[Federal Register Volume 61, Number 170 (Friday, August 30, 1996)]
[Notices]
[Pages 46011-46015]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-22251]


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DEPARTMENT OF TRANSPORTATION
[Docket No. 28671; Notice No. 96-13]
RIN 2120-AF95


Explosives Detection Systems

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Notice of Proposed Amendment to Criteria for Certification of 
Explosives Detection Systems.

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SUMMARY: The FAA is proposing to amend the current Criteria for 
Certification of Explosives Detection Systems (hereafter referred to as 
``Criteria''). This amendment would introduce minimum performance 
standards for EDS equipment designed to identify detonators. The 
current Criteria, issued September 10, 1993, include minimum 
performance standards only for EDS equipment designed to identify main/
bulk explosive charges. The proposed amendment would allow the FAA to 
certify EDS equipment which meets or exceeds either: (1) The minimum 
performance standards for explosive material categorized as main/bulk 
explosive charges; or (2) the minimum performance standards for 
explosive material categorized as detonators. This action is responsive 
to 49 U.S.C. 44913 [Formerly Section 108 of the Aviation Security 
Improvement Act of 1990, Public Law 101-604], which requires the 
Administrator to certify, prior to mandating its deployment, that EDS 
equipment ``can detect under realistic air carrier operating conditions 
the amounts, configurations, and types of explosive material which 
would be likely to be used to cause catastrophic damage to commercial 
aircraft.''

DATES: Comments must be received on or before October 29, 1996.

ADDRESSES: Comments on this notice should be mailed, in triplicate, to: 
Federal Aviation Administration, Office of Chief Counsel, Attention: 
Rules Docket (AGC-10), Docket No. 28671, 800 Independence Avenue, SW., 
Washington, D.C., 20591. Comments that include or reference national 
security information or sensitive security information should not be 
submitted to the public docket. These comments should be sent to the 
following address in a manner consistent with applicable requirements 
and procedures for safeguarding sensitive security information: Federal 
Aviation Administration, Office of Civil Aviation Security Operations, 
Attention: FAA Security Control Point, Docket No. 28671, 800 
Independence Avenue, SW., Washington, D.C. 20591.

FOR FURTHER INFORMATION CONTACT:
Mr. Armen Sahagian, General Engineer (ACP-400), Office of Civil 
Aviation Security Policy and Planning, Federal Aviation Administration, 
800 Independence Avenue, SW., Washington, D.C. 20591, telephone (202) 
267-7076.

SUPPLEMENTARY INFORMATION:

Comments Invited

    Interested persons are invited to comment on the notice by 
submitting such written data, views, or arguments as they may desire. 
Comments should identify the docket or notice number and be submitted 
in triplicate to either the Rules Docket or the FAA Security Control 
Point address specified above. All comments received, as well as a 
report summarizing each substantive unclassified public contact with 
FAA personnel on this notice, will be filed in the docket. The docket 
is available for public inspection before and after the comment closing 
date.
    All comments received on or before the closing date will be 
considered by the Administrator before taking action on this notice. 
Late-filed comments will be considered to the extent practicable. The 
proposals contained in this notice may be changed in light of comments 
received.
    Commenters wishing the FAA to acknowledge receipt of their comments

[[Page 46012]]

submitted in response to this notice must include with their comments a 
preaddressed stamped postcard on which the following statement is made: 
``Comments to Docket No. .'' When the comment is received, the postcard 
will be dated, time-stamped, and mailed to the commenter.

Availability of Document

    Any person may obtain a copy of this notice by submitting a request 
to the Federal Aviation Administration, Office of Rulemaking, ARM-1, 
800 Independence Avenue, SW., Washington, DC 20591, or by calling (202) 
267-9680. Communications must identify the docket number of this 
notice.
    Persons interested in being placed on a mailing list for future 
proposals should request from the above office a copy of Advisory 
Circular No. 11-2A, which describes the application procedure.

Release of National Security and Sensitive Information

    The Associate Administrator for Civil Aviation Security has 
determined that certain portions of the proposed amended Criteria are 
of national security concern and require safeguarding from unauthorized 
disclosure pursuant to Executive Order 12356 (National Security 
Information). Further, pursuant to 14 CFR Part 191 (Withholding 
Security Information from Disclosure Under the Air Transportation 
Security Act of 1974), certain unclassified information has been 
determined to be sensitive security information. Upon request, the 
complete proposed amended Criteria will be provided to prospective 
manufacturers of explosives detection equipment, and other interested 
parties with a bona fide need to have the complete proposed amended 
Criteria, provided such persons have appropriate authorization for 
access to U.S. Government national security information and/or 
sensitive security information.

