[Federal Register Volume 59, Number 48 (Friday, March 11, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-5775]


[[Page Unknown]]

[Federal Register: March 11, 1994]


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Part III





Department of Transportation





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Federal Aviation Administration



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14 CFR Part 91




Airspace Reclassification; Final Rule
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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 91

[Docket No. 27633; Amendment No. 91-239]

 
Airspace Reclassification

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Final rule.

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SUMMARY: This action reinstates the requirement for pilots to establish 
and maintain two-way radio communications with an operating control 
tower in Class E and Class G airspace areas. This action also adds a 
paragraph to Sec. 91.130 of the Federal Aviation Regulations (FAR), for 
simplification and clarification, that allows an aircraft operator to 
deviate from any provision of Sec. 91.130 under the provisions of an 
air traffic control (ATC) authorization. This action is necessary to 
reinstate and clarify certain operating rules that existed prior to the 
Airspace Reclassification final rule, which became effective September 
16, 1993.

EFFECTIVE DATE: This amendment is effective on March 11, 1994.

FOR FURTHER INFORMATION CONTACT:Ms. Ellen Crum, Air Traffic Rules 
Branch, ATP-230, Airspace-Rules and Aeronautical Information Division, 
Federal Aviation Administration, 800 Independence Avenue SW., 
Washington, DC 20591, telephone (202) 267-8783.

SUPPLEMENTARY INFORMATION:

Background

    On December 17, 1991, the FAA published a final rule on Airspace 
Reclassification (56 FR 65638). This rule, effective September 16, 
1993, in pertinent part, reclassified control zones for airports with 
operating airport traffic control towers (ATCT) and airport traffic 
areas as Class D airspace areas. Further, the rule required two-way 
radio communication with air traffic control in these Class D airspace 
areas.

Discussion

    The Airspace Reclassification final rule requires two-way 
communication with ATCT located in Class B, C, and D airspace only. The 
rule deleted the requirement for pilots to establish two-way radio 
communications with the ATCT's (including temporary ATCT established 
for special aviation and emergency activities) located in areas other 
than Class B, C, or D airspace, i.e., Class E and G airspace. This was 
not the intent of the FAA.
    An ATCT is established when the traffic volume and complexity 
warrants the need for increased services and safety. At the time the 
Airspace Reclassification final rule was promulgated, it was assumed 
that those pilots operating at airports within Class E and Class G 
airspace would establish radio contact with the ATCT. Additionally, the 
ATCT's located outside Class B, C, or D airspace were considered to 
have minimal levels of traffic which would not create a safety problem 
even though two-way communication was not mandatory. However, since the 
final rule was published, the FAA has received reports of incidents 
where pilots have not established communications with these ATCT's. 
Unless all pilots are in communication with the ATCT, controllers are 
unaware of the intentions of each aircraft, and may be unable to 
provide ATC services and safety advisories. Therefore, only by 
requiring pilots to communicate with an operating ATCT can safety be 
enhanced for pilots operating on or in the vicinity of an airport. This 
action reinstates the communication requirement for aircraft operating 
at airports where there is an operating ATCT, as existed in Sec. 91.129 
to September 16, 1993.
    The Terminal Airspace Reclassification project required numerous 
amendments to the FAR's. Specifically, Sec. 91.130, ``Operations in 
Class C Airspace'' of the FAR was one of the affected rules. Previous 
to the Airspace Reclassification final rule, Sec. 91.130 included a 
paragraph which allowed for deviations from any provision of this 
section under the provisions of an ATC authorization issued by the ATC 
facility having jurisdiction over the airport radar service area. This 
paragraph now appears only in Sec. 91.129; Sec. 91.130 includes a 
statement which requires the reader to refer back to Sec. 91.129 in 
order to obtain a complete understanding of the rule. This action makes 
the ``deviation'' information more accessible to the reader and will 
replicate the current Sec. 91.130 as closely as practicable to the pre-
Airspace Reclassification version.

The Rule

    This action enhances the safety of certain aircraft operations in 
Class E and Class G airspace and continues the intent of the regulation 
which existed prior to September 16, 1993. Specifically, this rule adds 
Sec. 91.126(d) and Sec. 91.127(c) requiring all aircraft to establish 
two-way radio communications with an ATCT when operating an aircraft 
to, from, through, or on an airport having an operational control 
tower. In addition, this action amends Sec. 91.130, making the 
``deviation'' information more accessible to the reader, and 
replicating the current Sec. 91.130 as closely as practicable to the 
pre-Airspace Reclassification version.

