any of that is2003offensive to me. I yield back.2004    Senator Moran. Senator Kim.20052006                  STATEMENT OF HON. ANDY KIM,2007                  U.S. SENATOR FROM NEW JERSEY20082009    Senator Kim. Thank you, Chairman. Mr. Daniels, thank you2010for your testimony and what you shared in terms of the2011struggles and the challenges that air traffic controllers and2012others faced. I had the chance to talk on the phone with some2013air traffic controllers from New Jersey and--during the2014shutdown, and I'll tell you, you know, they were--they were2015telling me just, you know, that they felt like they were pawns,2016is the words that they said. They felt like they were taken for2017granted. It was really hard hearing just the emotion in their2018voice, and I'll be honest with you, they were livid at what2019they were seeing in terms of Capitol Hill. I mean, they were2020straight up telling me that why do they have to show up to work2021and not get paid when, frankly, the House of Representatives2022wasn't even in session for the entirety of the shutdown and2023Members of Congress are getting paid. And one thing that I kept2024hearing was this idea of feeling that, you know, Members of2025Congress, the President are getting paid, that we're playing2026with other people's chips, that we don't feel it ourselves, and2027this is something I felt very personally, too.2028    I was a career civil servant in the Federal Government. I2029worked through shutdowns before without getting paid, and I2030know what it's like to just feel like those that are on Capitol2031Hill don't care about what's happening to us. This is just a2032low political game for them, and that's why, you know, I always2033refuse to take my salary during shutdowns while I've been up2034here on the Hill, a small token of symbolism here, but one that2035I think is important. You said something that stuck out to me,2036and I appreciated it. You said, ``No American should work2037without a paycheck,'' right, in your testimony?2038    Mr. Daniels. Yes, sir, I did.2039    Senator Kim. Yes. So, look, I certainly agree with the2040others in this room that we should make sure that our air2041traffic controllers are continuing to get paid no matter what2042the circumstances are. But can I take from that comment of2043yours that you would support legislation that would ensure that2044all government employees can continue to get their paycheck2045regardless of the circumstances?2046    Mr. Daniels. Thank you, Senator, for your question.2047Absolutely. Air traffic controllers and all Federal employees2048deserve to be paid.2049    Senator Kim. I think that's really important as we're2050talking this through, and, certainly, I understand the strains2051that air traffic controllers are facing. When I was an officer2052at the State Department, I know I had colleagues working in2053harm's way in Afghanistan and elsewhere that were not getting2054their paychecks, and it's just about duty. I mean, like, no one2055would tolerate a private company forcing workers to show up for2056work and saying you'll get your paycheck maybe some other time,2057and I think that that's something that I just hope we can keep2058in mind here.2059    Mr. Daniels, you also talked about how there has been a2060call for a long time for increased controller staffing. This is2061something I just hear year after year, I mean, and the2062challenges that we continue to face, and the shutdown certainly2063exposes that fragility. But we always--we saw in New Jersey as2064well that--some of the problems that we had with the radar2065scopes and other things earlier this year were causing2066challenges when it came to staffing because of just the2067difficulty and the strain that people were in, whether at the2068Philly TRACON or elsewhere.2069    So, I guess I just wanted to just hear from you, how do we2070try to build up and close that delta that you were talking2071about in terms of the staffing shortages? I know there are a2072number of ideas that have been out there, but can you really2073try to help us kind of articulate for the American people what2074are the things that we need to do to stop kicking the can down2075the road and actually be able to take steps to be able to build2076up the kind of resilience that we need when it comes to our air2077traffic controllers?2078    Mr. Daniels. I appreciate the question, Senator Kim, and2079for the support of air traffic controllers and the2080modernization of air traffic. But when it specifically comes to2081the training of air traffic controllers, we often look for some2082quick fix when the real solution and the real answer is a long-2083term commitment to the hiring and training of the next2084generation air traffic controllers. And we're absolutely not2085taking a side, and we absolutely thank Senator Duckworth, the2086leadership of this committee for ensuring that that language2087prevails, and that that's what the standard is held today is2088that long-term commitment, and not trying to find another way2089around it. But it's also going to come from ensuring that we2090have the training, tools, and resources, which is also, again,2091in the FAA reauthorization bill, of the different simulators2092that reduces training time by up to 27 percent for our2093facilities. So, it's having that investment. The money's there.2094Now we actually have to be able to use it, and the government2095shutdown absolutely stopped and stalled that, but now we can2096get back on track.2097    Senator Kim. Yes, though, I mean, look, I--one thing I keep2098hearing over and over again in terms of the challenges of2099recruitment is about instability, and like I said, you know,2100I've experienced this firsthand when I was a civil servant. I2101was working there at the State Department in the Pentagon2102during the 2013 sequestration fight, you know, watching how the2103Republicans at that time were pushing these budget cuts and how2104that had years' worth of ramifications, so I'd just share that.2105    Mrs. Spickler, I don't have time to be--to ask a question,2106but I just wanted to say thank you for coming and sharing your2107story. It is a story, unfortunately, that I heard echoes of,2108exactly the same, across New Jersey. I will promise you, I will2109keep fighting for you, your family, for all of these families.2110Even though, you know, the shutdown's over, we know that the2111struggles that you and others are facing continue, so we're2112going to continue to get to work there. Thank you, and with2113that, I'll yield back.2114    Senator Moran. Thank you. Senator Capito.21152116            STATEMENT OF HON. SHELLEY MOORE CAPITO,2117                U.S. SENATOR FROM WEST VIRGINIA21182119    Senator Capito. Senator Breathless Capito over here. Thank2120you for being here, and I think really the last, I know2121they've--the last 6 or 7 weeks have been extremely miserable2122for you and the American public, and it's been miserable up2123here at the U.S. Senate, too. So, I don't know if that's any2124consolation, but it certainly is.2125    Let me ask you something that I think happens when things2126like this happen, which are obviously rare, but certainly air2127service in rural areas is so challenged. Service has been cut.2128I'll just say your flights are going out at 5 in the morning or2129coming in at 11 at night. And so, the fear, I think, is, as we2130head toward--when we look at shortages of air traffic2131controllers and other stresses and strains, I mean, how do you2132view this--I guess, Mr. Daniels, this would be for you. How do2133you view this from the air traffic control perspective in2134something like a shutdown or something where there's a slowdown2135in the economy? Where do you see the differences, the impacts2136between urban and rural America in terms of air service and2137availabilities, and how do you all--how do your people look at2138that, your air traffic controllers?2139    Mr. Daniels. Well, first, thank you for the question,2140Senator. The impact of the shutdown does one of many things.2141The disruption, the stress, the fatigue, the absolute2142uncertainty that it brings air traffic controllers to not be2143100 percent focused on the job where they have to be perfect--2144they have to be 100 percent 100 percent of the time--that2145increases risk in our system and something that we continuously2146advocate for, and why we support Senator Moran's bill, Senator2147Cruz's bill to ensure that we're not part of these shutdowns in2148the future. But also, as far as the difference in markets, what2149you're getting to see is what we deal with every single day,2150and that's operate a system with less than 25 percent of its2151essential workforce, 3,800 certified controllers short, and on2152any given day, one absence, one person not being able to make2153it, additional stress and additional fatigue, absolutely2154impacts America in the flying public.2155    Senator Capito. Well, that kind of leads me to--thank you2156for that--my second question, and, Governor, it's nice to see2157you. Essential air service is what we rely on, not in all of2158our airports, but certainly several of them. Where do you see2159the--because we do rely so much on it, how important is that to2160your membership, Governor----2161    Mr. Sununu. That's huge, yes.2162    Senator Capito.--for essential air service?2163    Mr. Sununu. Sorry. No, it----2164    Senator Capito. Can you talk about that during the shutdown2165and how that had been impacted?2166    Mr. Sununu. Sure. So, the regional hub service, the system2167that we have with major carriers having hubs and then the2168regionals kind of pouring into there, as Mr. Daniels2169identified, some of the issues are around workforce, right? You2170want--you got to have the workforce, whether it's in the towers2171or the pilots or the training programs in those rural areas to2172support that. The aircraft themselves, they tend to be a little2173bit smaller. You got to make sure that there's investment in2174the technologies there. You know, as was identified, one of the2175biggest impacts of the shutdown were things weren't getting2176certified. Equipment and technologies weren't getting2177certified, and so that's critical. You don't want to leave2178those regional and those rural areas behind.2179    I can say that when it did come to the area of2180cancellations, you know, that was a tough conversation. You2181know, we're always talking to the FAA. We have a great2182collaboration and a great working relationship with them. When2183it came to some of those preliminary--looking preliminarily at2184what these cancellations would mean, to their credit, the FAA2185said, look, you can't just--we're not just shutting down rural2186areas because they're a little less, you know, not----2187    Senator Capito. Profitable.2188    Mr. Sununu.--highlights, if you will. So, they really took2189care to make sure and understanding that while these impacts2190were going to be big across the country, they had to be evenly2191distributed. It couldn't just be the main--you know, the main2192lines get to be maintained and the regionals get hit.2193    Senator Capito. Mm-hmm. Mm-hmm.2194    Mr. Sununu. So, the shutdown was tough, but I think2195everyone tried to make every effort to make sure that where2196pullback had to happen, it happened at--happened evenly with an2197understanding that rural areas always kind of are the--are the2198first ones to get hit, and they wanted to be cognizant of that.2199    Senator Capito. OK. Let me just throw this up to whoever2200wants to answer, one thing I was sort of wondering about. You2201know, we put--we put a lot of money into modernizing the air2202traffic control, the technologies behind it. I mean, we're way2203behind on this, but we did put a lot of money in the One Big2204Beautiful Bill to get a good head start on that. Do you think2205this testimony or the impacts on our air service and our2206aviation systems, if we had that system fully operational, the2207new system that we want, would there be any difference in the2208conversation we're having today? And I guess Mr.--I can't see2209him.2210    Mr. Daniels. I'll take the first stab at it, Senator, yes.2211    Senator Capito. Mr. Daniels, why don't you take that? Yes.2212    Mr. Daniels. Thank you very much. I think the number one2213impact you see is the backbone of that system is the2214hardworking men and women, the true American patriots that do2215that.2216    Senator Capito. I get that. I get that.2217    Mr. Daniels. And yes, we would absolutely see a difference2218because if we had a full workforce with modernized equipment,2219we would not see near as many disruptions and delays.2220    Senator Capito. OK. So, question being is--does that system2221work without a full--a full amount of people working on it?2222    Mr. Daniels. No.2223    Senator Capito. No.2224    Mr. Daniels. No system will overcome the hardworking men2225and women.2226    Senator Capito. OK. Good. Thank you. Thank you very much.2227Oh, did you want to say something?2228    Mr. Sununu. No, I would--no, I would just add that it's all2229about efficiency, allowing those technologies, the speed at2230which controllers could potentially get trained, the ubiquitous2231nature where one tower doesn't have one set--one system----2232    Senator Capito. Yes.2233    Mr. Sununu.