[Federal Register Volume 61, Number 60 (Wednesday, March 27, 1996)]
[Rules and Regulations]
[Pages 13642-13644]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-7429]
[[Page 13641]]
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Part VII
Department of Transportation
_______________________________________________________________________
Federal Aviation Administration
_______________________________________________________________________
14 CFR Part 23
Powerplant Instruments; Fuel Pressure Indication; Final Rule
Federal Register / Vol. 61, No. 60 / Wednesday, March 27, 1996 /
Rules and Regulations
[[Page 13642]]
DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
14 CFR Part 23
[Docket No. 28011; Amendment No. 23-52]
RIN 2120-AF41
Powerplant Instruments; Fuel Pressure Indication
AGENCY: Federal Aviation Administration (FAA), DOT.
ACTION: Final rule.
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SUMMARY: This document amends the certification requirement for fuel
pressure indicators on pump-fed engines of normal, utility, acrobatic,
and commuter category airplanes to permit regulatory alternatives to
fuel pressure indicators to warn pilots of fuel system problems. A fuel
pressure indicator is not technically the only means available to the
pilot of indicating a fuel system problem. The amendment allows
airplanes to be certificated with a means that indicates fuel flow or
that monitors the fuel system and warns the pilot of any fuel flow
trend that could lead to engine failure. New technology incorporated as
a means of compliance with the revised rule could improve engine
operation and reduce airplane operating costs.
EFFECTIVE DATE: July 25, 1996.
FOR FURTHER INFORMATION CONTACT:
J. Lowell Foster, Aerospace Engineer, Standards Office, Small Airplane
Directorate, Aircraft Certification Service, Federal Aviation
Administration, 601 East 12th Street, Kansas City, Missouri 64106;
telephone (816) 426-5688.
SUPPLEMENTARY INFORMATION:
Background
Statement of the Problem
The FAA proposed to amend Title 14 of the Code of Federal
Regulations (CFR), Part 23, Sec. 23.1305(b)(4), which required a fuel
pressure indicator for each pump-fed engine. The pressure indicator
gives continuous fuel pressure readings to the pilot. This information
provides an advance warning of engine failure only when a pilot notices
the pressure reading has deviated from the norm and when the pilot can
diagnose what those deviations mean in terms of potential engine
failure. The change would allow the options of a fuel pressure
indicator, a fuel flow indicator, or a means that continuously monitors
the fuel system and warns the pilot of any fuel flow trend that could
cause engine failure. A fuel flow indicator would give continuous fuel
flow readings to the pilot. Fuel flow information presents the fuel
system status to the pilot in a manner similar to the fuel pressure
indicator, but it also allows the pilot to quickly assess the engine's
performance during critical phases of flight, such as takeoff. A
continuous fuel system monitoring device would alert the pilot to any
fuel flow trend that could lead to engine failure.
History
The Aircraft Owners and Pilots Association (AOPA) petitioned the
FAA for new standards that would allow, on all pump-fed engines, a fuel
flow system employing a differential pressure transducer to be accepted
as a means of compliance equivalent to the current fuel pressure
indicator requirements (55 FR 39299, September 26, 1990). The FAA
requested that the Aviation Rulemaking Advisory Committee (ARAC) review
the petition and recommend a course of action. In January 1992, the
Fuel Pressure Indicators Working Group of the ARAC on General Aviation
and Business Airplane Issues began a review of the AOPA's petition. As
a result of the review, a Notice of Proposed Rulemaking (NPRM), Notice
No. 94-37, was published on December 28, 1994 (59 FR 67114).
Discussion of Comments
General
This amendment is based on the NPRM, Notice No. 94-37, published
December 28, 1994 (59 FR 67114). Interested persons were invited to
participate in the development of this final rule by submitting written
data, views, or arguments to the regulatory docket on or before
February 27, 1995. Four comments were received on the proposal,
including a letter of support from the Air Line Pilots Association.
