Staff Shortages Force Periodic Closure of Two Canadian Control Towers

(WINNIPEG, CANADA) Canada’s air traffic control system is facing a deep staffing shortfall that has led to periodic control tower closures at major airports, including Winnipeg and Kelowna, when the sole controller on duty must take a break. The closures, while short and planned under safety rules, have grown more common in the past year as the staffing gap persists.

In one recent case, Winnipeg’s control tower shut for 30 minutes on August 10, 2025 under fatigue management protocols. During these pauses, pilots switch to standard backup procedures, and the airport stays open, but service slows and delays can ripple.

What happens operationally during a closure

The immediate operational change during a closure is a shift in airspace classification—typically to Class E—with pilots using published mandatory frequency procedures to coordinate safely. Airlines receive advance notice through NOTAMs (Notices to Airmen).

• Pilots follow published procedures and contact alternate flight information centers.
• Approaches and departures are coordinated on common frequencies by pilots.
• Airlines and airport authorities are briefed in advance to help ease impacts.

Even short closures can cause hiccups. In Winnipeg, two departures saw minor delays of under 25 minutes during the August event. Elsewhere, the strain has been heavier: in Vancouver, nearly 100 flights were cancelled and 195 delayed on a single day tied to air traffic control shortages.

Short, planned closures preserve safety but can slow operations and create cascading delays across the network.

Safety-first framework: fatigue protocols and contingency playbook

NAV Canada describes a layered safety system designed to protect controllers and passengers even when control rooms are thinly staffed. Key elements include:

• Limits on shift lengths and mandated rest periods.
• Manager authority to reduce traffic capacity or close a unit when staffing falls below safe levels.
• Communication to airlines and the public via NOTAMs specifying the change in airspace and operational limits.

When shortages are expected, operations managers typically follow a sequence:

1. Lower overall capacity (for example, spacing departures/arrivals).
2. Move to temporary closure if safe staffing cannot be maintained.
3. Implement published contingency procedures (pilots use mandatory frequencies and coordinate).

According to analysis by VisaVerge.com, these contingency steps have long been in place, but their frequency is rising as staffing remains tight in multiple facilities.

How big is the shortfall?

• NAV Canada employs just under 1,500 fully qualified controllers — about 250 fewer than needed to run the network reliably.
• Winnipeg’s tower is about six controllers short of its needed 20.
• The Canadian Air Traffic Control Association says the true requirement likely exceeds official targets and is urging a third-party review to reset staffing models.

Why the shortage isn’t easing quickly

The pipeline to qualification is long and demanding.

• More than 500 controllers are in training nationwide.
• It takes about two to three years to reach full qualification.
• Since 2023, roughly 230 new controllers have been certified.
• A partnership with CAE is expected to add 478 more by 2028.

Even with those numbers, normal attrition and the high-stress nature of the work mean relief will not arrive fast. Contributing factors:

• Roots of the shortfall predate the pandemic; COVID-19 exacerbated it through early retirements, training pauses, and layoffs.
• Some controllers left for other fields offering competitive pay and lower stress.
• Smaller airports often feel the crunch first as resources are shifted to major hubs.

Operational consequences for airlines, crews, and passengers

Airlines and crews have adapted tactics to cope with uncertainty:

• Internal memos have advised flight crews to avoid certain airports (like Winnipeg and Kelowna) during severe staffing lulls.
• Delays and cancellations can cascade, stranding crews and stretching duty-time limits.
• Passengers — especially on regional connections — face longer waits and at times overnight disruptions.

For airport workers (ramp crews, customer service), the cycle of delays adds pressure and unpredictability, complicating shifts and family routines.

Labour and industry responses

Union leaders warn that pushing the current workforce harder is not a sustainable fix.

• Sustained overtime increases fatigue and may weaken safety.
• Unions call for a transparent, independent review of staffing methodology.
• The Air Line Pilots Association International Canada says the issue is systemic and cannot be solved by short-term scheduling patches.

NAV Canada and regulator actions

As of October 2025:

• NAV Canada continues to recruit aggressively, expand training capacity, and prioritize safety over throughput.
• The organization cautions that staffing remains tight and that the shortage could persist for several years due to training timelines.

Transport Canada has not announced major new regulations aimed specifically at air traffic control staffing for late 2025. The regulatory focus remains on NAV Canada’s internal steps — recruitment, training partnerships, and strict fatigue risk management.

For regulatory context, Transport Canada’s civil aviation guidance and oversight resources can be found here: Transport Canada – Civil Aviation.

Practical advice for travellers, pilots, and operators

• Airports remain open during short tower closures, but operations can be slower, especially during peak periods.
• Those with tight connections should build in extra time and monitor airline alerts closely.
• Pilots and operators should check NOTAMs and plan alternates or departure-time shifts when staffing advisories are posted.

Broader significance and outlook

Winnipeg’s experience illustrates how a single mandated break can shift an airport to backup procedures for a short window. Most days the impact is mild, but when multiple facilities face similar issues — especially large hubs like Vancouver — the network can seize up quickly.

The long-term solution runs through training classrooms and simulators. Hundreds of trainees are working toward full certification, and until they arrive in towers and centers, Canada will rely on contingency tools:

• Capacity reductions
• NOTAM-driven advisories
• Occasional short control tower closures under fatigue management rules

The stakes are high for communities that rely on frequent and reliable flights for medical travel, business, and family visits. Regional carriers and passengers are particularly vulnerable to ripple effects from even small disruptions.

Canada has a strong safety record. The current approach keeps safety first, but the trade-off is visible: slower operations when staffing is tight. The path forward is steady training and a more robust staffing cushion so the system can absorb sudden absences without leaning on closures and capacity reductions.