--and another tower has another system. It would2234allow, you know, folks to move around in an emergency2235situation, so that first $12 billion is great. The next $192236billion is critical, and the technologies you're going to see2237in this country are absolutely amazing and going to make the2238whole system work, not for the air--just the airlines, work for2239350 million Americans that rely on it and all the air traffic2240controllers that are completely strained by it.2241    Senator Capito. Yes, and I would add, really, the world2242because people are flying here and around here all the time.2243Thank you very much, Mr. Chair.2244    Senator Moran. Senator Capito, thank you. I'd highlight for2245our committee members and maybe the audience that we are2246working to have a hearing in November that involves the2247Secretary of Transportation and/or the FAA Administrator to2248talk about the amount of money that's been made available, the2249amount of--lack of money that's been available, and to see2250where we are in the modernization effort. And we hope--we2251were--we were unsuccessful during the shutdown to get the2252Federal employee witnesses to be here and were postponing--had2253postponed that hearing and hoping it occurs in November.2254Senator Sheehy.22552256                 STATEMENT OF HON. TIM SHEEHY,2257                   U.S. SENATOR FROM MONTANA22582259    Senator Sheehy. Thanks for being here, everyone. You know,2260we all are focused on the airlines, generally, ATC slowdowns2261and airline delays, and how that derives, you know,2262economically from that. But I think another piece of these--of2263the manning shortage that came from the shutdown but also were2264impacted writ large is our FAA oversight, PMOs, DPEs, folks who2265work within the FAA structure that allow small operators, like2266135 operators, 137, 133, the folks who are doing organ2267transportation, who are doing air ambulance, medical2268evacuation, who are crop dusting, who are doing aviation2269maintenance in a Part 145 repair station. They require access2270to their FAA oversight bodies and their local FISDOs and ACOs2271to continue operating for pilot checks, for maintenance2272inspections. And when that oversight is not available, either2273those companies are operating under an extended period of a2274waiver, or they're just not getting the oversight and safety2275inspection that is required by law. So, I'd be curious as to2276your thoughts on that and what you're hearing from operators,2277either as manufacturers, Mr. Viola, or smaller 135/1372278operators in the field?2279    Mr. Viola. Well, thank you for that question, and I'll take2280the first run at it. Well, certainly the oversight of the2281designated pilot examiners as well as the DARs out there that2282are trying to get new certification or STCs that's out there2283delayed some of that, getting to the field. And then, you know,2284with the FISDOs having to, you know, try to figure out what it2285was they can do, what it was that was important to get back2286from the leadership, and getting that out to an employee has2287been difficult. The challenges of the workforce, it fits back2288into the workforce of the FAA and not having that stable2289funding and not having to know--you know, what is going on with2290the training in other areas. So, that's why we certainly2291support any action that will pay the FAA during any of these2292government shutdowns so that we can keep that oversight going,2293so we can keep the momentum going. And as was mentioned, you2294know, the modernization that we're trying to do with $12-and-a-2295half-million--billion dollars now, we still look forward to2296trying to get that whole system in place with the additional2297$30 billion so that everything that we do here in the United2298States can operate more effectively and efficiently for the2299taxpayers.2300    Senator Sheehy. Anything to add?2301    Mr. Sununu. The only thing I would add is, you know, when2302we were talking about the aspects of what happened during the2303shutdown, when we talk about whether it's the cancellations or2304the delays, to your point, I think very importantly, the new2305way of healthcare in this country is everything from using2306broadband and telehealth, to getting your pharmaceuticals2307shipped to you, to getting your home healthcare, your home2308dialysis, whatever it might be. So, when we see pullback, that2309happens to our cargo carriers that we represent, the FedExs,2310the UPSes, the Atlas, that means that those delays happen. And2311as a lot of folks know, just a day or two delay on things that2312have to be overnighted for healthcare in the home, it's not2313just out of the hospital anymore. When you--these things have2314huge effects on how healthcare is delivered nowadays, and just2315an important aspect that it wasn't just the passengers that2316were affected. The carriers that are, you know, delivering2317organs, delivering people to vital healthcare, you know,2318hospital to hospital, but also that every day use, UPS, they2319all had to pull back to those same levels, and it hurt. It2320caused a lot of delays everywhere.2321    Senator Sheehy. Well, and there has already been a2322challenged infrastructure with regard to the aviation2323employment sphere. I mean, we can't get enough pilots,2324mechanics, controllers. This is pre-shutdown. This has nothing2325to do with shutdown. We've already had a challenge in making2326sure we have appropriate manning, both in the FAA as an Agency,2327but also across the board and in the private industry. And then2328when something like this happens and kind of throwing fuel on2329the fire, especially in rural areas with Central Air Service2330access, and where we have towers that are at half manning2331across a lot of the mountain West as those towns are growing so2332fast and air travel's growing there. So, thank you for your2333comments. I appreciate your time today. Thank you, Mr. Chair.2334    Senator Moran. Senator Sheehy, thank you. We're pleased to2335have the Ranking Member of the Full Committee, Senator----23362337               STATEMENT OF HON. MARIA CANTWELL,2338                  U.S. SENATOR FROM WASHINGTON23392340    Senator Cantwell. Thank you.2341    Senator Moran. I started to say ``Capito.'' Senator2342Cantwell.2343    [Laughter.]2344    Senator Cantwell. Thank you, Mr. Chairman, and thank you2345and to the Ranking Member for holding this important hearing,2346and for our witnesses being here. We have obviously made air2347traffic control staffing a major priority in the last Aviation2348bill, and we are continuing to make it a major priority. I want2349an FAA who does slow down traffic when they think it's2350necessary, as exhibited by the very unfortunate tragedy that we2351had at DCA, so I hope that we'll continue to close safety gaps,2352and I hope we will continue to invigorate air traffic2353controllers.2354    I think the question that we have, maybe for you, Mr.2355Sununu or Mr. Daniels, last year when we required the FAA to2356set a maximum hiring target through Fiscal Year 2028 to2357maximize training capacity for controllers, it would require2358the FAA to do this for 5 years through 2033. Do you support and2359agree that we must ensure that FAA continues its maximum2360control or hiring for at least the next 10 consecutive years,2361and that the FAA is then in a better position to offset2362retirements? So, either Mr. Daniels first and then Mr. Sununu?2363    Mr. Daniels. First, great to see you, Senator, and thank2364you for the support, especially when it comes to FAA2365reauthorization and the SAFE Act in the shared airspace. We2366would truly appreciate that. As far as it goes, yes, it2367absolutely needs to be the long-term commitment to the hiring2368and training of the next generation of air traffic controllers.2369And that 10 years is critical for us to not only modernize the2370system, but ensure that air traffic controllers have a full2371staffing complement to take on the next generation of aviation,2372which is going to be through autonomous vehicles, drones, and2373otherwise. And that's going to be a new challenge that presents2374itself, but this workforce will be ready enough for it as long2375as the commitment stays there to ensure that they have all the2376bodies that are needed.2377    Senator Cantwell. Thank you. Mr. Sununu?2378    Mr. Sununu. And I would just 100 percent, I mean, and2379making sure that they're funded and paid, that should be the2380low bar. I think making sure that you don't disincentivize2381people from coming into the industry, as Mr. Daniel was2382highlighting earlier, not just when seeing folks walk away from2383the academy during the shutdown. How do you go into a high2384school and encourage a--someone who's about to graduate to get2385excited about aviation, get excited about the industry, when2386the headline every single day is you don't get paid. So, I2387think the concern is not just did we see negative effects over2388the last 6 weeks, but that is going to have, unfortunately,2389negative reverberations unless we jump on top of the messaging,2390we ensure the American public that not just, you know, the2391appropriation bill that we're looking at moves forward, but2392Senator Moran's bill is real, everyone gets behind it, we make2393sure that this just cannot happen again because otherwise, the2394uncertainty added to the system could be really detrimental for2395years to come.2396    Senator Cantwell. I have two more questions for you. So,2397one, did you--did the airlines comply with what the Secretary2398requested?2399    Mr. Sununu. Oh, yes. Look, the airlines made every good-2400faith effort. In the--in the early--in those first days--2401Friday, Saturday, Sunday--I think they had to meet a 4-percent2402cancellation. I think on Sunday we were over 10----2403    Senator Cantwell. Well, do you think----2404    Mr. Sununu.--because it was such a logistics nightmare.2405    Senator Cantwell. Well, do you think there's data that2406shows that--there's data that shows that?2407    Mr. Sununu. Yes, there were over 10 percent. I think--I2408mean, I can pick individual--OK. I think Delta at one point hit240916 percent the following Monday, something like that, and what2410they realized is, you know what? If the--if they had to hit,2411let's say, 4 or 6 percent--I think Monday it hit 6 percent--2412they realized, OK, we're going to plan for a few percent below2413that. Why? Because it could be a maintenance issue or a weather2414issue, just the natural other cancellations. They had to----2415    Senator Cantwell. Yes.2416    Mr. Sununu.--they realized they had to kind of build into2417the calculus so they didn't over cancel. And then as the--if I2418may, as the week went on, it wasn't just we'll take that one2419flight down. Well, when you take the flight from Boston to2420Washington down, that means that Washington to Kansas City,2421Kansas City to LA, and LA back to Chicago flights can't happen2422either. So, moving the assets around, consolidating those2423customers and the crews because there are laws and regulations2424and protections around those crews. A crew from a 737 can't2425jump on a 787. The flight crew from that flight can't just jump2426on that one because they need a break. They need----2427    Senator Cantwell. Yes.2428    Mr. Sununu. So, it got very complex.2429    Senator Cantwell. Yes, it's very complex, but I am--I am2430interested in some analysis of this and some information2431because I'm--I think we might've also found some optimization2432of the system, and I do think that we push sometimes to get2433maximum, like the DCA. I'm sure we'll hear from NTSB in January2434about the flow of traffic into DCA the night of the crash, and2435was there too much flow in and should it have been slower, and2436then the warning bells that, basically, air traffic controllers2437had said went off for months and months and months unheeded2438because there was too much going on. So, I'm--I am curious if2439we ended up actually having, like, optimization. Like, if we2440had more on-time flight arrivals because we weren't pushing it.2441We were actually--the system can be optimized at a certain2442level of service delivery. Now, that isn't--that isn't a2443moneymaker for--that isn't, like, maximizing profits to the nth2444degree, but there probably is a system that is calibrated in2445the right way to make sure that you have more on-time2446performance and certainly on the safety side.2447    I want to ask you about--you guys, A4A, and I know you're2448new at this and we welcome you in that capacity. We are2449encouraged by the Department of Transportation reviewing2450unnecessary burden regulations exceeding their authority. I'm2451talking about this issue of our authority directed to DOT to2452take care of secondary rules--secondary costs on hotels and2453meals.2454    Mr. Sununu. Yes.2455    Senator Cantwell. What happened is the Southwest meltdown2456left my constituents--the Rainier Beach basketball team, Coach2457Bethea, and his wife had to pay thousands of dollars of out-of-2458pocket expenses. You remember the meltdown that winter, and2459they were stuck in Las Vegas, had to pay all these out-of-2460pocket expenses, so we said let's not have this happen again,2461and let's come up with rules for secondary cost in these2462situations. And so, I think the administration is trying to2463scrap that consumer product rule. I'm saying that's a bad idea.2464You need to do it, and--but it seems like A4A is cheerleading2465them.2466    Mr. Sununu. Yes. So, if we're talking about the--two2467things. Number one, I do want to address your--is there a2468system that where everything can be optimized. There absolutely2469is, and it costs $31.5 billion, and we appreciate the first2470$12-and-a-half billion. The technologies with that next $192471billion are going to be absolutely phenomenal. You're talking2472about efficiency, more Americans traveling safer. It'll be2473amazing, and so I think everyone appreciates that.2474    On the deregulation aspects, yes, there's no doubt some2475regulations have come into play in the last 4 years or so, kind2476of prior to 2025, that, frankly, didn't make any sense, not for2477the industry, but even for the consumer. They were punitive.2478They would've raised costs on the consumer. There were2479instances where the industry was going to have to pay tens of2480thousands dollars for act-of-God type situations. And we simply2481said, look, every law and every rule that's on the books, we2482always comply to on the consumer protection side. We never2483overlooked that.2484    Senator Cantwell. But do you--do you want--did you want2485this rolled back is what I'm asking. Are you asking--this rule2486that came into effect. We wrote it. We all wrote it here and2487said, put this in the bill that--have the administration think2488of these secondary costs----2489    Mr. Sununu. Mm-hmm.2490    Senator Cantwell.