Availability of Criteria

    Persons requesting access to, or a copy of, the complete text 
(including all classified and sensitive security information) of the 
proposed amended Criteria may write to the Federal Aviation 
Administration, Office of Civil Aviation Security Operations, 
Attention: FAA Security Control Point (ACO-400), Docket No.     , 800 
Independence Avenue, SW., Washington, DC 20591.
    Individuals requesting the classified portion of the proposed 
amended Criteria must include information regarding authorizations and 
security clearances for access to U.S. Government national security 
information, and sufficient explanatory information supporting the 
request to demonstrate a bona fide need to know the information 
contained in the Criteria.

Background

    The proposed amended Criteria are responsive to the statutory 
mandate for testing and certifying EDS. The FAA has had a long-standing 
research and development (R&D) effort to counter the threat of 
explosive materials to civil aviation. Along with other technologies, 
the FAA invested in detonator detection R&D beginning in 1985. However, 
based upon early research, the FAA focused its R&D resources primarily 
on the detection of main/bulk explosive charges, because it appeared to 
be the most technologically feasible approach. The effort resulted in 
the September 10, 1993, Criteria [58 FR 47804], which established 
minimum performance standards for main/bulk explosive charges detection 
equipment. Recent technological advances suggest that equipment capable 
of detecting the different types of detonators used to initiate or 
detonate an explosive may also be an effective means of screening 
checked baggage. FAA now considers it appropriate to propose minimum 
performance standards for the detection of detonators.
    In October 1995 the FAA completed its compilation and analyses of 
technical design information obtained during visits to 38 detonator 
manufacturers located in the United States and 20 other countries. 
These analyses were the most extensive examinations yet on the types, 
materials, and configurations of detonators. As a result, the FAA 
developed a comprehensive database on detonators manufactured 
worldwide, as well as global detonator production and consumption 
profiles. The types of detonators specified in this proposed amended 
Criteria were based, in part, upon reports which identified the types 
of detonators used in terrorist acts, as well as those likely to be 
used in future attempts to destroy or sabotage civil aviation, other 
modes of transportation, and physical structures. This analysis was 
conducted by the FAA with advice and consultation from U.S. and 
international explosive materials experts, and Agencies of the United 
States and other governments.

Development of the Proposed Amended Criteria

    The primary proposed change to the September 10, 1993, Criteria is 
the introduction of minimum performance standards for the detection of 
detonators. These standards are included in the portion of the document 
not published in the Federal Register because they involve national 
security and sensitive information. The unclassified section of the 
proposed amended Criteria published in this notice, contains relatively 
minor editorial changes. The principal purpose of these proposed 
changes is to state that it is possible to obtain certification of an 
EDS to automatically detect explosive materials in two distinct ways: 
either by identifying bulk/main explosive charges, or by identifying 
detonators.
    The changes to the publicly available portion include a definition 
for the term ``explosive material''. The definition distinguishes 
between two principal components of explosive material: bulk/main 
explosive charges and detonators. To facilitate testing of EDS 
candidate equipment under either of the two methods of explosive 
material detection, the proposed amended Criteria references separate 
management test plans. The FAA previously developed a management test 
plan for EDS certification of bulk/main explosive charges detection 
equipment. A Notice of Availability of the draft management test plan 
was published in the Federal Register on June 22, 1993, for public 
comment [58 FR 33967]. That management test plan, entitled FAA 
Management Plan for EDS Certification Testing, was based upon the 
National Academy of Science's General Testing for Protocol for Bulk 
Explosive Detection Systems. A separate management test plan for EDS 
certification of detonator detection equipment is currently being 
developed. The FAA expects to issue a Notice of Availability of a draft 
management test plan for EDS certification of detonator detection 
equipment in the near future.
    Additionally, the FAA is proposing to delete references to 
``checked baggage in international operations'' and replace them with a 
more general reference to ``checked baggage.'' While the current rule 
in 14 CFR 108.20 is limited to the screening of checked baggage for 
international flights, certification as to the inherent capability of 
an EDS to detect explosive materials in checked baggage is not a 
function of the origin or destination of the flight on which the bag is 
transported. The FAA believes that it is important to separate 
certification issues from the economic and policy issues related to 
deployment.
    The FAA is not proposing any substantive changes to the minimum 
performance standards for EDS