The intent of the fuel pressure indicator requirement for pump-fed
engines is to advise the pilot of a fuel pressure deficiency before
total engine failure. The term ``indicator'' in Sec. 23.1305(b)(4)
implies that the fuel pressure be constantly displayed.
The FAA proposed a change to allow a fuel pressure indicator or a
fuel flow indicator. The fuel flow indicator would constantly display
information that the pilot could use to evaluate engine power, fuel
mixture, and other engine performance factors in addition to fuel
system status. It is technologically possible to have a microprocessor
that monitors engine operation and triggers a warning if the fuel
system operation does not match the other monitored engine trends;
therefore, the FAA also proposed to change the rule to accept a means
that monitors the fuel system and warns the pilot of any fuel flow
trend that could lead to engine failure.
Accordingly, the FAA proposed to adopt a performance standard,
instead of a requirement for specific equipment. An applicant could
show compliance with paragraph (b) of the proposal by using any design
that monitors the fuel system and warns the pilot of any fuel flow
trend that could lead to engine failure.
Discussion of Comments to Section 23.1305
One commenter, a private individual, does not feel that
Sec. 23.1305(b)(4) should be changed as proposed. The commenter
believes that ``an accurate indication is necessary for the pilot to
have a situation awareness of his operating environment.'' The FAA
understands and agrees with the overall basis for the comment; however,
the FAA does not agree with all of the commenter's arguments and will
address them individually.
First, the commenter believes the proposal implies that small
airplane engines are ``antiquated'' using ``antiquated fuel flow
means.'' The NPRM sections discussing the history of this rule focused
on fuel pump reliability, radial engines, and diagnosing fuel pump
failures, which were more frequent in the 1940's and 1950's than today.
The FAA's intention in discussing the rule's history was to point out
that the reliability of fuel pumps has improved since the 1940's. The
FAA did not intend to imply that these engines were in some way
``antiquated.'' In fact, as the commenter points out, the basic engines
used on most small airplanes are derivatives of the engines designed in
the 1940's. Civil Air Regulation 3 airplanes, which constitute over 85
percent of the existing small airplanes flying today, have an excellent
service history.
The commenter also points out that ``continual reference to
automobile monitoring systems is well taken, except that automobiles
can have a problem and pull off to the side of the road.''
Additionally, ``[a]utomobiles may have indicator lights and warnings as
to the state of fule consumption, but they also have a fuel quantity
gauge so the driver can monitor the system in use to also determine an
accurate fuel flow.'' The FAA used the reference to automobile
technology to make the point that sophisticated engine monitoring is
inexpensive enough to be mass produced for automobiles. Complex fuel
[[Page 13643]]
monitoring systems are available in business jets and recently-
certificated jet transport aircraft. This technology may soon be
affordable to small airplane owners and manufacturers, and the FAA does
not want to impede progress with rules offering no alternatives.
The commenter believes that the proposal would allow ``idiot
lights.'' On the contrary, the FAA stated in the NPRM, ``A light that
comes on at the same time that the engine quits is useless. A warning
light system that would comply with this proposal would be
sophisticated enough to read transients and trends, and would give a
useful warning to the pilot.'' Also, the rule as proposed would require
that any warning light system continuously monitor the fuel system and
warn the pilot of any fuel flow trend that could lead to an engine
failure.
Transport Canada questions the ability to show compliance with the
requirement in Sec. 23,1549 to identify maximum and, if applicable,
minimum safe operating limits as well as the normal operating range of
the instrument. This commenter points out that the typical fuel flow
meter is a digital type, and it would be difficult for the applicant to
provide equivalent markings, Engine manufacturers provide the
information required by Sec. 23.1549, which is then usually transcribed
to the installed fuel pressure gauge. It appears that this information
would not be presented through the use of typical digital fuel flow
meters. The commenter offers the following suggestion: ``FAR 23.1549
was written with a traditional dial instrument in mind where the engine
limitations could be easily displayed on the face of the unit and
monitored by the crew. To allow flow meters or other fuel system
monitors to satisfy the requirements of Sec. 23.1549 where such a gauge
no longer exists, compliance could be shown by (1) different colors to
indicate changing trends in system performance (e.g., amber color for a
low pressure/flow condition, red for impending engine failure), or (2)
placarding, if appropriate, to indicate the normal and abnormal
operating ranges.''