--and have a rulemaking on it because it2491is complex. I mean, what happened was far more than just a2492winter meltdown. Some airlines were better prepared to address2493the concerns of constituents and give them information about2494when they might be able to get on a flight and how they might2495be able to get home, and then other airlines were very ill2496prepared because they never invested in the technology.2497    Mr. Sununu. Yes.2498    Senator Cantwell. And that was the frustration, so.2499    Mr. Sununu. So, I would simply say--yes, so I think the2500concern is having those rules in place is very important.2501Making sure we're not creating one-size-fits-all structures2502based on that one winter storm, which was devastating. As you2503pointed out, some airlines did it very well. Some airlines2504didn't. There was a lot of complexity in it. We just want to2505make sure that the rules are there and they're--they fit the2506need----2507    Senator Cantwell. Yes.2508    Mr. Sununu.--of the moment, and they're not so broad based2509that they crush the consumer with higher costs.2510    Senator Cantwell. If I could, Mr. Chairman, one more.2511    Senator Moran. Senator Cantwell.2512    Senator Cantwell. I don't see any of my colleagues waiting2513in line here on either side, so thank you. We have a bunch of2514people here with us today, and we've tried to deal with this2515issue two or three times, and it's really frustrating. The2516people who are ramp workers at airports clean our planes, they2517help with the security of the system, they are part of the2518aviation system, we tried during COVID to help them and met2519with huge opposition, even though we worked very hard in about252025 days to come up with a plan to help the airline industry2521survive during COVID. We tried in the last FAA authorization2522bill to also resolve the issue, and the issue is these people,2523they're not falling through the cracks when it comes to2524cleaning the planes and servicing our airports, and taking2525people in wheelchairs and getting them to locations. They're2526not falling. They're doing their job, but everybody acts like2527they are an island where they just appeared somewhere. They're2528not. They're part of this ecosystem. They are part of the2529aviation ecosystem, and they deserve to have healthcare. I do2530not want them coming on a plane sick. The whole point of2531getting on the plane and trying to make it not an unhealthy2532environment, why do you want the plane cleaned by people who2533are sick?2534    So, will you commit to work with me to find a solution to2535resolve this issue and help us get some compensation for the2536healthcare workers? Only people at the airport. Everybody2537else--flight attendants, stewards, people who work in the2538coffee shop--everybody else in this entire system has2539healthcare but these people. And everybody dodges it because2540they think that it's not their problem, but they are part of2541the delivery system and they deserve healthcare. Will you work2542with me on this?2543    Mr. Sununu. Yes. Look, in terms of the healthcare issue,2544obviously it's a giant issue, and it just doesn't affect the2545airline industry. It affects 350 million Americans, of course.2546So, but I'm here to--I'm not--I'm here to represent the2547airlines and making sure that the airlines are safe, they're2548moving on time, that we're----2549    Senator Cantwell. The air----2550    Mr. Sununu.--we don't get caught in the political side of2551things, and not the airlines, that the American public doesn't2552get caught on the political side of things, but those2553discussions have to happen. Those solutions have to be brought2554to bear on the healthcare section.2555    Senator Cantwell. It's not--it's not the political side.2556They are part of the--a plane can't just come and land without2557somebody cleaning it, OK?2558    Mr. Sununu. Sure.2559    Senator Cantwell. The airport and that sector work together2560to try to have the security team, the cleaning team, the2561maintenance team, everybody have a robust system. So, I think2562what happens here is everybody points the finger to somebody2563else that, oh, they're our contract workers--so they're our2564contract workers, so we don't have to provide healthcare, and--2565--2566    Mr. Sununu. Well, I would say, if I may, for those workers2567with--they obviously don't work directly for the airlines per2568se, but if they're our contractors or they----2569    Senator Cantwell. They work--they are contracted--they are2570contracted through airlines.2571    Mr. Sununu. And----2572    Senator Cantwell. So, that's the issue, and then the2573contractors don't deliver the care, don't deliver access.2574    Mr. Sununu. Yes, and I would look to their unions as well.2575I mean, a lot of them are represented by unions, and I would2576imagine that they need to make sure that they're incorporating2577that. But yes, we'll--look, we're part of the big ecosystem,2578and we know we're the big dog, so.2579    Senator Cantwell. So, you will work with me?2580    Mr. Sununu. Absolutely, yes.2581    Senator Cantwell. Thank you. That's what I wanted to hear.2582Thank you. Thank you, Mr. Chairman.2583    Senator Moran. Senator Duckworth, anything further? I have2584a couple of questions.2585    Senator Duckworth. Well, if you're going to do a second2586round, I'll do some as well.2587    Senator Moran. If you want to, you can.2588    Senator Duckworth. OK.2589    Senator Moran. Please.2590    Senator Duckworth. Thank you.2591    Senator Moran. You go, and I'll wrap up.2592    Senator Duckworth. OK. Thank you. Thank you, Mr. Chairman.2593In the days leading up to the Trump administration issuing an2594emergency order mandating a significant reduction in flights,2595separate and apart from restrictions triggered by ATC staffing2596shortages, the Trump administration claimed that this order was2597dictated by data. As Secretary Duffy stated, ``The data would2598dictate what we are going to do. Data driven. Safety driven.''2599Now, the irony is that under normal circumstances, nobody would2600cheer louder than me for evidence of FAA changing its culture2601to be more proactive in using real-time safety data and, most2602importantly, making tough decisions to prevent deadly2603incidents. That is why the Trump administration's failure to2604transparently disclose the data underlying its emergency order,2605combined with Secretary Duffy's overt threats to ramp up flight2606restrictions unless Democrats rolled over and just voted for2607whatever plan Republicans proposed, was and remains deeply2608disappointing. It fails to strengthen confidence in good2609government, and the American people are understandably2610suspicious of a DOT and FAA that does not show its work.2611    I have a--I have a fifth grader who I work with every day2612saying, ``Honey, I know you're doing long division, but you2613need to show your work. Otherwise, your teacher thinks you use2614a calculator.'' Right now, frankly, the FAA's failure to2615respond to basic information requests from my office and the2616ranking member's office over the past few weeks does nothing to2617dispel accusations that the Trump administration weaponized our2618aviation industry against American people to score partisan2619political points. In justifying its emergency order, FAA noted2620that voluntary safety reports submitted in October indicated2621that operators, presumably many employees of the air carriers2622that A4A represents, had concerns about the safety of the2623National Airspace System, despite the mitigation measures that2624had been put in place. Governor Sununu, did any airlines2625proactively restrict flight volumes independent of staffing2626triggers or even preemptively contact FAA to recommend that the2627Agency consider emergency action along the lines of the2628emergency order that the FAA eventually issued? I know you're2629new to the organization.2630    Mr. Sununu. I don't believe that any of the carriers2631actually said we're going to cancel flights because of this,2632but to be clear, the carriers, Airlines for America, and the2633FAA were talking constantly about data, about what they're2634seeing, staffing triggers, hotspots. And I would note that what2635was interesting about this shutdown from the first day on2636October 1, all the way to the end, there was never consistency.2637It wasn't like the Northeast has a problem. It was one day it2638was in the West, one day it was in Newark, one day it was2639Burbank, one day it was Nashville, so there was--it was very2640hard to manage. It was almost like playing whack-a-mole, but at2641no time did they--did the carriers say we have to take more2642flights out. They said we just need to put more mitigation2643strategies in to ensure safety, which they did, resulting in2644the delays, and that's why the cancellations were well under 12645percent for, you know, the bulk of October until the pressures2646really built.2647    Senator Duckworth. So, in that emergency order, FAA stated2648the Agency had ``observed evidence of increased stress in the2649National Air Traffic System and aviation safety data,2650particularly 40 high-traffic airports,'' which I think is what2651you're talking--speaking to.2652    Mr. Sununu. Yes.2653    Senator Duckworth. Unfortunately, FAA did not provide2654further insight into precisely what evidence and what specific2655metrics it used to determine that emergency order was required2656to immediately halt flights at high-traffic airports. Did you--2657did they--did your members provide any data to FAA, or did they2658share any data to you behind that----2659    Mr. Sununu. Well, the biggest piece--yes.2660    Senator Duckworth.--especially at those 40 because I2661haven't seen it, and I've been requesting it.2662    Mr. Sununu. Well, the biggest piece of data is incredibly2663obvious: all the staffing callouts.2664    Senator Duckworth. Well, I don't----2665    Mr. Sununu. The fact that was increasing day by day by day.2666    Senator Duckworth. Right.2667    Mr. Sununu. The fact that you had--I mean, Nick, you could2668probably give more accurate data. On Halloween alone, the2669staffing triggers and callouts from just the morning to the2670afternoon skyrocketed, and then sometimes we'd see that go2671down, but Saturday was brutal. Sunday went down. Monday,2672Tuesday were--so the data, at least that we were looking at,2673were those staffing triggers and callouts, and we were watching2674that hour by hour, and post-Halloween, it really never went2675down. It was really, really tough. Beyond that, I mean, I'd2676have to refer to the FAA for any other data points, but those2677are the ones that we specifically were looking at----2678    Senator Duckworth. Did you get the----2679    Mr. Sununu.--and then there were the close calls.2680    Senator Duckworth. Where did you--and that data came to you2681from the FAA, or that was--how did you get the callout data on2682how many air traffic controllers----2683    Mr. Sununu. We get that data literally hourly. There's a2684couple different services that we use.2685    Senator Duckworth. OK.2686    Mr. Sununu. So, we get--morning, I can see what they call2687staffing triggers----2688    Senator Duckworth. Mm-hmm.2689    Mr. Sununu.