[Federal Register Volume 60, Number 182 (Wednesday, September 20, 1995)]
[Rules and Regulations]
[Pages 48643-48645]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-23346]



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DEPARTMENT OF TRANSPORTATION
14 CFR Part 91

[Docket No. 26834; Special Federal Aviation Regulation (SFAR) No. 65-1]
RIN 2120-AF85


Prohibition Against Certain Flights Between the United States and 
Libya

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Final rule.

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SUMMARY: This final rule replaces the flight prohibition implemented by 
the FAA in SFAR 65, which became effective on April 20, 1992, and 
expired on April 16, 1993. This action prohibits the takeoff from 
landing in, or overflight of the territory of the United States by an 
aircraft on a flight to or from the territory of Libya. This action 
further prohibits the landing in, takeoff from, or overflight of the 
territory of the United States by any aircraft on a flight from or to 
any intermediate destination, if the flight's origin or ultimate 
destination is Libya. Exceptions are made for particular flights 
approved by the United States Government in consultation with the UN 
Security Council committee established under Security Council 
Resolution 748 (1992) and for certain emergency operations. This action 
is necessary to implement Executive Orders 12543 (1986) and 12801 
(1992) and Resolution 748 mandating an embargo of air traffic with 
Libya.

DATES: The removal of SFAR 65 and the addition of SFAR 65-1 are 
effective on September 20, 1995. SFAR 65-1 shall remain in effect until 
further notice.

FOR FURTHER INFORMATION CONTACT: Mark W. Bury, International Affairs 
and Legal Policy Staff, AGC-7, Office of the Chief Counsel, Federal 
Aviation Administration, 800 Independence Avenue SW., Washington, DC 
20591; telephone 202-267-3515.

SUPPLEMENTARY INFORMATION:

Availability of Document

    Any person may obtain a copy of this document by submitting a 
request to the Federal Aviation Administration, Office of Public 
Affairs, Public Inquiry Center, APA-230, 800 Independence Avenue S.W., 
Washington, DC 20591, or by calling 202-267-3484. Communications must 
identify the number of this SFAR. Persons interested in being placed on 
a mailing list for future rules should also request a copy of the 
Advisory Circular No. 11-2A, which describes the application procedure.

Background

    The Federal Aviation Administration (FAA) is responsible for the 
safety of flight in the United States and the safety of U.S.-registered 
aircraft and U.S. operators throughout the world. Section 40101(d)(1) 
of Title 49, United States Code, requires the Administrator of the FAA 
to consider the regulation of air commerce in a manner that best 
promotes safety and fulfills the requirements of national security as 
being in the public interest. In addition, 49 U.S.C. 40105(b)(1)(A) 
requires the Administrator to exercise his authority consistently with 
the obligations of the United States Government under an international 
agreement.
    One such international agreement is the Charter of the United 
Nations (the Charter) (59 Stat. 1031; 3 Bevans 1153 (1945)). Under 
Article 25 of the Charter, ``the members of the United Nations agree to 
accept and carry out the decisions of the Security Council in 
accordance with the present Charter.'' Article 48(1) of the Charter 
further provides, in pertinent part, that ``[t]he action required to 
carry out the decisions of the Security Council for the maintenance of 
international peace and security shall be taken by all members of the 
United Nations * * *.''
    On March 31, 1992, acting under Chapter VII of the Charter, the 
Security Council adopted Resolution 748, mandating an embargo of 
certain air traffic with Libya. Paragraph 4(a) of Resolution 748 
requires all states to deny permission to any aircraft to take off 
from, land in, or overfly their territory if the aircraft is destined 
to land in or has taken off from the territory of Libya. An exception 
to this prohibition is made for flights that have been approved on the 
grounds of urgent humanitarian need by the Security Council committee 
established by paragraph 9 of Resolution 748. The terms of Resolution 
748 were reaffirmed by the Security Council in Resolution 883 (1993).
    The United States Government has taken several actions to restrict 
air transportation between the United States and Libya. On January 7, 
1986, the President issued Executive Order 12543, which prohibits 
``[a]ny transaction by a United States person relating to 
transportation to or from Libya * * * or the sale in the United States 
by any person holding authority under the Federal Aviation act of any 
transportation by air which includes any stop in Libya.'' On January 
30, 1986, the Secretary of Transportation implemented Executive Order 
12543 by issuing Order 86-2-23, which amended all Department of 
Transportation (DOT) certificates issued under section 401 of the 
Federal Aviation Act, all permits issued under section 402 of the Act, 
and all exemptions from sections 401 and 402 accordingly.
    In response to UN Resolution 748, the President issued Executive 
Order 12801 on April 15, 1992. Section 1 of Executive order 12801 
prohibits:

the granting of permission to any aircraft to take off from, land 
in, or overfly the United States, if the aircraft, as part of the 
same part of the same flight or a continuation of that flight, is 
destined to land in or has taken off from the territory of Libya * * 
*.

Executive Order 12801 cited the President's authority under the 
International Emergency Economic Powers Act (50 U.S.C. 1701 et seq.), 
the National Emergencies Act (50 U.S.C. 

[[Page 48644]]
1601 et seq.), section 1114 of the Federal Aviation Act of 1958, as 
amended (formerly codified at 49 U.S.C. app. 1514, now recodified at 49 
U.S.C. 40106), section 301 of Title 3, United States Code (3 U.S.C. 
301), and section 5 of the United Nations Participation Act of 1945, as 
amended (22 U.S.C. 287c). In particular, the United Nations 
Participation Act provides that:

    Notwithstanding the provisions of any other law, whenever the 
United States is called upon by the (UN) Security Council to apply 
measures which said Council has decided * * * are to be employed to 
give effect to its decisions under the (United Nations) Charter, the 
President may, to the extent necessary to apply such 
measures,through any agency which he may designate, and under such 
orders, rules, or regulations as may be prescribed by him, 
investigate, regulate, or prohibit, in whole or in part, economic 
relations of rail, sea, [and] air * * * between any foreign country 
or any national thereof or any person therein and the United States 
or any person subject to the jurisdiction thereof * * *.

    In support of Executive Order 12801, the FAA adopted SFAR 65 on 
April 16, 1992. SFAR 65 prohibited the takeoff from, landing in, or 
overflight of the territory of the United States by an aircraft on a 
flight to or from the territory of the Libya. SFAR 65 also prohibited 
the landing in, takeoff from, or overflight of the territory of the 
United States by any aircraft on a flight from or to any intermediate 
destination, if the flight is destined to land in or take off from the 
Libya. SFAR 65 expired on April 16, 1993.
    Copies of UN Security Council Resolution 748, Executive Orders 
12543 and 12801, and DOT Order 86-2-23, all of which remain in effect, 
have been placed in the docket for this rulemaking.

Prohibition Against Certain Flights Between the United States and 
Libya

    On the basis of the above, and in support of the Executive Order of 
the President of the United States, I find that immediate action by the 
FAA is required to implement Executive Orders 12543 and 12801 and to 
meet the obligations of the United States under international law as 
evidenced by U.N. security Council Resolution No. 748. Accordingly, I 
am ordering a prohibition on the takeoff from, landing in, or 
overflight of the territory of the United States by an aircraft on a 
flight that has Libya as its origin or ultimate destination. Operations 
approved by the United States Government in consultation with the UN 
Security Council committee established under Resolution 748 and certain 
emergency operations shall be excepted from this prohibition. For the 
reasons stated above, I also find that notice and public comment under 
5 U.S.C. 553(b) are impracticable and contrary to the public interest. 
Further, I find that good cause exists for making this rule effective 
immediately upon publication. I also find that this action is fully 
consistent with my obligations under section 49 U.S.C. 40105(b)(1)(A) 
to act consistently with the obligations of the United States under 
international agreements.
    The rule contains no expiration date, and will be terminated as 
soon as the underlying legal requirements leading to its adoption are 
removed.

Regulatory Evaluation

    The potential cost of this regulation is limited to the net revenue 
of commercial flights between the United States and Libya. However, 
revenue flights to Libya are currently prohibited by DOT Order 86-2-23. 
Accordingly, this action will impose no additional burden on those 
operators.