Conclusion

    The FAA has determined that this action: (1) Is not a ``significant 
regulatory action'' under Executive Order 12866; (2) is not a 
``significant rule'' under Department of Transportation Regulatory 
Policies and Procedures (44 FR 11034; February 26, 1979); and (3) does 
not warrant preparation of a regulatory evaluation as the anticipated 
impact is so minimal. In addition, the FAA certifies that this 
regulation will not have a significant economic impact, positive or 
negative, on a substantial number of small entities under the criteria 
of the Regulatory Flexibility Act of 1980.
    In the interest of flight safety, the public needs to be made 
immediately aware of the requirement for pilots to establish and 
maintain two-way radio communications with operating ATCT's that are 
located in Class E or G airspace areas. Therefore, I find that notice 
and public procedures under 5 U.S.C. 553(b) are impracticable and 
contrary to the public interest. Further, the FAA finds good cause, 
pursuant to 5 U.S.C. 553(d), for making this amendment effective in 
less than 30 days to promote the safe and efficient handling of air 
traffic in these airspace areas.

List of Subjects in 14 CFR Part 91

    Air traffic control, Aircraft, Airmen, Airports, Aviation safety.

Adoption of the Amendment

    In consideration of the foregoing, the Federal Aviation 
Administration amends part 91 of the Federal Aviation Regulations (14 
CFR part 91) as follows:

PART 91--GENERAL OPERATING AND FLIGHT RULES

    1. The authority citation for part 91 continues to read as follows:

    Authority: 49 U.S.C. app. 1301(7), 1303, 1344, 1348, 1352 
through 1355, 1401, 1421 through 1431, 1471, 1472, 1502, 1510, 1522, 
and 2121 through 2125 articles 12, 29, 31, and 32(a) of the 
Convention on International Civil Aviation (61 stat. 1180); 42 
U.S.C. 4321 et seq; E.O. 11514, 35 FR 4247, 3 CFR, 1966-1970 Comp., 
p. 902; 49 U.S.C. 106(g).

    2. Section 91.126 is amended by revising the introductory text in 
paragraph (b) and adding paragraph (d) to read as follows:


Sec. 91.126  Operating on or in the vicinity of an airport in Class G 
airspace.

* * * * *
    (b) Direction of turns. When approaching to land at an airport 
without an operating control tower in Class G airspace--
* * * * *
    (d) Communications with control towers. Unless otherwise authorized 
or required by ATC, no person may operate an aircraft to, from, 
through, or on an airport having an operational control tower unless 
two-way radio communications are maintained between that aircraft and 
the control tower. Communications must be established prior to 4 
nautical miles from the airport, up to and including 2,500 feet AGL. 
However, if the aircraft radio fails in flight, the pilot in command 
may operate that aircraft and land if weather conditions are at or 
above basic VFR weather minimums, visual contact with the tower is 
maintained, and a clearance to land is received. If the aircraft radio 
fails while in flight under IFR, the pilot must comply with 
Sec. 91.185.
    3. Section 91.127 is amended by adding paragraph (c) to read as 
follows:


Sec. 91.127  Operating on or in the vicinity of an airport in Class E 
airspace.

* * * * *
    (c) Communications with control towers. Unless otherwise authorized 
or required by ATC, no person may operate an aircraft to, from, 
through, or on an airport having an operational control tower unless 
two-way radio communications are maintained between that aircraft and 
the control tower. Communications must be established prior to 4 
nautical miles from the airport, up to and including 2,500 feet AGL. 
However, if the aircraft radio fails in flight, the pilot in command 
may operate that aircraft and land if weather conditions are at or 
above basic VFR weather minimums, visual contact with the tower is 
maintained, and a clearance to land is received. If the aircraft radio 
fails while in flight under IFR, the pilot must comply with 
Sec. 91.185.
    4. Section 91.130 is amended by adding paragraph (e) to read as 
follows:


Sec. 91.130  Operations in Class C airspace.

* * * * *
    (e) Deviations. An operator may deviate from any provision of this 
section under the provisions of an ATC authorization issued by the ATC 
facility having jurisdiction over the airspace concerned. ATC may 
authorize a deviation on a continuing basis or for an individual 
flight, as appropriate.

    Issued in Washington, DC, on March 7, 1994.
L. Lane Speck,
Director, Air Traffic Rules and Procedures Service.
[FR Doc. 94-5775 Filed 3-10-94; 8:45 am]
BILLING CODE 4910-13-M