--and then that gets--again, Nick can probably2690give you more information, but that can get to actual potential2691shutdowns where the actual towers just don't become sustainable2692to be manned in terms of landing and not landing, and we had a2693couple instances there. And if I may, shortly before the FAA2694came to us and said, look, we may need to talk about forced2695cancellations. You had three or four close calls on the2696taxiways, physical close calls, so that was clearly of concern.2697And I'm not here to defend the FAA, they can defend themselves,2698but I think they said, look--to the point that was made2699earlier--we want to be preventative here. We're not going to2700wait for a tragedy or a crisis to happen. Let's be preventative2701and make sure we can keep the airspace viable. Let's not be2702like, you know, frankly, the rest of government and wait for a2703tragedy before we do something. They said, we're going to get2704ahead of it.2705    And that was really tough for the airlines, but if you talk2706to the CEOs, they all say it was the right thing to do. Being2707safe and smart is always best, and staying ahead of it and2708being proactive, and the number--those number of callouts were2709huge. Other data, I'd have to just refer you to the FAA.2710    Senator Duckworth. My problem is there's, like, all this2711different callout data. I've been trying to get ahold of all of2712the data, and if you guys were getting specific data from the2713FAA, I want to see that because FAA has not provided it. At one2714point, Secretary Duffy said he was getting 56 retirements a2715day. That was the number he put out----2716    Mr. Sununu. Mm-hmm.2717    Senator Duckworth.--which I've not seen that backed up2718anywhere, and if it is, then I would need to know that. I'm2719just deeply concerned that there is a nebulous term of the2720data, and we don't know what that is. And if we want to look2721toward the future and do better the next time and do better2722even now, we need to know what that data is, and we should be2723sharing that data. And it concerns--deeply concerns me that FAA2724is not actually sharing the same set of data with everyone so2725that we're operating off of the same sheet of music.2726    Mr. Sununu. Yes.2727    Senator Duckworth. Thank you, Mr. Chair.2728    Mr. Sununu. Yes, the only thing we really looked at was2729those calls. I don't mean to put Nick on the spot, but there2730are a couple different areas where I think you can see the2731actual number of calls and the triggers. We subscribe to a2732system that gives us that data, but.2733    Senator Duckworth. Right, but yet----2734    Mr. Sununu. Yes.2735    Senator Duckworth.--Secretary Duffy put out a number that2736was not consistent.2737    Mr. Sununu. Mmm. Thank you.2738    Senator Moran. Thank you, Senator. Just a couple of things2739to wrap up, at least in my thinking. You all have been kind to2740mention the bill I first--I first introduced in 2019 in an2741earlier shutdown. This is not a unique circumstance. We've been2742through this before. Is there anything in that legislation--2743maybe I should explain for our audience that the Aviation2744Funding Stability Act is legislation that seeks to insulate the2745FAA in the event that there's a government shutdown. The bill2746authorizes the FAA to continue to draw from the Airport and2747Airway Trust Fund during a lapse in appropriations with no2748General Fund contributions. The AATF generates sufficient2749revenues independently to sustain all Agency programs,2750including air traffic control operations, staffing and2751training, aircraft certification, and other essential2752functions. Any of you have suggestions of how we might improve2753that legislation? Are there things that--and if you don't have2754an answer today, you're welcome to provide an answer later, but2755if we are able to pursue the passage of this legislation, what2756are we missing or what have we erred in, in any way?2757    Mr. Daniels. Chairman Moran, we'll obviously work with you2758and Senator Duckworth on any changes to the language, but we2759fully support it as written, anything or any legislation that2760prevents air traffic controllers and other aviation safety2761professionals from not getting paid during a government2762shutdown. So, we're in full support of it as written currently,2763and if there are any other suggestions, we'll make sure they2764get to your office.2765    Senator Moran. Thank you.2766    Mr. Sununu. If I--if I may add one thing, it's terrific.2767It's awesome. We really hope it passes, like, tomorrow, but,2768and maybe even out of the--out of this committee's wheelhouse,2769understandably, TSA, CBP are also very important, and, as was2770noted, other aspects that might not fall directly within the2771FAA structure, but are part of that National Aviation2772Ecosystem.2773    Senator Moran. Good reminder. We need everyone at work. Mr.2774Viola?2775    Mr. Viola. Sir, I would say we strongly support the2776Aviation Funding Stability Act.2777    Senator Moran. I wasn't really looking for that compliment,2778but it's helpful to be able to say that you do----2779    [Laughter.]2780    Senator Moran.--and I appreciate that. You have both--you2781have highlighted two things: that legislation and then the2782importance of THUD and its appropriations process. I'd like to2783give you another opportunity as we are trying, as we speak, to2784clear holds that various senators have on appropriation bills.2785And the effort is to bring the defense appropriation bill to2786the floor with a vote this week, and then allow for other bills2787to be added, including the transportation appropriation bill.2788Tell us why it's important to pass an appropriation bill for2789the Department of Transportation in the arenas in which you2790work or represent?2791    Mr. Daniels. We'll start with the Modern Skies Coalition,2792as we're a part of it and has done a well--a great job of2793articulating the issues. Secretary Duffy has gone out as well2794talking about the need for the changes to staffing and2795modernization. We share many of the same components and the2796same vision. The true answers that America is looking for, the2797American flying public, are these long-term commitments in2798these bills, and that they are bipartisan and that we're2799working together, and that are supported by the entire aviation2800community and not just by one group, is that we're all coming2801together saying what makes this system better. And that's the2802true, I would say, value and importance of what's happening2803right now is you have an entire community speaking in unison of2804what is needed instead of just one entity politicking for2805themselves. I think anything that is focused on continuing to2806ensure that that voice is moved forward is the true answer2807that's going to bring the solutions that the American people2808want and deserve.2809    Mr. Sununu. I would only add, it's obviously immensely2810critical in providing that confidence in the system. I think2811because the shutdown was so big, so impactful to the American2812public, folks are going to be watching. Maybe appropriations2813bills don't take headlines typically, but I think come mid-2814January, folks are going to be watching and saying is this an2815industry we can count on, not just in terms of booking travel,2816but for the workforce aspects, all the things that Nick has2817been talking about and God bless his teams for hitting on. We2818want to encourage that recruitment, and it will, at a minimum,2819keep some confidence into the system.2820    I would--the one argument--I'm not arguing against it by2821any means--is that it only goes until maybe mid-20-2026,2822something like that. So, we're going to be back in this pickle2823again a little bit, which is why your--I'll call it your2824follow-on bill on aviation funding is so critical because it2825really makes sure that regardless of which side, what the2826politics are today or 10 years from now, the aviation system in2827itself aren't held hostage to it. So, it's--for us, it's really2828about instilling that confidence for both the consumer and,2829more importantly, for the workforce that we need to keep coming2830into the system.2831    Mr. Viola. So, the government employee, and, of course, for2832our sector, the aviation employee, the FAA, you know, the year2833has been very distracting to try to get work done with the FAA.2834I think the stability that the workforce needs, a long-term2835stability that you've heard here, not just, OK, we're going to2836make it now to January 30, but they need to know that they are2837going to get paid, that they have jobs to do, that can actually2838dig into these certification issues that my members need to get2839this new technology on the aircraft to make the system safer.2840The Modern Skies Initiative that we're all members of, you2841know, we want to see a great system out there that--that's able2842to support the new increased capacity, not reduced capacity2843that we had to show we can do here during the shutdown, but we2844want to get the EV tools of the future going. We want to get2845these new aircraft that serve the rural communities, the new2846capabilities that don't need the longer runways. So, there's so2847much activity right now with aviation that, you know, we want2848that momentum, and the passage of this bill right now, I think,2849would be key for investment in the workforce of the future.2850    Senator Moran. Thank you. I'll express those views to my2851colleagues. I know that you will as well.2852    Mr. Daniels. Senator Moran, if I could add just one thing--2853--2854    Senator Moran. Mr. Daniels.2855    Mr. Daniels.--since we're talking about those bills and2856what's moving through in the support from them. I'd be remiss--2857it was brought up on this panel about another air traffic2858controller who took their life and also about the mental health2859bill for aviation and the aviation professionals and the2860archaic medical system that remains in getting, you know,2861aviators and air traffic controllers true help. That is2862something else that is a must-pass bill and along with the2863appropriations that are--is going to go a long way for finally2864bringing this workforce up to the standards that are needed in2865getting them the help in advance of them taking their own2866lives.2867    Senator Moran. What's missing in doing that?2868    Mr. Daniels. The support of finally getting it passed2869through. It's out there, it's moving, and we're looking for2870everyone to support it.2871    Senator Moran. Thank you. I offer my condolences to the air2872traffic control community and the individuals involved in that2873death. It is unfortunate sometimes the circumstances of a2874tragedy is what motivates us to do our jobs better. The January287529 is a circumstance of mine, and I know that the families of2876the--of the--those who died in that crash are in constant2877contact and encouragement to Members of Congress, including me,2878about the importance of moving forward on the air traffic2879safety plan. And we will do our part, and it's a reminder that2880you just gave us about things need to be long term. It's not2881just fixing a problem for the moment but needs consistent2882attention and consistent appropriations and financial support,2883and I appreciate that reminder.2884    It's always been my practice to give the witnesses of a2885hearing I chair the opportunity to say anything that they2886didn't have a chance to say that they now thought of, they wish2887they'd have said. I find myself in that circumstance often, and2888maybe something I said that I wish I wouldn't have, and you can2889retract something if you'd like. But anybody want to make2890certain that there's something included in the record that they2891feel like they need to now say?2892    Mr. Daniels. I'd like to start with one thing. First, thank2893you for having us. Thank you for allowing us the opportunity to2894talk about the issues. I think what this has highlighted and2895this shutdown has shown in the aviation world is how fragile2896the system is, but there are some terms that get thrown around,2897and I would say quite loosely: the terms of ``calling out.''2898Air traffic controllers have an extremely high record for2899showing up in the emergencies and crises of this country--2900September 11, a pandemic, two of the longest government2901shutdowns in history--and air traffic controllers showed up and2902stepped up day in and day out, but the term of art keeps2903continues to be ``they're calling in sick.''2904    They were calling in with no money. They were calling in2905with not being able to put gas in their car. They were calling2906in with not being able to pay for childcare. Those are real2907issues, real Americans, real patriots that are doing everything2908they can. They don't want to see that burden on another air2909traffic controller. So, while the term of art may be ``air2910traffic controllers are calling out,'' it's not in protest. We2911absolutely condemn any coordinated efforts to call out, and the2912reasons that you saw it in different locations around the2913country is because you--what you can't pinpoint is when2914somebody's life situation and money situation and they're going2915to run out of it, or when the stress, the pressure, and the2916fatigue of being perfect absolutely crushes them that day, and2917they need to take a moment before reporting to duty to just2918say, well, I'll give it my best. Air traffic controllers don't2919have the option to give it their best. They have the duty to be2920perfect, and anything that we can do to support them through2921this bill and not allowing them to be subjected as a political2922pawn, again, we absolutely support, we absolutely endorse, and2923we absolutely need.2924    Senator Moran. Thank you, Mr. Daniels. Mr. Sununu?2925    Mr. Sununu. No, I would just say thank you and thank you2926for the timeliness. I mean, we're just on the heels of it, and2927so the fact that you're moving so promptly is--instills a lot2928of confidence.2929    Senator Moran. Mr. Viola, we