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FAA Software: Good Enough?

Is today’s software good enough. For many, the answer is, “Absolutely.” I read “The FAA Grounded Every Single Domestic Flight in the U.S. While It Fixed Its Computers.” The article states what many people in affected airports knows:

The FAA alerted the public to a problem with the system at 6:29 a.m. ET on Twitter and announced that it had grounded flights at 7:19 a.m. ET. While the agency didn’t provide details on what had gone wrong with the system, known as NOTAM, Reuters reported that it had apparently stopped processing updated information. As explained by the FAA, pilots use the NOTAM system before they take off to learn about “closed runways, equipment outages, and other potential hazards along a flight route or at a location that could affect the flight.” As of 8:05 a.m. ET, there were 3,578 delays within, out, and into the U.S., according to flight-tracking website FlightAware.

NOTAM, for those not into government speak, means “Notice to Air Missions.”

Let’s go back in history. In the 1990s I think I was on the Board of the National Technical Information Service. One of our meetings was in a facility shared with the FAA. I wanted to move my rental car from the direct sunlight to a portion of the parking lot which would be shaded. I left the NTIS meeting, moved my vehicle, and entered through a side door. Guess what? I still remember my surprise when I was not asked for my admission key card. The door just opened and I was in an area which housed some FAA computer systems. I opened one of those doors and poked my nose in and saw no one. I shut the door, made sure it was locked, and returned to the NTIS meeting.

I recall thinking, “I hope these folks do software better than they do security.”

Today’s (January 11, 2023) FAA story reminded me that security procedures provide a glimpse to such technical aspects of a government agency as software. I had an engagement for the blue chip consulting firm for which I worked in the 1970s and early 1980s to observe air traffic control procedures and systems at one of the busy US airports. I noticed that incoming aircraft were monitored by printing out tail numbers and details of the flight, using a rubber band to affix these data to wooden blocks which were stacked in a holder on the air traffic control tower’s wall. A controlled knew the next flight to handle by taking the bottom most block, using the data, and putting the unused block back in a box on a table near the bowl of antacid tablets.

I recall that discussions were held about upgrading certain US government systems; for example, the IRS and the FAA computer systems. I am not sure if these systems were upgraded. My hunch is that legacy machines are still chugging along in facilities which hopefully are more secure than the door to the building referenced above.

My point is that “good enough” or “close enough for government work” is not a new concept. Many administrations have tried to address legacy systems and their propensity to [a] fail like the Social Security Agency’s mainframe to Web system, [b] not work as advertised; that is, output data that just doesn’t jibe with other records of certain activities (sorry, I am not comfortable naming that agency), or [c] are unstable because either funds for training staff, money for qualified contractors, or investments in infrastructure to keep the as is systems working in an acceptable manner.

I think someone other than a 78 year old should be thinking about the issue of technology infrastructure that, like Southwest Airlines’ systems, or the FAA’s system does not fail.

Why are these core systems failing? Here’s my list of thoughts. Note: Some of these will make anyone between 45 and 23 unhappy. Here goes:

1. The people running agencies and their technology units don’t know what to do
2. The consultants hired to do the work agency personnel should do don’t deliver top quality work. The objective may be a scope change or a new contract, not a healthy system
3. The programmers don’t know what to do with IBM-type mainframe systems or other legacy hardware. These are not zippy mobile phones which run apps. These are specialized systems whose quirks and characteristics often have to be learned with hands on interaction. YouTube videos or a TikTok instructional video won’t do the job.

Net net: Failures are baked into commercial and government systems. The simultaneous of several core systems will generate more than annoyed airline passengers. Time to shift from “good enough” to “do the job right the first time”. See. I told you I would annoy some people with my observations. Well, reality is different from thinking about smart software will write itself.

Stephen E Arnold, January 11, 2023

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