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4.3 Handling Busy Traffic

4.3.1 General

Handling busy traffic requires prioritisation, anticipation, and disciplined control.

The Tower Controller shall manage workload effectively while maintaining safe, orderly, and efficient operations at all times.

When traffic levels increase, the controller shall adapt control techniques to maintain safety and prevent overload.

4.3.2 Objectives

During high traffic situations, the Tower Controller shall aim to:

  • Maintain safe separation at all times
  • Sustain an orderly flow of traffic
  • Prevent overload and loss of situational awareness
  • Minimise go-arounds and unnecessary delay

Safety and separation shall not be compromised under any circumstances.

4.3.3 Workload Management

The Tower Controller shall actively manage workload.

This includes:

  • Controlling the rate of traffic entering the runway environment
  • Avoiding unnecessary or complex instructions
  • Keeping communication clear, concise, and prioritised
  • Focusing on critical tasks

If workload increases beyond manageable levels, the controller shall:

  • Delay departures
  • Increase spacing between aircraft
  • Simplify traffic sequences
  • Reduce the rate of operations

4.3.4 Traffic Prioritisation

The Tower Controller shall apply the established priority order:

  1. Aircraft on final approach
  2. Aircraft landing or taking off
  3. Aircraft within the circuit
  4. Departing aircraft
  5. Ground movements

Higher priority traffic shall not be compromised by lower priority tasks.

4.3.5 Maintaining Situational Awareness

The Tower Controller shall maintain continuous situational awareness during high workload conditions.

The controller shall:

  • Continuously scan all aircraft and runway activity
  • Maintain an accurate mental picture of traffic
  • Monitor sequencing and spacing
  • Identify potential conflicts early

Loss of situational awareness shall be treated as a critical condition requiring immediate corrective action.

4.3.6 Traffic Rate Control

The Tower Controller shall regulate traffic flow to maintain safe operations.

The controller shall:

  • Limit the number of aircraft in the circuit
  • Delay or hold departures where required
  • Coordinate with Approach to manage inbound traffic flow

Traffic shall not be accepted beyond the controller’s capacity to manage safely.

4.3.7 Recovery from Overload

If the Tower Controller becomes overloaded, immediate action shall be taken to regain control.

The controller shall:

  • Stop issuing non-essential clearances
  • Focus on aircraft in critical phases of flight
  • Increase spacing between aircraft
  • Use simple and effective control instructions

Where necessary, the controller shall:

  • Instruct go-arounds
  • Delay further departures

4.3.8 Key Principle

Busy traffic shall be managed proactively.

The Tower Controller shall:

  • Anticipate workload increases
  • Control traffic flow early
  • Avoid reactive decision making

If safe control cannot be maintained, the controller shall reduce traffic complexity until stability is restored.

The controller must continuously monitor:

  • Final approach
  • Runway occupancy
  • Circuit traffic
  • Holding points

Loss of awareness is a major contributor to errors.

4.3.5 Managing Arrival Pressure

When arrivals are frequent, the controller should:

  • Establish sequence early
  • Increase spacing if required
  • Use extend downwind or orbits proactively
  • Avoid compressing final approach

Example:

GFA123, extend downwind, I will call base.
GFA456, number two, follow traffic on final.

4.3.6 Managing Departure Opportunities

Departures must be fitted into safe gaps.

The controller should:

  • Identify suitable departure windows
  • Avoid delaying arrivals for departures
  • Be ready to act quickly when a gap appears

Example:

GFA456, line up and wait runway 27.
GFA456, runway 27, cleared for takeoff.

4.3.7 Use of Holding Techniques

Holding techniques may be required to manage traffic flow.

These include:

  • Extending downwind
  • Orbiting aircraft
  • Delaying base turns

These should be used early, not reactively.

4.3.8 Avoiding Overcontrol

Overcontrolling can increase workload and confusion.

Avoid:

  • Excessive instructions
  • Unnecessary corrections
  • Changing plans too frequently

Keep instructions simple and predictable.

4.3.9 When to Slow Down

The controller should reduce the traffic rate when:

  • Situational awareness is degrading
  • Spacing becomes unstable
  • Instructions are being rushed
  • Multiple conflicts are developing

Methods include:

  • Increasing spacing
  • Issuing orbits
  • Delaying departures

4.3.10 Key Principle

A safe, controlled operation is always preferred over a fast but unstable one. Managing workload effectively is a core Tower skill.