[[Page 46013]]

certification of bulk/main explosive charges detection equipment. Nor 
do the proposed minimum performance standards for EDS certification of 
detonator detection equipment embody any change to other aspects of the 
September 10, 1993, Criteria (e.g., throughput rate, overall detection 
rate, false alarm rate). The FAA is soliciting comments only on those 
portions of the proposed amendment that represent a change from the 
September 10, 1993, Criteria.

Regulatory Evaluation

    The FAA has considered the impact of this proposed amendment to the 
EDS Criteria as required under Executive Order 12866 and under the 
Department of Transportation's regulatory policies and procedures. The 
FAA has determined that this action is not significant under either of 
these directives. In addition, the FAA has determined that no cost-
benefit analysis is needed for the amendment of the Criteria and 
related matters such as the Management Test Plans. Any final EDS 
deployment decision will be subject to further review, according to the 
requirements of Executive Order 12866. In this regard, the Department 
determined that the rule authorizing deployment of an EDS for screening 
international flights was a major rule as defined in the Executive 
Order. Based upon circumstances and information available at the final 
rule stage in 1989, the FAA determined that the EDS available at that 
time, the Thermal Neutron Analysis (TNA) device, would be cost-
beneficial. The FAA has not required, nor will it require the 
deployment of TNA or any other EDS until such equipment meets the 
prescribed requirements of 49 U.S.C. 44913. The FAA's deployment 
strategy requires deployment of effective EDS equipment in a cost-
effective manner.
    Information relevant to deployment decisions was developed in the 
1989 final rule [54 FR 36946] in terms of the development, 
installation, and annual operating costs of a TNA device. However, as 
the EDS certification process proceeds and policies affecting EDS 
deployment are developed, all relevant issues influencing the ultimate 
decision on the timing and scope of deployment will be reviewed. The 
FAA will analyze the information submitted by manufacturers during the 
certification testing process to determine its effect on the scope and 
timing of deployment.

Regulatory Flexibility Determination

    The Regulatory Flexibility Act of 1980 (RFA) was enacted by 
Congress to ensue that small entities are not unnecessarily burdened by 
government regulations. The RFA requires agencies to review rules that 
may have a ``significant economic impact on a substantial number of 
small entities.'' Small entities are independently owned and operated 
small businesses and small not-for-profit organizations.
    Under FAA Order 2100.14A, the criterion for a ``substantial 
number'' is a number that is not less than 11 and that is more than 
one-third of the small entities subject to the rule. This Order 
indicates size and ``significant impact'' thresholds for specific 
entity types related to the aircraft industry. There is no entity 
categorization in this Order for manufacturers of this type of 
equipment. The closest applicable Standard Industrial Classification 
for these manufacturers is No. 3728, which is for ``manufacturers of 
aircraft parts and auxiliary equipment not elsewhere classified.'' For 
such small entities, the applicable size threshold is 175 employees. 
The FAA's threshold for ``significant impact'' for each of these 
manufacturers is $13,130 per year.
    The small entities that could be potentially affected by the 
implementation of this proposed action are small business enterprises 
that are or might seek to become manufacturers of EDS equipment. The 
number of small business enterprises that are in, or that might seek to 
enter, this market cannot be determined.
    The proposed amended Criteria would impose minimal costs on those 
small business enterprises. These costs are primarily for obtaining 
access to or copies of the classified and sensitive security 
information portions of these proposed amended Criteria. Because the 
incremental cost imposed by this proposed action is expected to be 
small and certainly less than the aforementioned threshold level 
($13,130 per year), the FAA finds that this proposed action would not 
have a significant economic impact on a substantial number of small 
entities.

International Civil Aviation Organization (ICAO) and Joint Aviation 
Regulations

    In keeping with U.S. obligations under the Convention on 
International Civil Aviation, it is FAA's policy to comply with ICAO 
Standards and Recommended Practices to the maximum extent practicable. 
The FAA is not aware of any differences that this proposal would 
present if adopted. Any differences that may be presented in comments 
to this proposal, however, will be taken into consideration.

