An ARTCC controller and the captain of a B737NG had differing opinions as to why an ATC issued 'at a...

Narrative:

The RASKL1 RNAV STAR has been in effect for exactly one year now; for flights into rdu. And for one year; many dozens of aircraft have ignored a verbal ATC instruction to 'cross buzzy at and maintain 11;000'. This restriction is an agreement with ZDC and rdu in their letter of agreement. Today marks at least the twelfth aircraft I have personally worked in a year that has ignored that clearance; and instead; crossed buzzy anywhere between 13;000 and 17;000 ft. I had two air carrier X flights an hour apart do this today alone. The latest was 14;500 over buzzy; when I had issued 'cross buzzy at and maintain 11;000'. Pilot correctly readback my clearance.I asked the pilot if the FMS was flying the plane. He said affirmative. I told him he was 3;500 ft high over buzzy and he said it was his error. He said that the STAR on the FMS shows only an underlined altitude at buzzy (he is correct). I told him that he had not been issued a 'descend via' clearance; so those altitudes did not apply. He apologized and no other aircraft were involved.I have to assume; since this is happening so frequently; that perhaps some pilots are not aware that unless 'descend via' is specifically given by ATC; that the altitudes on the STAR do not apply. What else could it be? This has huge safety implications; because there could have been traffic north of buzzy; which would have led to a TCAS event or other serious situation. Clearly; after a year's time; this situation has not been addressed effectively. I have personally filed four safety reports on this subject. Today; I asked that pilot to relay to the air carrier X chief pilot of the issue; since their pilots seem to violate this so often. I don't know what else I can do to fix this problem. I was hoping by now; that the STAR would have been amended to reflect a mandatory crossing of 11;000.

Original NASA ASRS Text

Title: An ARTCC Controller and the Captain of a B737NG had differing opinions as to why an ATC issued 'at and maintain 11;000' crossing restriction at BUZZY Intersection on the RASKL RNAV STAR to RDU is frequently not complied with when flights are cleared 'FOR' the STAR but not 'VIA' the STAR.

Narrative: The RASKL1 RNAV STAR has been in effect for exactly one year now; for flights into RDU. And for one year; many dozens of aircraft have ignored a verbal ATC instruction to 'CROSS BUZZY AT AND MAINTAIN 11;000'. This restriction is an agreement with ZDC AND RDU in their Letter of Agreement. Today marks at least the twelfth aircraft I have personally worked in a year that has ignored that clearance; and instead; crossed BUZZY anywhere between 13;000 and 17;000 FT. I had two Air Carrier X flights an hour apart do this today alone. The latest was 14;500 over BUZZY; when I had issued 'CROSS BUZZY AT AND MAINTAIN 11;000'. Pilot correctly readback my clearance.I asked the pilot if the FMS was flying the plane. He said affirmative. I told him he was 3;500 FT high over BUZZY and he said it was his error. He said that the STAR on the FMS shows only an underlined altitude at BUZZY (he is correct). I told him that he had not been issued a 'descend via' clearance; so those altitudes did not apply. He apologized and no other aircraft were involved.I have to assume; since this is happening so frequently; that perhaps some pilots are not aware that unless 'descend via' is specifically given by ATC; that the altitudes on the STAR do not apply. What else could it be? This has huge safety implications; because there could have been traffic north of BUZZY; which would have led to a TCAS event or other serious situation. Clearly; after a year's time; this situation has not been addressed effectively. I have personally filed four safety reports on this subject. Today; I asked that pilot to relay to the Air Carrier X Chief Pilot of the issue; since their pilots seem to violate this so often. I don't know what else I can do to fix this problem. I was hoping by now; that the STAR would have been amended to reflect a mandatory crossing of 11;000.

Data retrieved from NASA's ASRS site as of April 2012 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.

Attributes
ACN	972233
Time
Date	201109
Local Time Of Day	1201-1800
Place
Locale Reference	ZDC.ARTCC
State Reference	VA
Environment
Flight Conditions	VMC
Light	Daylight
Aircraft 1
Make Model Name	B737 Undifferentiated or Other Model
Operating Under FAR Part	Part 121
Flight Phase	Descent
Route In Use	STAR RASKL1
Flight Plan	IFR
Person 1
Function	Enroute
Qualification	Air Traffic Control Fully Certified
Experience	Air Traffic Control Non Radar 22 Air Traffic Control Radar 22 Air Traffic Control Time Certified In Pos 1 (mon) 3 Air Traffic Control Time Certified In Pos 1 (yrs) 19
Person 2
Function	Captain
Qualification	Flight Crew Air Transport Pilot (ATP)
Experience	Flight Crew Last 90 Days 150 Flight Crew Type 70
Events
Anomaly	ATC Issue All Types Deviation - Altitude Crossing Restriction Not Met Deviation - Altitude Undershoot Deviation - Procedural Clearance Deviation - Procedural Published Material / Policy

An ARTCC controller and the captain of a B737NG had differing opinions as to why an ATC issued 'at and maintain 11;000' crossing restriction at buzzy intersection on the raskl RNAV STAR to rdu is frequently not complied with when flights are cleared 'for' the STAR but not 'via' the STAR.