Medium Large Transport; Low Wing; 2 Turbojet Eng
Flight Crew Multiengine; Flight Crew Air Transport Pilot (ATP); Flight Crew Instrument
Communication Breakdown; Time Pressure
ATC Issue All Types; Deviation / Discrepancy - Procedural Clearance
General None Reported / Taken
Staffing
When handed off to BNA Approach Control; we were descending via the RYYMN4 RNAV STAR. Quickly after initial handoff to Nashville Approach; it became evident that one controller was working multiple frequencies to include at least several approach/departure frequencies; the local tower frequency; the ground control frequency [and] the clearance delivery frequency. In other words; one controller was working the entire Tower and Approach facility by himself. Shortly after checking in; we were cleared direct to a fix on the ILS 20R and told to maintain 2500 FT. Upon approaching HIKRY and not yet receiving an approach clearance; I had to query the controller several times for further clearance (we were then told to track inbound on the localizer). We later received approach clearance for the ILS 20R. Landing clearance was then not received by short final and once again I had to query the controller several times to get the landing clearance. Landing clearance was finally received when we were at about 500 FT on final approach. The traffic landing behind us also had to ask several times for landing clearance on short final before getting cleared to land. Throughout the time between checking in with Approach and parking at the gate; the sole Tower Controller was clearly task-saturated. Several aircraft were consistently on approach to land on multiple runways; several aircraft on the ground were repositioning to maintenance hangars; etc (which included runway crossings); several other aircraft were getting IFR clearances for departures; at least one of which included the lone controller coordinating EDCT/flow times). At least one aircraft departed a satellite airport under IFR during the time as well. The situation was made worse by the fact that very few of the many aircraft were using the same frequency; yet the one controller was monitoring all of the many frequencies in use. Due to this; it was clear that aircraft were quite commonly transmitting over other aircraft on different frequencies that they weren't hearing in the first place; making the controller's job that much more difficult. Also contributing to the very busy situation (as mentioned above) were several aircraft being repositioned from terminal gates to the maintenance hangar. Due to the airport layout; this requires at least two runway crossings (13/31 and 2L/20R. Exacerbating the problem is the fact that; on average; the mechanics taxiing aircraft are (understandably) not as proficient as other airport users with ATC communications. Finally; the whole situation was in the dark; in misty rain conditions with a ceiling of around 800-1000 AGL. Due to this; flight and ground visibility was compromised from our aircraft; and I'm sure from other aircraft and from the ATC Tower as well. It is plain and simple -not acceptable- to have one lone controller working the entire BNA up/down during a busy arrival push. The IFR conditions that prevailed made the situation quite worse by significantly increasing the controller's and the pilots' respective workloads. If; due to unforeseen staffing constraints (controller illness; etc); the only option to provide ATC service at BNA is to have this situation with one controller working the whole facility by himself; then it is imperative to have all aircraft on one radio frequency. If the radio transceiver hardware in the area won't allow this; then the FAA needs to modify or add hardware in order to make it possible. Additionally; if there is only one controller on duty and there are several aircraft requesting ground repositions from the terminal to hangar areas on the west side of 2L/20R; there needs to be a plan of action in place that will not allow those repositions to leave the terminal area or the hangar area until both runways are essentially closed to takeoff and landing traffic. Using 2C and 2R or 20C and 20L for departures and arrivals during busy ground reposition times would mitigate the threat posed by inexperienced taxi-qualified mechanics crossing several active runways. To that end; any taxi-qualified mechanics need to be very familiar with ATC radio communications and phraseology. Taxi-qualified mechanics need to understand the importance of using standard ATC phraseology; and need to be able to have enough situational awareness to understand when they are transmitting over aircraft on other frequencies (calling for taxi just after hearing an IFR clearance read by the controller; for instance).
Air carrier pilot reported there was only one ATC controller at BNA working several positions.