National Guard Helicopters: Additional Actions Needed to Prevent Accidents and Improve Safety
The National Guard is comprised of Army and Air Force components. Both components fly helicopters to perform domestic and overseas missions. Together, they reported 298 accidents—mostly due to human errors—for certain helicopters during non-combat flights between FYs 2012-2021.
We found that the Army and Air National Guard could improve how they promote safety. For example, safety officers have limited time to focus on safety issues—such as leading safety briefings—because they are often responsible for a variety of other duties.
We recommended, among other things, that the National Guard components reassess their safety officer workload.
Army National Guard’s Black Hawk Helicopter
What GAO Found
Army and Air National Guard reported 298 helicopter accidents during non-combat flight operations from fiscal years 2012 through 2021. Approximately 45 of those were considered serious helicopter accidents in that they involved death, permanent disability, extensive hospitalization, property damages of $500,000 or more, or a destroyed helicopter (see figure). These non-combat helicopter accidents fluctuated over time and were mainly due to human errors such as not following training standards, overconfidence, poor communication, and lack of awareness, according to GAO's analysis of Department of Defense data.
Reported Army and Air National Guard Serious Helicopter Accidents, Fiscal Years 2012 through 2021
Note: Serious helicopter accidents include those that involved death, permanent disability, extensive hospitalization, property damages of $500,000 or more, or a destroyed helicopter. GAO analyzed non-combat helicopter accidents for four Army National Guard and one Air National Guard helicopter types, which were the primary helicopters used by the National Guard in fiscal years 2012 through 2021.
The Army and Air National Guard use a variety of processes to promote safety and reduce risks during helicopter training, but the effectiveness of their respective flight safety training programs can be improved. National Guard helicopter units use risk management processes during aviation operations, but GAO found each component did not continuously evaluate and update unit level risk management worksheets to incorporate relevant safety information such as accident data and unit culture surveys. By evaluating these worksheets on a routine and recurring basis, Army and Air National Guard helicopter units will ensure those units have cyclical feedback and evaluation of this key risk management process to help ensure risk management procedures are effective.
The Army and Air National Guard established flying hour goals, but pilots did not fly enough on average to meet them due to lack of aircrew availability, maintenance issues, and simulator access. For example, having too few maintenance personnel limited the number of helicopters available for training. The Army and Air Force, including their National Guard components, have taken steps to mitigate these challenges, such as conducting formal studies, but these steps have not fully addressed the identified challenges. By developing comprehensive strategies, the Army and Air Force would be better positioned to fully address the identified challenges that have hindered National Guard helicopter pilot training.
Why GAO Did This Study
National Guard helicopter units perform a range of federal and state missions, including combat search and rescue, medical evacuations, and disaster relief. The Army and Air National Guard experienced helicopter accidents that resulted in the deaths of 28 National Guard personnel during fiscal years 2012 through 2021, based on reported data.
GAO was asked to review issues related to National Guard helicopter accidents. This report examines (1) the trends from fiscal years 2012 through 2021 in reported Army and Air National Guard helicopter accidents in non-combat scenarios and reported causes; and evaluates the extent to which (2) the Army and Air National Guard used existing processes to promote safety and reduce risks during helicopter training; and (3) the Army and Air Force have addressed challenges, if any, that hindered National Guard helicopter pilot training.
GAO analyzed accident data from fiscal years 2012 through 2021; reviewed documents; and interviewed officials from a non-generalizable sample of units selected based on factors such as locations where accidents occurred.
Recommendations
GAO is making 8 recommendations to the Army and Air Force, including that they take steps to ensure that their National Guard helicopter units continuously evaluate and update risk management worksheets and develop comprehensive strategies to address challenges that have hindered National Guard helicopter pilot training. The department generally agreed with GAO's recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Department of the Army | The Secretary of the Army should ensure that the Director of the Army National Guard, in coordination with the Army Combat Readiness Center, establishes a system of record for tracking the status of accident investigation recommendations through implementation. (Recommendation 1) |
As of April 2023, DOD had not identified specific steps the department has taken to address the recommendation. When we confirm what actions the DOD has taken in response to this recommendation, we will provide updated information.
|
| Department of the Army |
Priority Rec.
The Secretary of the Army should ensure the Chief of Staff of the Army, in coordination with the Director of the Army National Guard, updates safety or operational guidance to establish a process to continuously evaluate and update operational risk management worksheets for Army National Guard helicopter units to reflect relevant safety information such as accident data, hazard reporting, and unit culture surveys. (Recommendation 2) |
As of April 2023, DOD had not identified specific steps the department has taken to address the recommendation. When we confirm what actions the DOD has taken in response to this recommendation, we will provide updated information.
|
| Department of the Air Force |
Priority Rec.
The Secretary of the Air Force, in coordination with the Chief of Staff of the Air Force and the Director of the Air National Guard, should incorporate an evaluation of unit processes for updating risk management worksheets as a component of the Air Force's unit inspection program or other means to ensure that the worksheets reflect relevant safety information such accident data, hazard reporting, and unit culture surveys. (Recommendation 3) |
As of April 2023, DOD had not identified specific steps the department has taken to address the recommendation. When we confirm what actions the DOD has taken in response to this recommendation, we will provide updated information.
|
| Department of the Army |
Priority Rec.
The Secretary of the Army should ensure the Army Training and Doctrine Command's Army Aviation Center of Excellence, in coordination with the Director of the Army National Guard, develops a coordinated plan and identifies the resources necessary for conducting in-flight aviation standardization program evaluations of Army National Guard helicopter unit aircrews on a regular and recurring basis. (Recommendation 4) |
As of April 2023, DOD had not identified specific steps the department has taken to address the recommendation. When we confirm what actions the DOD has taken in response to this recommendation, we will provide updated information.
|
| Department of the Army | The Secretary of Army should ensure the Director of the Army National Guard assesses the resource and workload allocations of safety personnel to determine whether helicopter units are appropriately staffed, or if any adjustments are needed to workloads or resource levels to implement operational flight safety programs. (Recommendation 5) |
As of April 2023, DOD had not identified specific steps the department has taken to address the recommendation. When we confirm what actions the DOD has taken in response to this recommendation, we will provide updated information.
|
| Department of the Air Force | The Secretary of the Air Force should ensure the Director of the Air National Guard assesses the resource and workload allocations of safety personnel to determine whether helicopter units are appropriately staffed, or if any adjustments are needed to workloads or resource levels to implement operational flight safety programs. (Recommendation 6) |
As of April 2023, DOD had not identified specific steps the department has taken to address the recommendation. When we confirm what actions the DOD has taken in response to this recommendation, we will provide updated information.
|
| Department of the Army |
Priority Rec.
The Secretary of the Army should ensure that the Chief of Staff of the Army, in coordination with the Director of the Army National Guard, develops a comprehensive strategy that includes goals, priorities, and performance measures to address the challenges that hinder Army National Guard helicopter pilot training. (Recommendation 7) |
As of April 2023, DOD had not identified specific steps the department has taken to address the recommendation. When we confirm what actions the DOD has taken in response to this recommendation, we will provide updated information.
|
| Department of the Air Force |
Priority Rec.
The Secretary of the Air Force should ensure that the Chief of Staff of the Air Force, in coordination with the Director of the Air National Guard, develops a comprehensive strategy that includes goals, priorities, and performance measures to address the challenges that hinder Air National Guard helicopter pilot training. (Recommendation 8) |
As of April 2023, DOD had not identified specific steps the department has taken to address the recommendation. When we confirm what actions the DOD has taken in response to this recommendation, we will provide updated information.
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