Paperwork Reduction Act

    This rule contains no information collection requests requiring 
approval of the Office of Management and Budget pursuant to the 
Paperwork Reduction Act (44 U.S.C. 3507 et seq.).

International Trade Impact Assessment

    DOT Order 86-2-23 prohibits U.S. and foreign air carriers from 
engaging in the sale of air transportation to or from Libya. This SFAR 
does not impose any restrictions on commercial carriers beyond those 
imposed by the DOT Order. Therefore, the SFAR will not create a 
competitive advantage or disadvantage for foreign companies in the sale 
of aviation products or services in the United States, nor for domestic 
firms in the sale of aviation products or services in foreign 
countries.

Federalism Determination

    The amendment set forth herein will not have substantial direct 
effects on the states, on the relationship between the national 
government and the states, or on the distribution of power and 
responsibilities among the various levels of government. Therefore, in 
accordance with Executive Order 12612 (52 FR 4168; October 30, 1987), 
it is determined that this regulation does not have federalism 
implications warranting the preparation of a Federalism Assessment.

 Conclusion

    For the reasons set forth above, the FAA has determined that this 
action is not a ``significant regulatory action'' under Executive Order 
12866. This action is not considered a ``significant rule'' under DOT 
Regulatory Policies and Procedures (44 FR 11034; February 26, 1979). 
Because revenue flights to Libya are already prohibited by DOT Order 
86-2-23, the FAA certifies that this rule 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.

List of Subjects in 14 CFR Part 91

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

The Amendment

    For the reasons set forth above, the Federal Aviation 
Administration is amending 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).


Part 9 SFAR 65  [Removed]

    2. SFAR 65, which expired April 16, 1993, is removed.


Part 91 SFAR 65-1  [Added]

    3. Special Federal Aviation Regulation (SFAR) No. 65-1 is added to 
read as follows:

Special Federal Aviation Regulation No. 65-1--Prohibition Against 
Certain Flights Between the United States and Libya

    1. Applicability. This Special Federal Aviation Regulation 
(SFAR) No. 65-1 applies to all aircraft operations originating from, 
landing in, or overflying the territory of the United States.
    2. Special flight restrictions. Except as provided in paragraphs 
3 and 4 of this SFAR No. 65-1--
    (a) No person shall operate an aircraft on a flight to any point 
in Libya, or to any intermediate point on a flight where the 
ultimate destination is any point in Libya or that includes a 
landing at any point in Libya in its intended itinerary, from any 
point in the United States;
    (b) No person shall operate an aircraft on a flight to any point 
in the United States from any point in Libya, or from any 
intermediate point on a flight where the origin is in Libya, or from 
any point on a flight which includes a departure from any point in 
Libya in its intended itinerary; or
    (c) No person shall operate an aircraft over the territory of 
the United States if that aircraft's flight itinerary includes any 
landing at or departure from any point in Libya.
    3. Permitted operations. This SFAR shall not prohibit the flight 
operations between the 

[[Page 48645]]
United States and Libya described in section 2 of this SFAR by an 
aircraft authorized to conduct such operations by the United States 
Government in consultation with the committee established by UN 
Security Council Resolution 748 (1992), as affirmed by UN Security 
Council Resolution 883 (1993).
    4. Emergency situations. In an emergency that requires immediate 
decision and action for the safety of the flight, the pilot in 
command of an aircraft may deviate from this SFAR to the extent 
required by that emergency. Except for U.S. air carriers and 
commercial operators that are subject to the requirements of 14 CFR 
121.557, 121.559, or 135.19, each person who deviates from this rule 
shall, within ten (10) days of the deviation, excluding Saturdays, 
Sundays, and Federal holidays, submit to the nearest FAA Flight 
Standards District Office a complete report of the operations or the 
aircraft involved in the deviation, including a description of the 
deviation and the reasons therefor.
    5. Duration. This SFAR No. 65-1 shall remain in effect until 
further notice.

    Issued in Washington, DC on September 13, 1995.
David R. Hinson,
Administrator.
[FR Doc. 95-23346 Filed 9-19-95; 8:45 am]
BILLING CODE 4910-13-M