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air carrier to land with safety when the ceiling and visibility are limited to, for example, 500 feet and one mile. The blind-landing system will permit them to come in when ceilings and visibilities are even more restricted.

T. JURISDICTION OF THE ADMINISTRATOR AND THE BOARD

Up to this time I have described the functions provided for by the Civil Aeronautics Act and the way in which they are actually carried out, but I have not indicated as I went along who performs these functions. I did this in order to indicate how the economic and safety regulation and promotion provided for in the act are nicely dovetailed into a well-thought-out whole. Now I would like to spend a few moments in describing the administrative organizations which perform these functions.

The Civil Aeronautics Board exercises all of the functions relating to the regulation and promotion of air carriers from an economic standpoint which I have described.

The second major category of action, a function which the Civil Aeronautics Board exercises, is the prescribing of all safety rules, standards, and regulations, and the suspension and revocation of safety certificates, after hearing, under section 609, where that is found to be necessary. The third method of enforcement to which I have referred, the imposition of civil penalties, is vested in the Administrator.

The third broad category of functions which the Civil Aeronautics Board exercises is that of accident investigation.

The Administrator of Civil Aeronautics, on the other hand, is responsible for the establishment, operation, and maintenance of all air navigation facilities-and that term includes airports, on which the Administrator no doubt will say a good deal-emergency fields, radio ranges, and communications systems. He also has charge of development work and service testing authorized by the act. He enforces and administers the safety regulations which are promulgated by the Board.

As an example of the relationship between the Board and the Administrator so far as our safety functions are concerned, the Board specifies in its regulations the standards of construction and performance which must be met by an airplane as I have indicated before it can receive an airworthiness certificate. A member of the staff of the Administrator is the one who actually determines whether or not a particular aircraft has met these standards and upon a finding that they have been complied with, issues a certificate. He operates in a similar way with respect to safety certificates, all of which he issues under the rules and regulations prescribed by the Civil Aeronautics Board. The Administrator also exercises the function, as you know, of training students under what was known as the civilian pilot training program and the Administrator has aided in and sponsored the educational program in the schools of the country which is now in progress.

Another example of the Board-Administrator relationship is the method in which the jurisdiction of the Board with respect to suspension and revocation of certificates is exercised If the Administrator

discovers a violation which requires the suspension or revocation of a safety certificate, he files a complaint with the Board charging the person involved with the violation and requesting that the Board determine whether the person's certificate should be suspended or revoked. The Board then designates an examiner to hear the case and the Administrator's representative appears at the hearing in the role of prosecutor. The respondent defends himself and the Board sitting in its judicial capacity in that instance decides the case and determines whether the respondent's certificate should be suspended or revoked.

In view of the fact that the Administrator has the responsibility for administering and enforcing the regulations, he maintains under his supervision the large staff of field inspectors necessary for that purpose. In addition he has the responsibility for building, operating, and maintaining the airways. As I have indicated, the Board conducts the function of accident investigation and maintains for that purpose a limited staff of field investigators distributed throughout the country.

The Board and the Administrator are, as you know, located within the Department of Commerce. The Administrator is subject to the supervision and direction of the Secretary of Commerce and the Board exercises its functions of safety regulation, economic regulation, and accident investigation, according to the wording of the statute, independently of the Secretary of Commerce.

III. EFFECT OF THE WAR ON THE BOARD'S WORK

The war has had a substantial effect on the Board's functions under the act.