Paperwork Reduction Act

    In accordance with the Paperwork Reduction Act of 1995 (44 U.S.C. 
3507 (d)), there are no requirements for information collection 
associated with this proposal.

The Proposed Amendment Criteria (Excluding Sensitive Portions)

    The following sets forth the entire text of the proposed amended 
Criteria except those portions of the document that contain either 
national security information that requires safeguarding pursuant to 
Executive Order 12356, or sensitive security information that requires 
safeguarding pursuant to 14 CFR part 191. [Note: Paragraph markings (U) 
indicate that the content of the paragraph is unclassified consistent 
with standard procedures for paragraph markings in the original 
classified document.]

[Authority: 49 U.S.C. 106(g), 5103, 40113, 40119, 44701-44702, 
447505, 44901-44905, 44907, 44913-44914, 44932, 44935-44936, 46105.]

Criteria for Certification of Explosives Detection Systems

Introduction

    (U) Prior to any requirement for the deployment or purchase of 
explosives detection equipment under 14 CFR 49 U.S.C. 44913 [formerly 
Section 108 of the Aviation Security Improvement Act of 1990, Public 
Law 101-604], requires the FAA to certify that, based upon the results 
of tests conducted pursuant to protocols developed in consultation with 
experts from outside the FAA, such equipment can detect under realistic 
air carrier operating conditions the amounts, configurations, and types 
of explosive materials likely to be used in attacks against commercial 
aircraft.
    (U) These criteria establish the minimum acceptable performance 
requirements for an Explosives Detection System (EDS) to meet the 
mandate of 49 U.S.C. 44913 for certification by the FAA, and supersede 
previous EDS performance requirements established by the FAA.

Explosive Materials Definition

    (U) For purposes of these Criteria for Certification of Explosives 
Detection Systems: ``Explosive materials'' consist of bulk/main 
explosive charges and detonators; a ``bulk/main explosive charge'' is 
an explosive which may be detonated or initiated by a detonator; and a 
``detonator'' is a device, containing an initiating or primary 
explosive, used for initiating detonation of the bulk/main explosive 
charge.

[[Page 46014]]

Explosives Detection System (EDS) Definition

    (U) An EDS is an automated device, or combination of devices, which 
has the ability to detect, in passengers checked baggage, the amounts, 
types, and configurations of explosive materials as specified by the 
FAA. The term ``automated'' means that the ability of the system to 
detect explosive materials, prior to the initial automated system 
alarm, does not depend on human skill, vigilance, or judgment.

[Sensitive Portion of Document Deleted: In the full text of the 
classified Criteria document, this portion addresses alarm resolution 
requirements subsequent to the initial automated alarm.]

General Operational Requirements

    (U) The EDS must detect and differentiate explosive materials from 
among all other materials found in checked baggage.
    (U) The detection must not be dependent on the shape, position, 
orientation, or configuration of the explosive materials.
    (U) The EDS must not pose a health hazard to system operators or 
the public (as detailed in 10 CFR 20, 51 [Nuclear Radiation] and 21 CFR 
1020 [Ionizing Radiation]).
    (U) The EDS must not cause damage or significant residual 
alteration of the luggage or its contents, other than highly sensitive 
materials such as photographic film.

Detection Requirements

    (U) The detection of explosive materials in checked baggage is 
affected by the type, quantity, and configuration of the bulk/main 
explosive charges or detonators, as well as the bag and its contents. 
Depending on the type of detection equipment used, the EDS must 
reliably detect a mix of types and quantities of explosive materials 
selected by the FAA when any of these charges or detonators are present 
in checked baggage.
    (U) The term ``checked baggage'' applies to all passenger bags 
destined for the cargo hold, including originating and transfer 
baggage, regardless of whether or not the bags accompany a passenger on 
a particular flight.

[Sensitive Portion of Document Deleted: In the full text of the 
classified Criteria, this portion contains two tables. The first table 
identifies the types and quantities of explosive materials (bulk/main 
explosive charges) that must be detected, the minimum detection rate 
for each category of bulk/main explosive charges, and the overall 
detection and maximum false alarm rates. The first table also specifies 
the requirement to detect the minimum quantity and larger quantities of 
each listed bulk/main explosive charge. The second table lists the 
makes, models, and U.N. classification numbers of detonators that must 
be detected, and the overall detection and maximum false alarm rates. 
The throughput requirement that appears in both the main/bulk explosive 
charges and detonator tables, is quoted in the Overall Performance 
Requirements section below, because it is the only item that is not 
sensitive security information.]

