Not doubting you but why the "guessing game" between pilot and controller in this case? Why wouldn't the pilot simply reply, "Negative, requesting lower. We are right at the bases?" Seems like a more direct reply and a request to get as low as possible for the best chance at spotting the airport.
The times that I have heard this used by a pilot is when I have them at my MVA. Many times the ceiling is different at airports without weather reporting or in many cases, we don't get the AWOS or ASOS information. There is no guessing game. Lower is not an option and I can't suggest a contact approach. He's suggesting a lower altitude which is not available or he may come right out and say it like you would. I prefer pilots like you who are right to the point. Either way, we both know a visual ain't happening. The pilot would need to ask for a contact approach or a cruise clearance.
7-4-6. CONTACT APPROACH
Clear an aircraft for a contact approach only if the following conditions are met:
a. The pilot has requested it.
NOTE-
When executing a contact approach, the pilot is responsible for maintaining the required flight visibility, cloud clearance, and terrain/obstruction clearance. Unless otherwise restricted, the pilot may find it necessary to descend, climb, and/or fly a circuitous route to the airport to maintain cloud clearance and/or terrain/ obstruction clearance. It is not in any way intended that controllers will initiate or suggest a contact approach to a pilot.
b. The reported ground visibility is at least 1 statute mile.
c. A standard or special instrument approach procedure has been published and is functioning for the airport of intended landing.
d. Approved separation is applied between aircraft so cleared and other IFR or SVFR aircraft. When applying vertical separation, do not assign a fixed altitude but clear the aircraft at or below an altitude which is at least 1,000 feet below any IFR traffic but not below the minimum safe altitude prescribed in 14 CFR Section 91.119.
NOTE-
14 CFR Section 91.119 specifies the minimum safe altitude to be flown:
(a) Anywhere.
(b) Over congested areas.
(c) Other than congested areas. To provide for an emergency landing in the event of power failure and without undue hazard to persons or property on the surface.
(d) Helicopters. May be operated at less than the minimums prescribed in paras (b) and (c) above if the operation is conducted without hazard to persons or property on the surface.
e. An alternative clearance is issued when weather conditions are such that a contact approach may be impracticable.
PHRASEOLOGY-
CLEARED CONTACT APPROACH,
And if required,
AT OR BELOW (altitude) (routing).
IF NOT POSSIBLE, (alternative procedures), AND ADVISE.
4-5-7. ALTITUDE INFORMATION
Issue altitude instructions as follows:
REFERENCE-
FAAO 7110.65, Clearance Items, Para 4-2-1.
a. Altitude to maintain or cruise. When issuing cruise in conjunction with an airport clearance limit and an unpublished route will be used, issue an appropriate crossing altitude to ensure terrain clearance until the aircraft reaches a fix, point, or route where the altitude information is available to the pilot. When issuing a cruise clearance to an airport which does not have a published instrument approach, a cruise clearance without a crossing restriction may be issued.
PHRASEOLOGY-
MAINTAIN/CRUISE (altitude). MAINTAIN (altitude)
UNTIL (time, fix, waypoint),
or
(number of miles or minutes) MILES/MINUTES PAST (fix, waypoint).
CROSS (fix, point, waypoint),
or
INTERCEPT (route) AT OR ABOVE (altitude), CRUISE (altitude).
NOTE-
1. The crossing altitude must assure IFR obstruction clearance to the point where the aircraft is established on a segment of a published route or instrument approach procedure.
2. When an aircraft is issued a cruise clearance to an airport which does not have a published instrument approach procedure, it is not possible to satisfy the requirement for a crossing altitude that will ensure terrain clearance until the aircraft reaches a fix, point, or route where altitude information is available to the pilot. Under those conditions, a cruise clearance without a crossing restriction authorizes a pilot to determine the minimum IFR altitude as prescribed in 14 CFR Section 91.177 and descend to it at pilot discretion if it is lower than the altitude specified in the cruise clearance.
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