[Federal Register Volume 63, Number 51 (Tuesday, March 17, 1998)]
[Notices]
[Pages 13095-13096]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-6707]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration
[Policy Statement No. ANM-98-2]


Passenger Capacity Increases and Compliance With Type 
Certification Requirements for Transport Airplane Emergency Evacuation

AGENCY: Federal Aviation Administration, DOT.

ACTION: Notice of policy statement and request for comments.

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SUMMARY: This notice announces the FAA's policy with respect to 
passenger capacity increases and compliance with the type certification 
requirements for transport airplane emergency evacuation. This notice 
advises the public of FAA policy and gives all interested persons an 
opportunity to present their views on the policy statement.

DATES: Comments must be received on or before April 16, 1998.

ADDRESSES: Send all comments on this policy statement to the individual 
identified under FOR FURTHER INFORMATION CONTACT.

FOR FURTHER INFORMATION CONTACT:
Jeff Gardlin, FAA Propulsion/Mechanical/Cabin Safety Branch, ANM-112, 
Transport Airplane Directorate, 1601 Lind Avenue SW., Renton, WA 98055-
4056; telephone (425) 227-2136.

SUPPLEMENTARY INFORMATION:

Comments Invited

    Interested persons are invited to comment on this policy statement 
by submitting such written data, views, or arguments as they may 
desire. Commenters should identify the Policy Statement Number of this 
notice and submit comments, in duplicate, to the address specified 
above. All communications received on or before the closing date for 
comments will be considered by the Transport Standards Staff.

Discussion

    The requirement for full-scale evacuation demonstrations was 
introduced into the Federal Aviation Regulations (FAR) in 1965 by a 
change to the operating rules. The rule change followed both a Notice 
of Proposed Rulemaking and a public hearing. The primary basis for this 
change was the identification of deficiencies in ``equipment, 
procedures, and training'' discovered during evacuation testing.
    The rule applied to all passenger carrying airplanes with more than 
44 passengers, and any subsequent increase in passenger capacity of 
those airplanes of more than five percent. In addition, a new 
demonstration was required for a ``major change'' in the cabin interior 
that would affect passenger evacuation. The time limit for the 
evacuation demonstration was two minutes, using one half of the 
available exits.
    In 1967, the requirement for a full-scale evacuation demonstration 
was added to the type certification requirements of 14 CFR part 25. 
This demonstration, conducted by the airframe manufacturer, was done to 
help ensure comparable evacuation capability of each new model, and 
with the knowledge that much larger transport (widebody) airplanes were 
under development. At that time, the existing design requirements were 
not considered adequate to minimize variation in evacuation capability. 
The introduction of the full-scale evacuation demonstration requirement 
in part 25 was coupled with a change to the operating rules so that 
both demonstrations were required to be completed within 90 seconds. 
The proposal leading to this rule is clear that the reduction in the 
total time was implemented to take advantage of advances in emergency 
equipment, specifically escape slides. The manufacturer's demonstration 
did not have to be repeated for changes in interior arrangement, or 
increases in passenger capacity of five percent or less, provided that 
these changes could be substantiated analytically.
    In 1978, after numerous evacuation demonstrations had been 
conducted, the type design requirements were amended again. This 
amendment allowed the use of analysis and tests to substantiate the 
evacuation performance of an airplane, and removed the previous 
explicit five percent limit on passenger increase. The primary 
prerequisite for this methodology was that there be sufficient test 
data to support an analysis.
    In July 1986, the FAA Administrator established policy limiting the 
use of analysis to passenger capacity increases of five percent or 
less, due to the absence of any agreed industry standard on when an 
analysis was appropriate. This policy was applied while analytical 
methodologies were refined, such that the FAA could have confidence in 
approval of larger passenger capacity increases by a combination of 
analysis and test. The development of improved methodologies was 
undertaken.
    In 1989, the FAA issued Advisory Circular (AC) 25.803-1, Emergency 
Evacuation Demonstrations, to provide specific demonstration test 
criteria, and discuss the use of analysis. The AC stated that a full-
scale demonstration should be conducted for passenger capacity 
increases of greater than 5% because of the continued absence of an 
industry standard on when analysis could be used. However, the AC also 
acknowledged that it described one means, but not the only means, of 
complying with the relevant regulation, and therefore did not foreclose 
applicants from proposing to substantiate compliance by analysis, even 
for larger capacity increases. In actual practice, there have been 
approvals for increases in passenger capacity of greater than five 
percent under specific circumstances (i.e., the

[[Page 13096]]

resultant passenger capacity is still well below the theoretical 
maximum).
    The Performance Standards Working Group, under the auspices of the 
Aviation Rulemaking Advisory Committee (ARAC) on emergency evacuation 
issues, was tasked to develop a standardized protocol to determine when 
an analysis is appropriate. One of the primary objectives of this 
effort was to reduce the number and severity of injuries that can occur 
in full-scale evacuation demonstrations. Although ARAC was unable to 
reach a consensus, it has submitted the group's final document to the 
FAA in the form of a draft advisory circular. The document submitted to 
the FAA does not include any limitation on passenger capacity increase 
with respect to analysis. While the FAA's action here is consistent 
with the ARAC document with respect to passenger capacity increases, it 
does not reflect each ARAC participant's views.
    The FAA has now determined that standardized methodologies have 
been developed and there are sufficient data now available, such that a 
limitation on the use of analysis based only on an increase in 
passenger capacity is no longer necessary. This position is supported 
by the aviation industry. In addition, the FAA has also received a 
letter from a noted independent researcher endorsing the use of 
analysis in the general case, and not tied to an arbitrary limit on the 
increase in passenger capacity. Analytical techniques are used to 
substantiate various certification requirements, including those with 
safety of flight ramifications, and in all cases the key element in 
their use is the underlying data to support the analysis. The FAA has 
determined that evacuation demonstrations should be treated no 
differently and, where sufficient data are available, analysis is an 
option. Since the existing advisory circular has been interpreted by 
the public as effectively prohibiting the use of a combination of 
analysis and test in cases where the passenger capacity is increased by 
greater than five percent, the FAA is issuing a formal notice that 
analysis in such cases may be acceptable. Full-scale demonstrations 
will still be required when sufficient data are not available to 
support a combination of analysis and test.
    While the FAA is seeking public comment on this policy, it is the 
FAA intention to immediately apply this policy to two specific 
certification programs in progress during the period of public comment 
and disposition of comments. It is the FAA position that for the Boeing 
777-300 and the Airbus A330/340, there are currently sufficient full-
scale evacuation data available to support analysis. The Boeing 777-300 
involves a fuselage stretch and the addition of a pair of exits with an 
increase in demonstrated passenger capacity from 440 to 550. The Airbus 
A330/340 involve a fuselage stretch and increasing the size of a pair 
of exits with an increase in demonstrated passenger capacity from 361 
to 440. In both these cases, a wealth of full-scale evacuation data are 
available to support analysis and the FAA is confident that the use of 
analysis is well within the intent of the regulation. Therefore, in 
accordance with the regulation, conduct of additional full-scale 
evacuation demonstrations is not required to demonstrate compliance, if 
a satisfactory analysis is produced. The FAA intends to publish a 
revised proposed advisory circular that reflects this policy. 
Resolution of the public comment will be considered in determining 
whether the policy should be refined for future projects, and so 
reflected in the advisory circular.

    Issued in Renton, WA, on March 6, 1998.
Ronald T. Wojnar,
Manager, Transport Airplane Directorate, Aircraft Certification 
Service.
[FR Doc. 98-6707 Filed 3-16-98; 8:45 am]
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