were concerned--when we2930scheduled the hearing, we perhaps expected that maybe the2931shutdown was still continuing and had some thought about2932whether the hearing still had merit after the shutdown2933concluded, and my conclusion was it did have merit so that we2934could learn from circumstances. Mr. Viola, anything?2935    Mr. Viola. Yes. Well, thank you very much for having us2936here today. I would like to say, you know, the Modern Skies2937Coalition and getting the money now, I mean, my time in the2938FAA, 2015 when we were trying to work forward to get--to keep2939being a leader in aviation and being able to have these new2940vehicles that service society better. So, keeping that momentum2941going with the $12-and-a-half billion and getting the2942additional funding would be great.2943    Senator Moran. Who do I call now, Mr. Viola, that--when I2944want something--some certification, some new rule and2945regulation, some statutory deadline to be met at the FAA?2946    Mr. Viola. At the FAA?2947    Senator Moran. Yes.2948    Mr. Viola. Call the Administrator.2949    Senator Moran. Oh, of course.2950    [Laughter.]2951    Senator Moran. I was hoping that you were still going to2952intercede on my behalf.2953    Mr. Viola. Oh, you could call me. I absolutely would do my2954best to work behind the scenes as well.2955    Senator Moran. Yes, sir. Mrs. Spickler, thank you. Your2956maiden testimony to Congress, I assume, and thank you very much2957for being here. Anything you'd like to make sure that we hear2958before I conclude this hearing?2959    Mrs. Spickler. I thank you again for the opportunity to2960tell my story and to be heard.2961    Senator Moran. Thank you for your willingness to tell us. I2962got to find some magic words in a script.2963    Senator Duckworth. Oh, I have to read them items I'd like2964to----2965    Senator Moran. OK. Yes, Senator Duckworth.2966    Senator Duckworth. Yes. Mr. Chairman, I'd like to request2967unanimous consent the following documents be entered into the2968hearing record: original statement of April Barrett, President2969of Service Employees International Union; a September 24, 20252970letter from Kansas Healthcare Providers to the Kansas2971congressional delegation in support of extending enhanced2972premium tax credits; and a September 2025 Urban Institute and2973Commonwealth Fund Health Policy Brief titled, ``4.8 Million2974People Will Lose Coverage if 20--in 2026 if Enhanced Premium2975Tax Credits Expire.''2976    Senator Moran. Without objection, those documents will be2977entered into the Committee's record.2978    Senator Duckworth. Yes.2979    [The information referred to follows:]29802981                                Contact:29822983                          SEIU National Media29842985                        Issued November 9, 202529862987SEIU'S VERRETT: WORKING PEOPLE MADE CLEAR THROUGHOUT THE SHUTDOWN THAT2988            HEALTHCARE IS A PRIORITY--WE WON'T BACK DOWN NOW2989    WASHINGTON, DC--Service Employees International Union (SEIU)2990President April Verrett released the following statement today after2991the Senate took a procedural vote clearing the way to end the2992government shutdown:29932994    ``I'm proud of how working people showed up across the longest2995government shutdown in our Nation's history to demand that Congress2996protect affordable healthcare for every American. But unfortunately,2997Republican leaders showed that they would rather jeopardize people's2998health and punish Federal workers than make billionaires pay taxes.2999    Now that the shutdown is ending, Federal workers will get paychecks3000again. But this weak deal is no cause for celebration. Millions of3001working families of all backgrounds will now see their healthcare costs3002skyrocket as ACA tax credits expire. Federally contracted workers are3003still not guaranteed backpay.3004    We won't back down until Congress takes action to resolve our3005healthcare crisis and ensures that every federal worker receives3006backpay. Working people don't fold--we fight forward.''3007                                 ______30083009[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]30103011    Senator Moran. Now----3012    Senator Duckworth. Did I take enough time?3013    Senator Moran. You did. I should've just turned the--turned3014the page.3015    Again, I would thank all the witnesses for being here. I3016wanted to perhaps join Senator Cantwell in her remarks about3017people who work at airports. I'm a frequent traveler not--I3018guess it's by choice, but I live in Kansas and work here, and3019I'm in airports and on airplanes on a consistent basis like3020almost all of my colleagues. And during the shutdown, I found3021the employees at the airport, including the ones that Senator3022Cantwell mentioned, to be--I don't know about good spirits, but3023they were certainly polite, respectful, kind of we're all in3024this together kind of attitude. And again, it's something3025special, I suppose, about Americans and America at--in times of3026difficulty and adversity. There's still a common sense that we3027owe each other respect and try to make certain that the well-3028being of those who we care for is maintained, and I experienced3029that without exception. And so, I thank the folks who work at3030an airport and the people who work at the airlines and across3031the country. And just I worry that we're beginning to take3032these kind of circumstances as too commonplace, and they ought3033to be extraordinary and not the norm, but regardless of which3034one they are, I appreciate people who are polite and3035respectful.3036    Oh, let me see. Do I have something else I need to do on3037documents? OK. There are documents from the Modern Skies3038Coalition, the National Business Aviation Association, Boeing3039Aircraft, and one for the American Society of Traveler Advisors3040that I would ask to be placed in the record, and without3041objection, I would do so.3042    [The information referred to follows:]30433044[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]30453046          Prepared Statement of Ed Bolen, President and CEO,3047                 National Business Aviation Association3048    Chairman Moran, Ranking Member Duckworth, and Members of the3049Subcommittee on Aviation, Space, and Innovation, thank you for holding3050this hearing to address the impact of the 43-day lapse in Federal3051funding on Federal Aviation Administration (FAA) and Transportation3052Safety Administration (TSA) services and the national economy. On3053behalf of the National Business Aviation Association's (NBAA's) 11,000-3054member companies, I am honored to provide this testimony for the3055record.3056    I would like to start by thanking the dedicated public servants who3057shouldered a tremendous burden, showing up day after day without3058compensation to maintain the safety, security and efficiency of the3059national airspace system-without their commitment and professionalism,3060America's air transportation system and the national economy would have3061come to a halt.3062Business aviation is an important segment of the aviation industry.3063    Business aviation is an indispensable part of the aviation3064ecosystem, providing an efficient, effective and flexible3065transportation solution to users. It is essential to America's economy3066and local communities supporting more than 1.3 million jobs and3067contributing $339.2 billion per year in economic activity. General3068aviation helps businesses be more competitive, especially those small3069and mid-sized enterprises, headquartered in small towns and rural areas3070that have little or no airline service.3071    Business aviation also provides emergency medical transportation,3072and delivers humanitarian aid in times of need. Business aircraft3073provide around 15,000 relief flights each year, responding to natural3074disasters, transporting organs, and taking cancer patients to treatment3075centers. With 46.7 million Americans living more than an hour away from3076a Level 1 or 2 trauma center, business aviation is more critical than3077ever.3078The government shutdown impacted all segments of the aviation industry,3079        including business and general aviation.3080    The 43-day government shutdown stalled critical FAA work that3081impacted business and general aviation safety oversight, certification,3082training and operations; it impacted an industry that serves as a3083lifeline to rural economies, provides emergency medical transportation3084and delivers humanitarian aid in times of need.3085    The most severe impacts occurred on November 6, when the FAA3086implemented an Emergency Order to reduce all flight operations,3087including commercial and business aircraft operations, at 40 U.S.3088airports. Just days later, on November 10, the FAA implemented3089additional restrictions, banning non-scheduled operations at 123090airports, disproportionately impacting business aviation, an industry3091that drives local economies, connects communities, and supports3092humanitarian missions every day. General aviation complied with the3093emergency order and avoided operating at the Nation's busiest airports3094whenever possible to support the safety and efficiency of the system.3095The national airspace is a public resource open to all users. With the3096shutdown resolved, and moving forward, we ask Congress to ensure access3097remains equitable and available to every segment of the flying3098community.3099    Specifically, the government shutdown had a significant impact on3100business aviation as it delayed safety approvals, jeopardized3101investments, reduced safety margins, and restricted airspace capacity.31023103   The government shutdown forced the FAA to furlough safety3104        inspectors, resulting in reduced services and significant3105        delays to aviation businesses.31063107   The furloughs meant operators waited on certification3108        approvals for more than a month which caused inefficient3109        operations and prevented operators from using aircraft to their3110        full capability.31113112   The furloughs halted new certification activities, resulting3113        in certificate holders being unable to complete aircraft3114        conformity checks, keeping some aircraft grounded.31153116   Inspectors did not approve revisions to manuals, delaying3117        implementation of safety-enhancing procedures.31183119   Finally, furloughs meant inspectors were unable to review3120        and approve the use of new training simulators, creating a3121        backlog that will not begin to be addressed until March 20263122        creating inefficiencies and sub-optimal safety.3123Business Aviation supports critical modernization efforts and funding3124        stability.3125    Congress must pass legislation to provide stable funding for the3126FAA during any future shutdown to mitigate harm to the safety and3127efficiency of the aviation system, the travelling public, and the3128national economy.3129    Long before the shutdown, Congress recognized that a modernized air3130traffic control system was a national imperative, essential to safety,3131and made an important down payment on needed reforms. The government3132shutdown threatened that progress and drew critical resources away from3133essential initiatives to expand controller hiring, improve training,3134and update technology and facilities. Business aircraft operators rely3135on a safe and efficient nation's air traffic control system and support3136a renewed focus and investment in these much needed reforms.3137    Congress must act now to ensure funding stability for the FAA,3138equitable airspace access and a returned focus on air traffic control3139modernization work.31403141   Congress must pass a full-year FY2026 Transportation,3142        Housing and Urban Development appropriations bill to ensure3143        continued investment in controller staffing, aviation safety3144        personnel, technicians, and the modernization of critical3145        aviation infrastructure.31463147   We urge Congress to approve legislation to ensure user-3148        funded aviation services continue in the event of another3149        government shutdown. Airspace users pay billions in taxes and3150        fees to maintain air traffic control services, safety and3151        security and deserve uninterrupted delivery of those services.3152        Legislation such as Chairman Moran's Funding Stability Act of3153        2025, and The Aviation Funding Solvency Act introduced in the3154        House would ensure these services are uninterrupted.31553156   Congress must continue its critical work on airspace3157        modernization, strengthening the staffing, technology,3158        infrastructure and facilities to build the best air traffic3159        control system in the world, enabling safe and efficient air3160        transportation.31613162    Ending the government shutdown was an essential first step. Next,3163Congress must establish funding stability to ensure aviation services3164continue in the event of another government shutdown and return focus3165to modernizing the air traffic control system to maximize safety and3166efficiency in the national airspace system and strengthen the3167resilience of the American economy.3168    Thank you for your consideration. I appreciate the Committee's3169careful oversight of our Nation's aviation system and look