Overall Performance Requirements

    (U) All the criteria pertaining to detection rate, false alarm 
rate, and throughput are based exclusively on the fully automated 
component(s) or elements(s) of the system.

[Sensitive Portion of Document Deleted: In the full text of the 
classified Criteria document, this portion includes information 
regarding requirements for no human intervention, detection rate, and 
false alarm rate.]
    (U) The cumulative minimum automated system throughput processing 
rate during the certification tests must be at least 450 bags/hour (not 
including alarm resolution).

Other Operational Considerations

    (U) In addition to the mandatory criteria discussed above, there 
are a number of other operational considerations that will influence 
any future FAA decision to require the purchase, deployment, and use of 
EDS for screening checked baggage. While these considerations are not 
mandatory for certification of EDS equipment, they should be factored 
into development and design decisions made by potential manufacturers 
and vendors of EDS equipment.
    (U) The FAA has not yet established precise EDS parameters which 
would serve to define what is practical or cost-effective (e.g., 
precise physical characteristics such as unit weight and size, or 
precise unit cost). Given the variety of airport and air carrier 
operating environments, the FAA does not wish to foreclose the 
development of technologies which may work under some, but not all, 
operating conditions.
    (U) The FAA can, however, provide potential manufacturers and 
vendors, as well as air carriers and airports, with the following 
guidance. In general, EDS equipment that is less costly, smaller, and 
lighter is more practical for use in a variety of airports than a 
system that is more expensive, larger, and heavier--especially if such 
equipment would require separate structures or substantial 
modifications of existing terminal structures for installation or 
operation. Also, systems which are easily operated and maintained, and 
are proven to be reliable, will be more acceptable than systems that 
require extensive specialized training for operation, calibration, and 
maintenance.
    (U) In addition, systems with throughput rates that substantially 
exceed the minimum rate established in the certification criteria are 
operationally more efficient in many applications, and are less likely 
to cause delays and congestion when large numbers of passenger bags 
must be screened in short periods of time. Further, systems that can be 
more easily integrated into existing passenger and baggage processing 
systems would presumably be more acceptable to potential users.
    (U) Trade-offs are often made among these and other operational 
considerations during the course of system design. For example, 
reliability, maintainability, and availability can usually be improved, 
but often at the expense of an increase in purchase price. While such 
trade-offs may not affect certification, they will be considered during 
decisionmaking to require deployment of certified EDS.

System Certification

    (U) The FAA will certify EDS equipment based upon the mandatory 
detection criteria and develop a list of certified equipment that would 
be eligible for use by air carriers. Additional action must be taken by 
the FAA to require the deployment of certified EDS to screen checked 
baggage.

[Sensitive Portion of Document Deleted: In the full text of the 
classified Criteria document, this portion contains information on the 
Act's requirement to detect likely-to-be-used explosive materials.]
    (U) The FAA will not require air carriers to use certified EDS 
equipment until such time as the FAA determines that such equipment is 
available in sufficient quantities to satisfy air carrier and airport 
operational concerns, and is practical for use under realistic air 
carrier operating conditions (e.g., cost, size, weight, reliability, 
maintainability, and availability), and cost-effective.
    (U) The FAA will only certify complete systems. It will not certify 
or allow for use, individual component devices. Prior to final 
certification, the FAA will require manufacturers and vendors to 
provide full system documentation. This documentation will include, but 
is not limited to: recommended system installation and calibration 
procedures; minimum

[[Page 46015]]

essential test equipment and devices; routine field testing procedures 
and test objects to be used; routine and emergency operating 
procedures; field preventative maintenance and repair procedures; and, 
training programs.