A. NEW ROUTE CASES

On December 12, 1941, the Board announced that in order to permit immediate and maximum attention of air carriers and their personnel and of the Board to the efficient discharge of emergency demands growing out of the war no new route cases would be carried forward unless a special national interest were shown justifying action. There was an additional reason supporting that action. The great need which the Army experienced for equipment and personnel resulted in very little opportunity for expansion even though time had been available to the carriers and the Board to hear and decide the cases. There have been a substantial number of new route cases affecting the national defense which have been heard and decided by the Board as being cases possessing the requisite national interest. Fifteen of such cases have been heard since December 12 1941. Recently the Board also has reopened for decision 12 new route proceedings, involving 48 applications, in which public hearings had been completed prior to December 7, 1941; that is, prior to Pearl Harbor. Decisions rendered in these cases will be subject to the limitation, where certificates are issued, that service cannot be commenced until the Board finds that the use of the equipment and personnel for the operation will not interfere with the war program.

B. MAIL RATE CASES

A substantial amount of the Board's time has always been occupied by considering air-mail rate cases. The problem of determining the proper amount of air mail compensation, however, has been rendered much more complex than formerly because of the effects on the financial position of the carriers arising from emergency conditions. In the first place the Army, under the necessity of war, purchased about half of the air carriers' equipment, thus reducing their investment in property used in commercial business. In addition, contracts between the airlines and the military services provide for the allocation of overhead to the military operations on a basis which results in a shifting amount of overhead so allocated, depending upon the magnitude of the military operations conducted from time to time, by the respective carriers. Due to the acceleration of activity in the country generally and to the restriction in the amount of service which can be offered to the public, revenues from passengers and express have increased substantially in relation to plane miles flown. I will elaborate on that a little bit later.

C. THE AIR SERVICE PATTERN

The acquisition by the Government of approximately one-half the planes owned by the airlines drastically reduced the number available for commercial use in domestic service and has made it necessary to exercise for the first time a control over schedules. At the time of the initial curtailment of service, the Board recommended to the Army a service pattern prescribing the number of commercial schedules which should be operated on each certificated route and the points which such schedules should serve. You can see, of course, that with the loss of about half of the equipment and with the very important national need of serving the essential war traffic, a difference approach to the matter of schedules and points served was indicated and required, and we, therefore, had to look at the service pattern from the point of view of what services are most important to the war, with no other thought in mind, and that is the way in which this service pattern to which I refer has been made up and kept current.

These recommendations were approved and placed into effect by the War Department. Such a program necessarily involved the temporary suspension of service at many points where a substantial volume of triffic essential to war requirements would not be served. It was foreseen that, as the requirements of the war changed from time to time, this air service pattern would require revision. In order to accomplish this, a procedure was adopted whereby the Board made recommendations for revisions to the War Department, either upon its own initiative or upon the receipt of applications for schedule change by the air carriers. Each such recommendation is based upon a careful analysis of the traffic, equipment turnaround, and special operating conditions involved.

The total daily plane mileage operated in domestic services before this general reduction was 368,867 plane miles; after the new pattern was placed in effect, it was 207,838, or 56.3 percent of the for

mer mileage. From May 18, 1942, up to the present, the total schedules added and recommended to be added have amounted to 60,349 miles. The carriers are thus now operating approximately 72 percent of the former mileage with only 51 percent of the former number of aircraft. The average daily mileage obtained from each DC-3 plane is now 1,626 miles compared to the 1,200 to 1,300 miles per day formerly achieved. In one case, the highest case, the average of plane mile utilization per day is 1,818 miles.

As a result of the reduction in the available passenger-carrying equipment, a few of the carriers have inaugurated, with the Board's approval, limited operations with single-engine equipment in order to continue mail and cargo service and to permit a limited type of pilot training.

D. TRAFFIC PRIORITIES

A part of the wartime air transport picture has been the imposition of priorities by the War Department, establishing the precedence of movement of air passengers and air cargo on commercial services. Directives are issued by the military authorities for travel in accordance with the established system of priorities covering the transportation of persons and cargo by air necessary to the successful prosecution of the war. The directives are designed to insure that priority of air travel is limited to essential movement. Compliance with the directive is mandatory upon the carriers to whom they are issued. Priority for air transportation is extended to personnel engaged upon essential war work, including members of the armed forces, other employees of the Government, representatives of Allied Governments, and civilian personnel, and to essential war materials. I do not mean to indicate that because someone happens to be authorized to obtain a priority, he automatically gets a priority He gets it only if he shows that he is on an official mission connected with the war, and then only for urgent travel or for shipments vital to the war effort. Priorities are not granted where the mission of the individual can be satisfactorily accomplished if travel is performed by train.