forward to3170working with you to enhance aviation safety, improve the airspace3171system and maintain America's global leadership in aviation.31723173[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]31743175                        American Society of Travel Advisors3176                                  Alexandria, VA, November 18, 202531773178Hon. Jerry Moran,3179Chair,3180Senate Subcommittee on Aviation, Space, and Innovation,3181Senate Committee on Commerce, Science, and Transportation,3182Washington, DC.3183Hon. Tammy Duckworth,3184Ranking Member,3185Senate Subcommittee on Aviation, Space, and Innovation,3186Senate Committee on Commerce, Science, and Transportation,3187Washington, DC.31883189Re: Statement for the Record to the Subcommittee on Aviation, Space,3190            and Innovation: Subcommittee Hearing titled, ``Flying on3191            Empty: How Shutdowns Threaten Air Safety, Travel, and the3192            Economy,'' on November 19, 2025.31933194Dear Chairman Moran, Ranking Member Duckworth and members of the3195            Subcommittee:31963197    On behalf of the American Society of Travel Advisors (ASTA) and the3198more than 300,000 individuals working in the travel advisor profession,3199thank you for the opportunity to submit this statement for the record.3200We appreciate the Subcommittee's leadership in examining issues that3201affect travelers, the air transportation system, and the broader travel3202economy.3203    Travel advisors play a central and indispensable role in the global3204travel and tourism industry. ASTA's membership encompasses the full3205breadth of the marketplace from home-based entrepreneurs and3206traditional brick-and-mortar agencies to large travel management3207companies (TMCs) and online travel agencies. These professionals3208provide critical services to the traveling public, offering informed3209guidance, real-time problem solving, and dedicated assistance in the3210event of emergencies, disruptions, or unexpected changes in plans.3211Corporations rely on TMCs to manage their business travel programs3212efficiently and effectively, ensuring policy compliance and cost3213control while maintaining traveler safety and satisfaction.3214    With more than 300,000 travel advisors nationwide, nearly two-3215thirds of which are independent contractors, the profession represents3216a significant segment of the U.S. small business community. Ninety-five3217percent of travel agencies are small businesses under the SBA standard,3218and 80 percent are women-owned. In 2024, travel agencies sold 781,0003219air tickets per day, totaling $99.2 billion in annual airline sales,3220and were responsible for booking more than 66 percent of all cruises3221and tour packages. The profession booked $119.3 billion in travel last3222year alone, with continued industry growth projected by the U.S. Bureau3223of Labor Statistics. Given this scale and economic importance,3224understanding the challenges faced by travel advisors during the3225government shutdown is essential to fully evaluating its effect on3226their businesses, U.S. travelers, and the broader travel economy.3227    In the final days of the longest Federal government shutdown in3228history, ASTA surveyed its members nationwide to assess the operational3229and economic impacts on both travel advisors and the travelers they3230serve. The results provide a clear and consistent picture of an3231industry under significant strain.3232    Travel advisors overwhelmingly reported increased workloads,3233heightened client anxiety, disrupted travel operations, and material3234impacts on their business performance. While the severity of the impact3235of the government shutdown varied, overall sentiment across the3236profession was decidedly negative.3237    The following summary of the impacts from the 43-day government3238shutdown on travelers and travel agencies presents a myriad of3239challenges and concerns to the travel industry. ASTA would welcome3240sharing the complete results of the research with the Subcommittee if3241it is of interest.3242Financial Impact on Travel Agencies and Advisors3243    The most common theme expressed by advisors in the survey responses3244was a loss of income while their clients dealt with flight3245cancellations, national park restrictions and postponement of future3246travel. A large portion of survey respondents commented that travelers3247were postponing trips until the shutdown ended, or even until next3248year.3249    Travel advisors overwhelmingly reported that the shutdown created3250significant financial strain for their agencies, largely due to3251widespread flight disruptions that required hours of unpaid rebooking3252work and lost commissions when trips were canceled. Many advisors noted3253a sharp decline in new bookings, with clients delaying or abandoning3254travel plans entirely because of uncertainty, fear of being stranded,3255or financial stress from missed paychecks. For Federal government3256employees and contractors hit directly by loss of pay, even long-3257planned vacations were canceled in order to free up funds for basic3258living expenses.3259    Many travelers expected advisors to have answers that didn't exist3260given the day-to-day uncertainty around air traffic control staffing,3261TSA operations, and flight cancellations. This anxiety translated into3262a sharp decline in inquiries and bookings for many agencies, with sales3263for some agencies dropping to levels not seen since the pandemic.3264Advisors spent more time calming clients than creating new business,3265and many noted that they were doing dramatically more service work3266while earning less revenue.3267    In fact, nearly two-thirds reported clients delaying travel3268decisions. The hesitation spanned both leisure and business travelers3269and resulted in revenue drops averaging 25 percent for agencies.3270Overall, the shutdown shook consumer confidence, with many advisors3271reporting their phones had ``gone silent'' as clients adopted a wait-3272and-see approach. These dynamics suppressed travel demand and3273threatened long-term financial risk for small agencies.3274Travel Agency Operational Disruption3275    More than seventy percent of advisors reported moderate or severe3276impacts on their business operations during the shutdown. Additionally,3277nearly eighty percent indicated they spent additional hours each week3278resolving shutdown-related issues, time that was largely uncompensated.3279While navigating crises for clients is part of the job, many advisors3280reported serving as a therapist to their clients, who were rightfully3281distressed about the possibility of missing an important client3282meeting, long-planned vacation, occupational conference, or a cruise3283departing from a distant port.3284    One comment from a travel agency owner summed up the sentiment3285voiced throughout the survey: ``As a travel agency, we've definitely3286felt the ripple effects of the government shutdown. Air travel has3287become more unpredictable, with increased delays and limited staffing3288impacting both flight schedules and traveler confidence. Our team has3289spent much more time assisting clients with rebookings, schedule3290changes, and [offering] reassurance due to the uncertainty. Customer3291service has also been affected because many travelers are3292understandably anxious, and we're working harder to provide the support3293and communication they need. Overall, we've seen a slowdown in new3294bookings as clients hesitate to plan future travel until things feel3295more stable. It's been a challenging time, but we're staying proactive3296and doing everything we can to guide our clients through it.''3297Stress on the Air Travel System3298    Unsurprisingly, uncertainty around air travel represented the most3299significant disruption. Delays, cancellations, or rebookings for3300clients affected 83 percent of those responding. Travel advisors3301absorbed the brunt of traveler frustration as airlines and air traffic3302control faced capacity and staffing challenges. Government-mandated3303restrictions of flights across the system had immediate disruptive3304impacts resulting in fewer options to offer clients. These impacts3305continue to be sorted out in the days following the shutdown.3306    While advisors also reported disruptions to sales volume, customer3307service workloads, group tours and national park availability, air3308travel disruptions far exceeded the other concerns. The concentration3309on air travel issues reflects the role of the travel advisor on the3310front lines of the traveler experience. Advisors are absorbing the3311burden of airline disruption and uncertainty, which erodes efficiency3312and client satisfaction.3313Limited Federal Communication3314    Advisors also reported little to no communication from Federal3315agencies during the shutdown, reducing their ability to provide3316accurate and timely guidance to travelers. In the absence of complete3317and comprehensive communication, advisors often relied upon anecdotal3318information and their own experiences to guide travelers.3319    With limited guidance from Federal agencies and constantly changing3320conditions, many advisors felt they were operating without reliable3321information, trying to reassure clients in an environment where facts3322shift daily. The industry spent far more time managing crises than3323selling travel, leading to concerns about long-term revenue health.3324Broader Industry Consequences3325    More than sixty percent of respondents believed the shutdown3326produced ripple effects across the travel ecosystem, including concerns3327about consumer confidence, airline reliability, and the economic health3328of key travel-dependent destinations.3329    At the center of the disruption is the instability of the air3330travel system. When flights are delayed or canceled, travelers miss3331cruises, tours, hotel stays, meetings, and events, creating a chain3332reaction of rebookings, refunds, and lost revenue for suppliers across3333the industry. Advisors described airports as chaotic and unpredictable,3334with limited information, long hold times, and inconsistent3335communication from both airlines and government agencies. This3336instability has eroded traveler confidence, which emerges as one of the3337most damaging industry-wide consequences.3338    As one respondent summed it up: ``This shutdown is strangling our3339industry. Airports are chaos. Flights delayed. Passports and visas3340stalled. Conferences canceled. Small businesses are watching their3341income vanish overnight. The ripple effect is devastating--hotels,3342airlines, restaurants, drivers, guides, and local shops across the3343country are paying the price for Washington's paralysis.''3344Policy Considerations3345    Travel advisors serve every congressional district and provide3346critical real-time support for millions of travelers. Based on the3347survey results, ASTA respectfully urges Congress to consider the3348following:33493350  1.  Prioritize stabilization of Federal travel infrastructure,3351        particularly aviation systems heavily affected during3352        government shutdowns.33533354  2.  Improve communication from Federal agencies to travel3355        professionals who disseminate critical information to3356        travelers.33573358  3.  Recognize travel advisors as essential partners in maintaining3359        consumer confidence and navigating system-wide disruptions.33603361  4.  