Certification Testing

    (U) Testing of bulk/main explosive charges detection equipment 
presented to the FAA for EDS certification, will be performed in 
accordance with the FAA's Management Plan for EDS Certification 
Testing, based upon a General Testing Protocol for Bulk Explosives 
Detection Systems, (National Advisory Board, final report 1993).
    (U) Testing of detonator detection equipment presented to the FAA 
for EDS certification, will be performed in accordance with the FAA's 
Management Plan for EDS Certification Testing of Detonator Detection 
Equipment, based upon FAA's General Testing Protocol for Detonator 
Detection Systems.
    (U) The FAA Technical Center in Atlantic City, New Jersey will 
perform certification tests for producers of candidate explosives 
detection systems. The EDS Certification Test Director in the Office of 
Aviation Security Research and Development is the point of contact.
    (U) As required by both the FAA Management Plan for EDS 
Certification Testing, and the FAA Management Plan for EDS 
Certification Testing of Detonator Detection Equipment, manufacturers 
seeking FAA certification for their candidate EDS must submit complete 
descriptive data and their test results to the FAA prior to receiving 
permission to ship their equipment to the FAA Technical Center. The FAA 
reserves the right to visit manufacturers' facilities for technical 
quality assurance purposes, require and/or monitor in-house tests, and 
review associated data prior to granting permission to ship equipment 
for certification testing.
    (U) There may be extenuating circumstances that make it impractical 
for the equipment to be accommodated at the FAA Technical Center. 
Therefore, the FAA will consider requests for an exception that would 
permit equipment to be tested at a facility other than the FAA 
Technical Center. The written request must explain in detail why an 
exception is in the best interest of the U.S. Government and indicate 
the methods and procedures that will be used to conduct a test 
equivalent to those conducted at the FAA's facility.
    (U) The FAA may recognize, on a reciprocal basis, EDS testing and 
certification conducted by a foreign government's aviation security 
organization. Such recognition by the FAA will be considered only if 
certain conditions are met. These conditions include, but are not 
limited to, the negotiation of an appropriate security technical 
exchange agreement which assures compliance with the FAA Criteria for 
Certification of Explosives Detection Systems using strict quality 
control procedures that are consistent with FAA testing procedures. The 
agreement must also provide for full reciprocity for certifications 
issued by both the foreign government aviation security organization 
and the FAA.
    (U) All direct costs associated with testing and certification 
(e.g., insurance, shipping, installation, set-up technical operation, 
maintenance, calibration, disassembly, and FAA laboratory testing 
costs) must be borne by the manufacturers or vendors. Both the FAA 
Management Plan for EDS Certification Testing, and the FAA Management 
Plan for EDS Certification Testing of Detonator Detection Equipment 
contain specific information on the incremental costs associated with 
tests performed at the FAA Technical Center facilities, or other 
locations.

[Sensitive Portion of Document Deleted: In the full text of the 
classified Criteria, this portion contains information pertaining to 
test objects used in EDS certification testing.]

Component Testing

    (U) As part of the FAA Security R&D program, the FAA Technical 
Center evaluates explosives detection devices (EDD), that do not meet 
all of the EDS performance standards. An EDD is an automated, 
uncertified EDS that is capable of meeting the partial detection 
requirements for bulk/main explosive charges, or detonators in the 
criteria. for instance, some of the devices that the FAA has evaluated 
have relatively low throughput rates and higher false alarm rates than 
the maximum acceptable rate. It will be possible under certain 
circumstances, for example, for a manufacturer of an automated EDD to 
have the FAA test and evaluate the device, even though it is not 
expected to fully meet the EDS certification criteria (e.g., false 
alarm rate or throughput).
    (U) Although only complete systems can be certified, the FAA may 
attest to the performance, of, but not certify or approve for use, EDDs 
or individual components. Attesting to the performance of EDDs is 
intended to assist manufacturers and vendors who are seeking partners 
with whom they can create a functioning EDS composed of multiple 
devices.
    (U) Testing of EDDs will only be conducted: (1) On a first-come, 
first-served basis; (2) if adequate resources and facilities are 
available at the FAA Technical Center to permit such testing (The FAA 
will also consider requests to test the equipment at a facility other 
than the FAA Technical Center; these requests will be given the lowest 
priority and will be performed only if it does not delay other testing 
being performed by the FAA Technical Center.); (3) at a lower 
precedence than EDS certification testing; and (4) if the FAA 
determines from the manufacturer's test data that there is a 
substantial likelihood that the device will meet the partial detection 
criteria.

    Issued in Washington, D.C. on August 22, 1996.
Cathal L. Flynn,
Associate Administrator for Civil Aviation Security.
[FR Doc. 96-22251 Filed 2-29-96; 8:45 am]
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