The FAA agrees with the commenter's suggestions as an acceptable
means of compliance with Sec. 23.1549. Suggested items (1) and (2)
above offer the pilot a means to determine fuel flow limitations, which
may be needed if a fuel flow meter is installed.
A commenter from Australia supports the proposal; however, the
commenter feels that the proposed text would require a monitoring
system that provides a warning of any trend that could lead to engine
failure, which is an extremely difficult compliance requirement. The
commenter further states: ``The historic requirement, and the NRPM
preamble, clearly addresses fuel pressure (as an indication of the
availability of fuel flow) or fuel flow only. Such wording may stifle
the development of monitoring instrumentation for small airplanes.''
The commenter suggests that, for clarification, the proposed text for
Sec. 23.1305(b)(4)(ii), be amended to read as follows: ``That
continuously monitors the fuel system and warns the pilot of any fuel
flow trend that could lead to engine failure.''
The FAA agrees with the commenter that the proposed wording may be
too broad, making compliance difficult or the system unnecessarily
complex. The FAA encourages ``smart'' systems; however, the intent of
the proposal was to warn the pilot of any fuel flow trend and, for that
reason, the final rule and the preamble adopt the commenter's language.
Section 23.1305 is adopted with the change in paragraph (b)(4)(ii)
to add the words ``fuel flow'' before the word ``trend.''
International Compatibility
The agency has reviewed corresponding International Civil Aviation
Organization international standards and recommended practices and
Joint Aviation Authorities requirements for compatibility. The FAA has
determined that this final rule, if adopted, would not present any
differences.
Paperwork Reduction Act
In accordance with the Paperwork Reduction Act of 1990 (44 U.S.C.
3501 et seq.), there are no reporting or recordkeeping requirements
associated with this rule.
Regulatory Evaluation Summary
Economic Evaluation, Regulatory Flexibility Determination, and Trade
Impact Assessment
Proposed changes to federal regulations must undergo several
economic analyses. First, Executive Order 12866 directs Federal
agencies to promulgate new regulations or modify existing regulations
only if the potential benefits to society outweigh the potential costs.
Second, the Regulatory Flexibility Act of 1980 requires agencies to
analyze the economic impact of regulatory changes on small entities.
Finally, the Office of Management and Budget directs agencies to assess
the effects of regulatory changes on international trade. In conducting
these analyses, the FAA has determined that this rule: (1) will
generate benefits exceeding its costs and is not significant as defined
in Executive Order 12866; (2) is not significant as defined in DOT's
Policies and Procedures; (3) will not have a significant economic
impact on small entities; and (4) will not affect international trade.
These analyses, available in the docket, are summarized below.
Economic Evaluation
The rule adopts a performance standard instead of requiring
specific equipment. In this way, manufacturers can develop any design
that monitors the fuel system and warns the pilot of any fuel flow
trend that could lead to engine failure. The objective of imposing a
performance standard could be met in this case by any means that
``continuously indicates to the pilot fuel pressure or fuel flow, or
that continuously monitors the fuel system and warns the pilot of any
fuel flow trend that could lead to engine failure.'' This will maintain
the level of safety intended by the original requirement, without
imposing any additional costs. For example, a warning light system
could possibly alert the pilot sooner than if the pilot relied on an
instrument panel scan to notice a trend in the fuel pressure indication
alone (as is currently the case).
A fuel flow indicator offers additional benefits compared to a fuel
pressure indicator in that it enables the pilot to monitor the engine's
fuel consumption and compare it to fuel consumption listed in the
airplane flight manual. Consequently, engine operation could be
improved, resulting in reduced fuel consumption and operating costs. In
addition, continual fuel flow readings are useful during critical
phases of flight, such as takeoff and climb. Thus, flight safety could
be enhanced. The other alternative, a means to continuously monitor the
fuel system, will also enhance safety by alerting the pilot to any fuel
flow trend that could lead to engine failure.