Include travel advisors in stakeholder discussions related to3362        aviation reliability, shutdown impacts, and traveler-protection3363        initiatives.3364Conclusion3365    While many advisors believe their own role becomes more valuable in3366moments like these, the consensus is clear: government shutdowns3367disrupt not just travel plans, but the fundamental functioning of and3368confidence in the entire travel industry. The government placed3369substantial operational, economic, and emotional burdens on travel3370advisors, the travelers they support and the greater travel economy.3371Advisors are working longer hours under immense pressure, managing3372elevated traveler concerns, and absorbing the effects of widespread3373travel disruptions. Despite these challenges, they continue to provide3374stability and expertise during a period of significant uncertainty.3375    We appreciate the Subcommittee's time and consideration of our3376concerns, and stand ready to assist in your ongoing work. To that end,3377please don't hesitate to contact ASTA Vice President, Advocacy, Jessica3378Klement at jklement@asta.org.3379            Sincerely,3380                                                Zane Kerby,3381                                                 President and CEO,3382                                   American Society of Travel Advisors.33833384    Senator Moran. As a Kansan and someone that the state is3385hosting a FIFA and the Olympics coming up, and as Chair of the3386Congressional Senate Caucus on Travel and Tourism, we need the3387airlines fully operational and the travel industry capable of3388meeting significant demands as many international travelers3389will be visiting the United States, including Kansas City, in3390the near future.3391    I thank all of our witnesses for their testimony today.3392Senators on this committee will have until the close of3393business on November 26 to submit questions for the record, and3394the witnesses will have until the close of business on December3395the 10 to respond to those questions. What that means is my3396colleagues and I may ask you questions in writing, and then if3397you would respond to those questions to--for the satisfaction3398of those senators and for the Committee record by the December3399the 10, that is what we would ask you to do.3400    And that concludes today's hearing, and the Committee3401stands adjourned.3402    [Whereupon, at 4:06 p.m., the Subcommittee was adjourned.]34033404                            A P P E N D I X34053406    Response to Written Questions Submitted by Hon. Jacky Rosen to3407                              Nick Daniels3408Question Topic: Shutdown Impacts on ATC Workforce Pipeline3409    During the 44-day government shutdown--the longest in our Nation's3410history--Nevada's Federal aviation workforce, including air traffic3411controllers (ATC) and TSA personnel, worked for weeks without pay.3412Fortunately, our airports and local organizations stepped up to support3413our workers. For example, the Reno-Tahoe Airport Authority partnered3414with The Children's Cabinet and the Northern Nevada Food Bank to3415provide essential support, from food to household necessities.34163417    Question 1. From your perspective, despite these critically3418important community efforts, how has the economic and emotional strain3419of the shutdown affected morale, retention, and the future pipeline of3420skilled aviation personnel?3421    Answer. The National Air Traffic Controllers Association (NATCA) is3422extremely thankful for the efforts in Nevada through the partnership3423that included the Reno-Tahoe Airport Authority to provide essential3424support for air traffic controllers and other aviation safety3425professionals who worked without pay during the shutdown. NATCA is also3426grateful for the countless other organizations who provided support3427across the country for these dedicated patriotic Federal workers.3428Groups like the Air Line Pilots Association (ALPA), the Association of3429Flight Attendants-CWA (AFA), the Southwest Airlines Pilots Association3430(SWAPA), and the NetJets Association of Shared Aircraft Pilots3431(NJASAP), and many individual airlines stood in solidarity and provided3432food and other forms of support during the shutdown.3433    NATCA has always been concerned about the risks inherent in a3434government shutdown and the compounding negative effects a shutdown has3435on aviation safety, the U.S. economy, and the morale of the frontline3436workforce that safeguards the National Airspace System (NAS) every day.3437Government shutdowns--of any length--are incredibly stressful and3438distracting for the nearly 20,000 air traffic controllers and other3439aviation safety professionals NATCA represents, the vast majority of3440whom worked without pay during the shutdown. This is not acceptable and3441not sustainable.3442    Nevertheless, during the shutdown, controllers continued to show up3443and step up for the American flying public and each other, deftly3444performing their safety-critical functions at the highest level despite3445operating 3,800 fully certified controllers short of the Federal3446Aviation Administration's (FAA) staffing target.3447    It was incredibly unfair to expect hard-working, patriotic American3448air traffic controllers and their families to bear the full burden of3449policy disagreements in Congress. Increased stress decreased morale,3450personally, for controllers and their families who were enduring the3451effects of the shutdown as much as they were. Morale was also harmed as3452the workforce struggled financially to pay for rent, food, utilities,3453and childcare to make ends meet. The reality is that these3454professionals were required to oversee the movement of the Nation's3455passengers and cargo while many continued to work ten-hour days and3456six-day workweeks due to the ongoing staffing shortage, all without3457pay. All of these factors compounded to decrease morale.3458    In spite of this, even as they went without pay during the record-3459long government shutdown, America's air traffic controllers remained3460steadfast in their commitment to ensuring the safety and efficiency of3461the National Airspace System.3462    Although stress, financial insecurity, and decreased morale led to3463some unanticipated attrition among these professionals, NATCA does not3464have any specific data on how many controllers retired or resigned as a3465direct result of the shutdown. However, NATCA is extremely grateful to3466Department of Transportation Secretary Sean Duffy who kept the FAA's3467controller hiring and training pipeline open during the shutdown. In3468fact, for the first time ever, Secretary Duffy directed the FAA to3469continue hiring and training controller candidates at the FAA's Academy3470in Oklahoma City during the shutdown, thereby ensuring controller3471staffing would not be as negatively affected unlike previous shutdowns.34723473    Question 2. What long-term impacts could we see on ATC and TSA3474workforce retention, and what policy solutions should Congress consider3475to ensure that talented young people continue to pursue careers in the3476Federal aviation workforce?3477    Answer. Currently, NATCA is not aware of any long-term impacts to3478the ATC workforce in terms of recruitment or retention. However, the3479FAA was already operating near a 30-year low in terms of fully3480certified professional controllers: 3,800 controllers short of its3481staffing target.3482    The controller workforce has been understaffed for more than a3483decade, resulting in mandatory overtime, including regular 10-hour days3484and six-day weeks. Last year, controllers at 40 percent of FAA3485facilities worked six days a week at least once per month. Several3486facilities require six-day workweeks every week. The FAA and NATCA are3487acutely aware of these thin staffing margins and the compounding3488effects they have on controller stress and fatigue.3489    Retention efforts could become more challenging in the future if3490controllers elect to retire when first eligible, rather than waiting3491until age 56 mandatory retirement. However, recent efforts in Congress3492to raise the mandatory retirement age for controllers beyond age 563493would not solve the current staffing crisis. Earlier this year, there3494were fewer than 50 controllers across only 32 facilities who would have3495reached age 56 within a year. Therefore, permitting controllers to work3496past age 56 would not have a meaningful effect on current controller3497staffing challenges.3498    NATCA thanks this Committee for its work to address the shortage in3499the FAA Reauthorization Act of 2024. It not only updated FAA's3500controller staffing targets, but it also requires the FAA to hire the3501maximum number of controller trainees for five years and deploy tower3502simulator systems to every FAA tower to improve training. This3503Committee must continue its oversight role to ensure that the3504requirements it established come to fruition.3505    Additionally, NATCA supports S. 1985--the Safe Operations of Shared3506Airspace Act of 2025, which would, among other things, improve3507controller training and extend FAA's max hiring requirements contained3508in the FAA Reauthorization Act of 2024 for an additional five years.3509    Finally, NATCA continues to strongly support Secretary Duffy's plan3510to supercharge the hiring of controller trainees to bring in the best3511and brightest controller candidates.3512    It is through these types of consistent, intentional, and sustained3513hiring and training efforts that we will begin to approach improved3514controller staffing numbers for years to come.3515                                 ______35163517    Response to Written Questions Submitted by Hon. Jacky Rosen to3518                     Governor Christopher T. Sununu3519    Question Topic: Impact of Trump Policies on International Air3520Travel3521    The Trump Administration's policies have been undermining3522international travel and tourism for the past year. More visitors come3523to Las Vegas from Canada every year than from any other country across3524the globe. But thanks to Trump's tariffs, Canadian air travel to Las3525Vegas is down more than a third year-over-year. That is in addition to3526a 13 percent overall drop in international visitors--all of whom must3527decide whether or not to travel to the U.S. amidst a backdrop of3528foreign travelers being detained at airports, tariffs raising costs and3529undermining trade with our allies, and new fees that make international3530travel more expensive--like the $250 ``visa integrity fee'' created by3531the so-called ``One Big Beautiful Bill Act''.35323533    Question 1. Governor Sununu, can you talk about the impact these3534policies are having on air travel to the United States and how Congress3535should work to mitigate them in order to promote international travel3536and tourism?3537    Answer. A4A, and our members, continue to support and are actively3538collaborating with Federal partners to drive both policies and3539investment that will benefit the travel and tourism industry. Travel3540and tourism investment will play a critical role in accommodating3541upcoming global events like the 2026 FIFA World Cup and America 250,3542amongst many others.3543    Additionally, maintaining and promoting the deregulatory policies3544that have democratized air travel to the benefit of both domestic and3545international travelers will be key to growing and promoting3546international tourism. We support the Department of Transportation's3547deregulatory agenda and directives, which squarely align with3548Congress's nearly 50-year mandate for a deregulated airline industry.3549The successes of the Airline Deregulation Act of 1978 (ADA) are3550undeniable, including a diversity of airline businesses that provide3551consumers with record air travel and cargo choices, as well as3552unprecedented affordability that allows more people to fly than ever3553before. Straying from these bedrock deregulatory principles or3554insisting on more regulatory controls will only create barriers for3555travel and tourism.3556    However, the most material and impactful threats to a robust3557travel, tourism and aviation sector that need immediate mitigation and3558action are--35593560   Ensuring the Aviation System Is Not Harmed by Government3561        Shutdowns--The most recent government shutdown clearly3562        demonstrated the serious safety, human and economic3563        consequences of subjecting the aviation sector to unnecessary3564        stress and chaos. It must never happen again. Congress should3565        take immediate actions to:35663567     Short-term: Pass the Fiscal Year (FY) 20263568            Transportation, Housing and Urban Development, and Related3569            Agencies (THUD) and Department of Homeland Security (DHS)3570            appropriations bills to make sure the Federal Aviation3571            Administration (FAA), Transportation Security3572            Administration (TSA) and Customs and Border Protection3573            (CBP) are not subject to shutdown impacts for the rest of3574            FY 2026; and35753576     Durable Solution: Identify and enact solutions that3577            will ensure the FAA, TSA and CBP are insulated from the3578            impacts of any future lapses in appropriations, ensuring3579            their employees can continue their work uninterrupted and3580            with pay. Options include, but are not limited to, S. 10453581            and H.R. 6086 that both guarantee that essential Federal3582            workers are paid for their essential work during any future3583            government shutdown.35843585   Addressing the Air Traffic Controller Shortage. The ongoing3586        air traffic controller staffing shortage, which was an acute3587        issue prior to the shutdown and will only be exacerbated by the3588        long-term impacts of the most recent shutdown. Beginning in3589        October 2023, airlines reduced their flying from the New York3590        metropolitan area by 10 percent to accommodate the lack of3591        controller staffing at critical facilities.35923593    Additionally, in November 2024, the Department of Transportation3594        Inspector General (DOT IG) put out its DOT Top Management3595        Challenges report. That report states:35963597                ``. . . FAA has not ensured adequate controller3598                staffing at its most critical facilities. For example,3599                we (IG) found that 20 of 26 critical facilities were3600                staffed below the Agency's threshold of 85 percent.''36013602                ``FAA's implementation of pauses in air traffic3603                controller training during the COVID-19 pandemic3604                contributed to controller staffing challenges by3605                resulting in an increase in certification times for3606                controllers. FAA needs improved resiliency in staffing3607                and contingency planning for disruptions, and our audit3608                work shows that FAA's lack of a plan to address these3609                staffing challenges limits the capacity of the NAS.''36103611    Congress should work collaboratively with the Administration to3612        execute, implement and invest in Secretary of