Congressional investigations have raised questions about the country's underfunded air traffic control system, deficient radar and lack of investment in infrastructure, even as airlines struggle to cope with a surge in air travel caused by Brazil's booming economy.

Concerned about being made scapegoats, controllers have engaged in strikes and work slowdowns to raise safety concerns, causing months of delays and cancelations. Throughout it all, one of the most glaring problems has been the runway at Congonhas, in the heart of Brazil's biggest city.

On Monday, two planes skidded off the same runway, and on March 22, a Boeing 737-400 overshot it in a heavy rain, stopping just short of a steep drop-off to the adjacent highway.

In February, a federal court briefly banned three types of large jets from the runway, but was overruled on appeal by a court that said safety concerns weren't sufficient to outweigh the severe economic ramifications. Airbus-320s were not covered under the court's ban.

The airport has tried to improve the runway, recently resurfacing it to provide better braking in rainy conditions, but the new surface hadn't dried enough for the next step, cutting deep grooves into the tarmac.

Most of the 162 passengers and 24 TAM employees on board the domestic flight were Brazilians, but an Argentine man and an Austrian were among the victims, according to their countries' consulates. A Peruvian also was aboard, TAM said.

Outside Sao Paulo's main morgue, dozens of people watched silently as vans carrying the dead bodies arrived.

"We never thought this would happen, but it's not surprising. This is Brazil," said Richard Teofolo, a 30-year-old chauffeur. "There's blame to go all around, but no one's going to take the responsibility in the end."

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