Since the rule will permit but not require alternative means of
warning pilots of fuel system problems, it is inherently cost-
beneficial. To the extent that it encourages the future development and
utilization of comprehensive engine control, monitoring, and diagnostic
systems, it will generate benefits in the form of enhanced safety,
improved fuel efficiency, power output, and engine life.
[[Page 13644]]
Regulatory Flexibility Determination
The Regulatory Flexibility Act of 1980 (RFA) was enacted by
Congress to ensure that small entities are not unnecessarily and
disproportionately burdened by government regulations. The RFA requires
a Regulatory Flexibility Analysis if a proposed or final rule would
have a significant economic impact, either detrimental or beneficial,
on a substantial number of small entities. FAA Order 2100.14A,
Regulatory Flexibility Criteria and Guidance, prescribes standards for
complying with RFA requirements in FAA rulemaking actions. The Order
defines ``small entities'' in terms of size, ``significant economic
impact'' in terms of annualized costs, and ``substantial number'' as a
number which is not less than eleven and which is more than one-third
of the small entities subject to a proposed of final rule.
The rule will affect manufacturers of future part 23 airplanes. For
manufacturers, Order 2100.14A defines a small entity as one with 75 or
fewer employees and a significant economic impact as annualized costs
of $19,000 or more. The FAA has determined that the rule will not have
a significant economic impact on a substantial number of small
manufacturers since the annualized certification costs of the rule are
less than $19,000.
International Trade Impact Assessment
The rule will not constitute a barrier to international trade,
including the export of U.S. airplanes and airplane parts to foreign
markets or the import of foreign airplanes and airplane parts in the
United States.
Federalism Implications
The regulations 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, it is determined that this regulation will not have
sufficient federalism implications to warrant the preparation of a
Federalism Assessment.
Conclusion
The FAA amends the airworthiness standards to allow airplane
manufacturers to utilize new technology for fuel system monitoring to
improve the operation and economy of part 23 airplanes powered by pump-
fed engines. The current rule requires a fuel pressure indication;
thus, it limits the means of compliance. The advances in engines
monitoring systems and electronics offer technology that should be
utilized by the aviation community. By broadening this airworthiness
standard, fuel flow indicators or new fuel system monitors may provide
better information to the pilot.
For the reasons discussed in the preamble, and based on the
findings in the Regulatory Flexibility Determination and the
International Trade Impact Analysis, the FAA has determined that this
regulation is not significant under Executive Order 12866. 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. The
regulation is not considered significant under DOT Regulatory Policies
and Procedures (44 FR 11034; February 26, 1979). A regulatory
evaluation of the regulation, including a Regulatory Flexibility
Determination and Trade Impact Analysis, has been placed in the docket.
A copy may be obtained by contacting the person identified under FOR
FURTHER INFORMATION CONTACT.
List of Subjects in 14 CFR Part 23
Aircraft, Aviation safety, Signs and symbols.
The Amendment
In consideration of the foregoing, the Federal Aviation
Administration amends 14 CFR part 23 as follows:
PART 23--AIRWORTHINESS STANDARDS; NORMAL, UTILITY, ACROBATIC, AND
COMMUTER CATEGORY AIRPLANES
1. The authority citation for part 23 continues to read as follows:
Authority: 49 U.S.C. 106(g), 40113, 44701-44702, 44704.
2. Section 23.1305 is amended by revising paragraph (b)(4) to read
as follows:
Sec. 23.1305 Powerplant instruments.
* * * * *
(b) * * *
(4) For each pump-fed engine, a means:
(i) That continuously indicates, to the pilot, the fuel pressure or
fuel flow; or
(ii) That continuously monitors the fuel system and warns the pilot
of any fuel flow trend that could lead to engine failure.
* * * * *
Issued in Washington, D.C. on March 21, 1996.
David R. Hinson,
Administrator.
[FR Doc. 96-7429 Filed 3-26-96; 8:45 am]
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