Transportation3613        Duffy's plans to ``supercharge'' air traffic controller hiring.36143615   Building the Brand New Air Traffic Control System. The U.S.3616        ATC system is very safe, but the lack of government action has3617        made it inefficient, antiquated and far from the ``gold3618        standard'' Americans deserve. Unnecessary travel delays cost3619        the U.S. economy and passengers more than $30 billion annually.3620        These delays are the direct result of systemwide ATC3621        inefficiencies resulting from the use of outdated, World War3622        II-era radar technology. Controllers are still using paper3623        strips to control traffic instead of electronic strips. Some3624        computer system updates are done with floppy disks. Flights3625        between Washington, D.C., and New York used to take 55 minutes,3626        but to account for air traffic delays and inefficiencies, these3627        flights are now scheduled to take 80 minutes or longer. Despite3628        being a vital part of U.S. economic infrastructure, our3629        airspace and the technology that supports it are the modern3630        equivalent of driving a horse and buggy on a gravel road. This3631        lack of efficiency and the resulting reduced capacity directly3632        and negatively impacts carriers' ability to grow and compete3633        and robs consumers and the economy of growth, jobs, tourism and3634        related benefits.36353636    The aviation sector strongly supported Congress's $12.5 billion3637        downpayment toward air traffic control modernization that was3638        included in the ``One Big Beautiful Bill Act,'' and we continue3639        to advocate for at least an additional $19 billion that will be3640        needed to completely build a new air traffic control system.36413642    Fixing these fundamental government problems and challenges will3643provide the necessary stability and predictability needed to3644accommodate and grow the travel and tourism sector and will benefit3645every member of the traveling and shipping public.3646Question Topic: Impact of FAA Reduction Order3647    The FAA recently mandated flight reductions of up to six percent at3648our busiest airports due to air traffic controller shortages that were3649worsened by the government shutdown. Airlines were forced to adjust3650tens of thousands of daily flights, directly affecting passenger travel3651and creating significant operational and financial strain.36523653    Question 1. Mr. Sununu, in your view, how have these travel3654disruptions impacted airline operations, passenger confidence, and the3655broader aviation system?3656    Answer. The data from this most recent shutdown shows the material3657impact and real-world consequences of extended shutdowns and will3658hopefully convince policymakers that we should never subject our air3659traffic control system to this chaos again.3660    Controller Staffing Triggers and Operational Limitations. According3661to FAA data, controller staffing issues contributed to 5 percent of3662National Airspace System (NAS) delay minutes from January through3663September, jumping to 16 percent in October and 62 percent in November.3664Over 6 million A4A member airline passengers were affected during the3665shutdown.36663667[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]36683669    Many of the disruptions faced by passengers between October 1 and3670early November were a function of controller staffing-driven flight3671delays. During that period, A4A airlines incurred over 30,000 staffing-3672related delays but were able to minimize cancellations to about 4003673(<0.1 percent). This shutdown disrupted 3.7 million passengers in that3674time period and pushed the airlines to scramble to minimize customer3675impacts. The air traffic controller staffing issues then led to an3676unprecedented shutdown consequence where the FAA issued an Emergency3677Order (Order #1) directing air carriers to reduce domestic schedule3678operations across the NAS at 40 airports. Specifically, Order #13679directed a 4 percent reduction in operations on Friday, November 7,3680ramping up to 6 percent by November 11, 8 percent by November 13 and 103681percent by November 14. On November 12, citing substantial and rapid3682improvement in facility staffing conditions, the FAA issued a new3683Emergency Order (Order #2), which superseded Order #1. Order #23684modified the operational limitation escalation to 6 percent. From3685November 7--the first day of the FAA-mandated flight-schedule3686reductions--through November 12, A4A airlines incurred more than 15,6003687staffing-related delays and more than 7,100 staffing-related flight3688cancellations, disrupting 2.3 million passengers.36893690[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]36913692    The operational reduction percentages may seem trivial to the3693average observer, but when put into context they are extreme. On3694November 12, for example, 99.8 percent of the 861 staffing-related3695cancellations were attributable to FAA-mandated flight reductions at 403696airports. For perspective, in November 2024, data from the Bureau of3697Transportation Statistics show that U.S. airlines canceled just 0.463698percent of scheduled flights--across all categories of causation,3699including NAS issues. Promulgating a cancellation rate of 6 percent for3700several consecutive days, if not longer, for ATC staffing reasons3701alone, without a chance for operations to recover, is highly disruptive3702to our customers and takes a toll on our frontline employees--at the3703airport, on the plane, on our help desks, etc. At the 40 target3704airports, applying the 6 percent directive translates to approximately3705875 cancellations and 60,000 disrupted passengers per day which is more3706than 13 times the normal rate.3707    A4A estimates that if Order #1 would have reached the original 103708percent threshold, by November 14, the daily average toll on the U.S.3709economy would have reached as much as $580 million depending on the3710degree to which airlines could reaccommodate cancellation-disrupted3711passengers on the remaining flights.3712    Of note, that economic impact estimate is tied solely to compliance3713with the flight-reduction directive, and it does not include the costs3714associated with the value of passenger time, reduced bookings,3715passenger refunds, etc. It does include indirect and induced impacts3716tied to reduced visitor spending, state and local tax revenue and3717spending across the broader economy as individuals within and outside3718the aviation supply chain curtailed expenditures.3719    The air traffic controller staffing crisis also triggered broad3720secondary impacts. In many instances, even those passengers who3721successfully reach their destination encountered long departure delays,3722extended tarmac times and highly unpredictable arrival times. For the3723airlines, many flight crews were timing out (per regulated limits) or3724missing connections because of late aircraft arrivals and equipment3725mis-positioning.3726    For the controller staffing issues in particular, unlike weather-3727driven disruptions, each controller shift change or facility staffing3728trigger could result in added hours of delay with no advance notice,3729undermining the airlines' ability to plan, staff or accommodate3730impacted customers.3731    Despite airline mitigations, it created mass disruptions and should3732serve as an example of the real-world economic and human impact of a3733government shutdown. This simply should never happen again, and it is3734most certainly preventable.37353736    Question 2. Looking forward, what specific steps can airlines and3737the FAA take collaboratively--such as workforce planning, accelerated3738training, investment in advanced traffic management technologies, or3739operational coordination--to address the underlying air traffic3740controller shortage and ensure that the air travel system can safely3741and efficiently handle peak demand, even during unexpected crises?3742    Answer. The most recent shutdown distinctly showed the lengths at3743which the FAA and the aviation community will go to collaborate and3744maintain safety in the system. A4A welcomes opportunities to3745collaborate with the FAA, but ATC staffing is a uniquely governmental3746responsibility that can only be addressed through government action.3747    A4A supports an ``all-of-the-above approach.'' Every facet of the3748controller recruitment, retention, training, staffing and hiring3749framework should be analyzed for better efficiency and effectiveness.3750    A4A also supports DOT Secretary Duffy's ATC staffing3751``supercharge'' effort to hire at least 8,900 new air traffic3752controllers through 2028.3753    In addition to fully utilizing and expanding the capacity of the3754FAA Academy through the efforts above, A4A supports the FAA's expansion3755of the Air Traffic-Collegiate Training Initiative (AT-CTI) program3756which provides a strategic pathway to increase the hiring capacity for3757air traffic controllers. As the FAA reestablishes and expands the AT-3758CTI program, A4A supports the FAA establishing and certifying a program3759that allows applicants to graduate and go directly to on-the-job3760training at air traffic towers, Terminal Radar Approach Control3761(TRACONs) and Air Route Traffic Control Center (ARTCC) facilities3762across the country.3763    Congress and the Administration need to coordinate and establish a3764governance and funding system that will provide stable and predictable3765funding to holistically address the controller shortage. A4A is not3766alone with these recommendations, as we are part of an unprecedented,3767industry-wide broad aviation community coalition established earlier3768this year, the ``Modern Skies Coalition,'' which wholeheartedly3769endorses ``supercharging'' air traffic controller hiring.3770                                 ______37713772     Response to Written Question Submitted by Hon. Jacky Rosen to3773                             James A. Viola3774Question Topic: FAA Recovery from Shutdown Impacts3775    Question 1. Mr. Viola, your testimony has several suggestions on3776ways FAA can manage the backlog from shutdown to expedite recovery. Can3777you elaborate on that?3778    Answer. Thank you for the opportunity to elaborate on ways that FAA3779can manage the backlog created by the recent government shutdown. My3780response is focused on two areas: the FAA's ability to hire the3781workforce needed to provide safety oversight and the ability of3782existing employees to have flexibility to utilize their Personal Time3783Off (PTO) into 2026.3784    A significant concern involves the approximately 600 engineers,3785pilots, inspectors, and technical specialists that AVS was actively3786hiring when the shutdown began. These candidates were left in limbo and3787may now decide not to pursue Federal employment. It takes 6-12 months3788to train a new certification engineer before they can just start to be3789productive. It is a multi-year process to qualify a new flight test3790pilot. This highlights the compounding effect of lost time and lost3791applicants. It isn't a six-week disruption, it's a multi-year set back,3792particularly for highly technical and unique skills such as structural3793loads, software, hybrid propulsion, system safety, and flight test3794pilots.3795    For these highly technical safety positions, direct-hire authority3796is one of the FAA's most effective tools for attracting, rebuilding and3797sustaining the specialized technical talent pipeline and ensuring the3798agency can meet its safety mission, support U.S. innovation, and uphold3799global aviation leadership. The FAA competes directly with3800manufacturers, technical firms, and global aerospace companies for the3801same highly skilled professionals, and industry hires in days while the3802traditional Federal hiring process can take months. Direct-hire3803authority allows the FAA to recruit in weeks instead of losing top3804candidates to faster-moving employers. Several of these direct-hire3805authorities for engineers, pilots, and inspectors expire at the end of3806this year so we recommend that this be extended or permanently3807implemented for these highly specialized safety positions particularly3808given the shutdown.3809    FAA workforce availability is also essential to effectively and3810efficiently work through the backlog of activities that build up during3811the shutdown and restoring U.S. aviation business activities and3812competitiveness in product development, innovation, manufacturing, and3813global exports. Given the amount of change and uncertainty for the3814Federal workforce this year, further exacerbated by the six weeks of3815shutdown, one of the greatest challenges and significant risk to3816recovery is the backlog of the individual personal time off (PTO)3817``use-or-lose'' annual leave benefit which must be used by January 10,38182026, or be forfeited. Consistent with what was implemented following3819the 2018-2019 shutdown, we recommend that the Administration extend the3820ability for Federal employees to use their earned PTO annual leave3821benefit at least to the end of CY2026 so that the FAA does not face a3822significant workforce shortage when they are needed most for starting3823to make up for lost ground.38243825                                [all]