Air Traffic Control Fully Certified
Air Traffic Control Time Certified In Pos 1 (yrs) 4
Distraction; Communication Breakdown; Situational Awareness
ATC Issue All Types; Conflict NMAC; Deviation / Discrepancy - Procedural Clearance
Air Traffic Control Issued Advisory / Alert
Human Factors; Staffing; Procedure
I was working Local Control. The airport was in an unusual flow with Runway 13R/31L closed to aircraft less than 12;500 lbs with a strong wind from the East. As such; the airport was on a Runway 13L flow. This flow requires additional coordination with Ground Control (GC) as TWY D is the only taxi to/from Runway 13L; a coyote was wandering on and in the vicinity of Runway 13L; and when an aircraft weighing more than 12;500lbs wanted to depart; we had to coordinate with the airport operator and LC had to coordinate with GC for use of the Runway 13R/31L.Aircraft X called inbound from the North and requested to land. I gave instructions to the pilot numerous times but the pilot was unfamiliar; did not have the airport or traffic to follow in-sight and kept reading back and not complying with instructions. I finally was able to communicate to Aircraft X to enter a left downwind for Runway 13L. Shortly after; I cleared Aircraft Y for take-off from Runway 13R. As Aircraft Y was passing the departure end of the Runway; I observed Aircraft X on what appeared to be a right crosswind from Runway 13L (as no small aircraft could have departed from Runway 13R). I asked on frequency who was 'on the right crosswind' and Aircraft X reported crossing the extended center line of the Runway and entering a right downwind. It appeared Aircraft Y passed behind Aircraft X at the same altitude and just a few hundred feet. No NMAC reported by the pilots.Contributing to the situation was poor radar coverage; short staffing; poor planning on the airport operating behalf for closing Runway 13R/31L for 'sweeping'. My poor scan and being distracted by other factors.
HIO Tower Controller reported an airborne conflict when an arrival did not comply with instructions and came into conflict with a departure.