Small aircraft pilot vectored through approach course, then vectored back to FAF for ILS approach. When breaking out with field in sight told 'unable clear to land' and vectored to downwind for visual. Handoff to tower on final for visual.

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Attributes
ACN	210311
Time
Date	199205
Day	Sat
Local Time Of Day	0601 To 1200
Place
Locale Reference	airport : orf
State Reference	VA
Altitude	msl bound lower : 1000 msl bound upper : 1500
Environment
Flight Conditions	Mixed
Light	Daylight
Aircraft 1
Controlling Facilities	tracon : orf
Operator	general aviation : personal
Make Model Name	Small Aircraft, Low Wing, 1 Eng, Retractable Gear
Flight Phase	descent : approach
Route In Use	enroute : on vectors
Flight Plan	IFR
Person 1
Affiliation	Other
Function	flight crew : single pilot
Qualification	pilot : instrument pilot : private
Experience	flight time last 90 days : 23 flight time total : 975 flight time type : 750
ASRS Report	210311
Person 2
Affiliation	government : faa
Function	controller : approach
Qualification	controller : radar
Events
Anomaly	non adherence : clearance other anomaly other
Independent Detector	other controllera other other : unspecified cockpit
Resolutory Action	none taken : anomaly accepted
Consequence	Other
Supplementary
Primary Problem	Flight Crew Human Performance
Air Traffic Incident	Pilot Deviation

Narrative:

Approach to orf ILS runway 5 with ceiling 1500 broken. ATC flew me through localizer due to heavy workload on first pass. When so advised, ATC vectored me for another pass in clouds at FAF altitude. Picked up OM as expected but did not establish on localizer as expected. Continued approach and intercepted GS, localizer and started down GS. Do not recall if ATC did or did not clear me for approach. Broke out at about 1000 ft, had airport made, so advised ATC and requested clearance to land. ATC responded 'unable' cleared me for visual with vectors to downwind. Landing uneventful from there. Problem resulted from heavy ATC workload, pilot workload and failure of pilot to be aware of exact clearance at moment of decision. Flight was not in danger at any time. Callback conversation with reporter revealed the following: reporter states he does not understand why controller unable to clear to land. He states approach was extremely busy. He was not told to contact tower until on final for the visual approach. No problem with mins involved. All very confusing.

Original NASA ASRS Text

Title: SMA PLT VECTORED THROUGH APCH COURSE, THEN VECTORED BACK TO FAF FOR ILS APCH. WHEN BREAKING OUT WITH FIELD IN SIGHT TOLD 'UNABLE CLR TO LAND' AND VECTORED TO DOWNWIND FOR VISUAL. HDOF TO TWR ON FINAL FOR VISUAL.

Narrative: APCH TO ORF ILS RWY 5 WITH CEILING 1500 BROKEN. ATC FLEW ME THROUGH LOC DUE TO HVY WORKLOAD ON FIRST PASS. WHEN SO ADVISED, ATC VECTORED ME FOR ANOTHER PASS IN CLOUDS AT FAF ALT. PICKED UP OM AS EXPECTED BUT DID NOT ESTABLISH ON LOC AS EXPECTED. CONTINUED APCH AND INTERCEPTED GS, LOC AND STARTED DOWN GS. DO NOT RECALL IF ATC DID OR DID NOT CLR ME FOR APCH. BROKE OUT AT ABOUT 1000 FT, HAD ARPT MADE, SO ADVISED ATC AND REQUESTED CLRNC TO LAND. ATC RESPONDED 'UNABLE' CLRED ME FOR VISUAL WITH VECTORS TO DOWNWIND. LNDG UNEVENTFUL FROM THERE. PROBLEM RESULTED FROM HVY ATC WORKLOAD, PLT WORKLOAD AND FAILURE OF PLT TO BE AWARE OF EXACT CLRNC AT MOMENT OF DECISION. FLT WAS NOT IN DANGER AT ANY TIME. CALLBACK CONVERSATION WITH RPTR REVEALED THE FOLLOWING: RPTR STATES HE DOES NOT UNDERSTAND WHY CTLR UNABLE TO CLR TO LAND. HE STATES APCH WAS EXTREMELY BUSY. HE WAS NOT TOLD TO CONTACT TWR UNTIL ON FINAL FOR THE VISUAL APCH. NO PROBLEM WITH MINS INVOLVED. ALL VERY CONFUSING.

Data retrieved from NASA's ASRS site as of July 2007 and automatically converted to unabbreviated mixed upper/lowercase text. This report is for informational purposes with no guarantee of accuracy. See NASA's ASRS site for official report.