E. SAFETY UNDER WAR CONDITIONS

The outbreak of the war had a far-reaching effect on the safety work of the Board. New problems immediately presented themselves, some of which have been steadily growing more acute as the war progresses. The induction of skilled personnel of the aviation industry into the armed forces has tended to spread experience thinner in every phase of the industry. As a result, while investigations may fix the approximate and underlying causes of accidents, it is becoming more and more difficult from a practical standpoint to effectuate the safety measures which will accomplish the desired results. On the other hand, the preservation of material and personnel has never been more important. The Board has and is emphasizing the need of conservatism in operations during this period.

At the suggestion of the Civil Aeronautics Board some time before we became involved in the war, an Interdepartmental Air Traffic Control Board was established upon which were represented the Army, the Navy, the Administrator of Civil Aeronautics, and the Civil Aeronautics Board. This Interdepartmental Board has in general the

responsibility of coordinating the use of ground facilities and air space by military and civil organizations, and of settling contentions between organizations as to which one should be permitted to use air space in given localities. The work of this Board frequently calls for the development and adoption by the Civil Aeronautics Board of civil air regulations designed to carry into effect appropriate safeguards for the accomplishment of objectives recommended to be desirable by the Interdepartmental Board. Where the Interdepartmental Board does not agree or where very important issues are involved the matter is referred to the War Aviation Committee for decision. This committee is composed of the Assistant Secretary of War for Air, The Assistant Secretary of Navy for Air, the Special Aviation Assistant to the Secretary of Commerce, and the chairman of the Civil Aeronautics Board.

The Board has made repeated surveys and is continuously resurveying conditions in air carrier operations with respect to antisabotage measures taken by the carriers. It has also investigated complaints, made studies, and advised with airport operating officials with respect to antisabotage measures designed to prevent subversive activities on airports.

The Administrator of Civil Aeronautics, under his emergency power of suspension given him by the Civil Aeronautics Act, on December 7, 1941, suspended all airmen certificates for a period of 30 days. The suspension was lifted in all cases where pilots could prove to the satisfaction of the Administrator that they were loyal American citizens. To implement this policy the Board on December 10, 1941, passed a regulation, the necessity for which had been anticipated, requiring all pilots to have identification cards containing their fingerprints, picture, and signature. Further regulations were passed by the Board to guard against the possibility of sabotage from the air by civilian aircraft.

In accordance with the Army's request that civil aircraft not be allowed to operate except under the supervision of trusted authorities, the Board on December 10, 1941, enacted a regulation, previously anticipated by the Board and carefully studied, requiring a pilot prior to each take-off to obtain clearance from a police officer, or other public representative designated for the purpose, and to file with such officer a statement showing the type, color, and identification mark of the airplane he proposed to fly, together with his route, and other information necessary to keep a continuous check on such pilot.

This last regulation was superseded by the more comprehensive Emergency Regulations enacted as section 60.95 of the Civil Air Regulations. These regulations were adopted after many conferences with the Army and Navy. They provided machinery for regulating the basing of all civil aircraft, the supervision and guarding of all airplanes while on the ground, means by which a continuous check could be kept on all pilots while in the air, and a system of keeping pilots informed of changes in defense areas and military zones of operation. In connection with the prevention of sabotage and also to provide a means whereby the armed forces could move explosives quickly by civil transport, the Board on March 25, 1942, enacted a new section, 60.97, covering the transportation of explosives.

The Board has adopted many other regulations important to the prosecution of the war and the prevention of sabotage. For example,

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