[Federal Register Volume 64, Number 80 (Tuesday, April 27, 1999)]
[Notices]
[Pages 22667-22669]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-10556]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration
[Docket No. 29547]


207-Minute Extended Range Operations With Two-Engine Aircraft 
(ETOPS) Operation Approval Criteria

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Request for public comment.

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SUMMARY: This notice announces the request by the Air Transport 
Association for the FAA to issue a policy for 207-minute ETOPS 
operation approval criteria. The material was presented to the FAA by 
mail dated March 22, 1999. In addition, this notice opens [29547] and 
that docket serves as a repository for all recorded material regarding 
the aforementioned meeting.

DATES: Comments must be received on or before June 11, 1999.

ADDRESSES: Comments on this notice should be mailed or delivered, in 
duplicate, to: Federal Aviation Administration, Office of Chief 
Counsel, Rules Docket Office, [29547], 800 Independence Avenue, SW., 
Room 915-G, Washington, DC 20591. Comments may also be submitted 
electronically to the following Internet address: [email protected]. 
Comments must be marked [20547]. Comments may be filed and/or examined 
in Room 915-G weekdays between 10:00 a.m. and 5:00 p.m., except on 
Federal holidays.

FOR FURTHER INFORMATION CONTACT: Eric van Opstal, Air Transportation 
Division (AFS-200), Federal Aviation Administration, 800 Independence 
Avenue, SW., Washington, DC 20591, Telephone (202) 267-8166.

SUPPLEMENTARY INFORMATION: 

Comments Invited

    Interested parties are invited to comment on the Air Transport 
Association's request by submitting such written data, views, or 
arguments to the address listed above. The FAA will consider all 
communications before taking action.
    Following is the full text of the Air Transportation Association 
letter. The FAA is publishing this request without endorsement. The 
purpose of this notice is to request comments on the Air Transport 
Association request for 207-Minute ETOPS Operation Approval Criteria.

Air Transport Association

February 26, 1999.
Mr. Thomas E. McSweeny,
Associate Administrator for Regulation and Certification, Federal 
Aviation Administration, 800 Independence Avenue, SW AVR-1, 
Washington, DC 20591

    Dear Mr. McSweeney: In conjunction with the planning and 
implementation of Extended Range Operations with Two-Engine Aircraft 
(ETOPS) in the North Pacific area of operations, the Air Transport 
Association (ATA) member airlines determined that a need exists for 
expanded ETOPS authority beyond 180 minutes. The ETOPS Subcommittee 
established a process where associated airlines, the Pilots 
associations, Boeing, Federal Aviation Administration 
representatives and other parties worked together to determine the 
criteria to support the establishment of a proposed 15 percent 
operational extension of 180 minute ETOPS. The result of the effort 
is the attached draft proposal, including the associated application 
and approval criteria, for an ETOPS policy letter providing for 207 
minutes ETOPS authority.
    As reflected in the proposed policy letter, it was determined 
that there would be additional requirements associated with the new 
authority. Most of these requirements are self evident. However, to 
assist in your analysis and review of this proposal, we have 
included an Executive Summary of the Boeing Reliability Study which 
was conducted in support of this effort.
    There are many issues associated with 207 minute ETOPS, 
especially in the North Pacific area of operations. One example is 
the availability and support functions of Alternate and Emergency 
airports. ATA ETOPS operators have conducted airport visits and 
inspections of selected airports in Alaska and Russia, and are 
establishing plans to expand these and foreign governments to ensure 
airport availability to support all international air Transport 
operations.
    In conclusion, we request your consideration and approval of the 
attached policy letter establishing 207 minute ETOPS authority. 
Since there are airlines conducting ETOPS in the North Pacific now 
and three more airlines plan to start operations in that area this 
year, we respectfully request accelerated processing of this 
proposal.

        Sincerely,
Captain Paul McCarthy,
Executive Air Safety Chairman, Air Line Pilots Association.
Captain William Borrelli,
President, Independent Association of Continental Pilots.
Robert H. Frenzel,
Senior Vice President, Aviation Safety and Operations, Airlines 
Transport Association.

Draft Proposal February 4, 1999

    Informatiopn: 207-minute ETOPS Operation Approval Criteria. ETOPS 
Policy Letter EPL.

Discussion

    It has been determined by the FAA that a need exists for an 
additional ETOPS authority beyond 180 minutes. The ETOPS concept has 
been successfully applied since 1985 and is now widely employed. The 
number of ETOPS operators has increased dramatically, and, in the North 
Atlantic, U.S. operators have more twin operations than the number of 
operations accomplished by three- and four-engine airplanes. ETOPS is 
now well established.
    It is apparent that the excellent propulsion related safety record 
and the success of two-engine airplane operations has not been 
maintained, but potentially enhanced, by the process-related provisions 
associated with ETOPS.
    The data shows ETOPS requirements and processes are generally 
applicable to all long-range operations including those by three- and 
four-engine airplanes. Ensuring availability of en route alternate 
airports, adequate fire fighting coverage at these airports, fuel 
planning to account for depressurization are sound operational 
practices for all airplanes including three- and four-engine airplanes.
    It is the position of the FAA that a need exist to normalize the 
requirements for enroute alternates across all long-range operations. 
Because such operations operate over increasingly remote and demanding 
areas of operation, it is also necessary to develop a long term 
solution to the requirements of adequate levels of Rescue and Fire 
Fighting Services (RFFS) for non-destination airports. Until such 
consistent requirements addressing all ``Long Range Operations'' are 
established, the FAA will continue to use AC120-42A, Extended Range

[[Page 22668]]

Operation with Two-Engine Airplanes, and associated policy letters to 
allow two-engine operations on extended-range operations (ETOPS). The 
FAA has taken the following into consideration during the development 
of this Policy Letter:
    a. 180-minute ETOPS is adequate to permit two-engine operation on 
almost all the heavily traveled routes in the world. Due to a number of 
factors (including occasional political concerns, airport suitability 
considerations due to higher weather minima at dispatch, various 
weather related events and operational necessities), a need exists for 
an additional ETOPS authority beyond 180 minutes on a flight-by-flight 
exception basis.
    b. A precedence for operational extension of maximum diversion time 
by up to 15 percent exists. ETOPS Policy Letter EPL 95-1 dated December 
19, 1994, reinstated the increase of up to 15 percent in maximum 
diversion time (maximum diversion time being 120-minutes) from suitable 
airports which was initially provided in the original guidance for 
extended-range operations with two-engine airplanes in Advisory 
Circular AC 120-42 dated June 6, 1985.
    c. This policy letter provides a 15% extension on 180 minutes 
(similar to what was provided for 120 minutes). It is intended that 
this extension will be applied on a flight-by-flight exception basis. 
Such extensions can only be applied to a route where adequate enroute 
alternate airports exist and are available and that, if defined as 
``suitable'' for dispatch as per paragraph 10(d)(5) of AC 120-42A, the 
route could be flown at 180-minute ETOPS authority. A 15 percent 
increase to 180 mathematically equates to 207, and will therefore be 
addressed as the 207-minute ETOPS authority.
    d. Allowing 207-minute ETOPS extension is not intended to encourage 
or support further closure of en route alternate airports.
    The FAA has found it appropriate to release a policy letter 
allowing 
207-minute ETOPS authority. This policy will be incorporated in 
Advisory Circular 120-42A at the next revision cycle. The FAA is 
committed to harmonize Title 14 Code of Federal Regulations (14 CFR) 
and aviation policy with the Joint Aviation Authorities (JAA) wherever 
it is feasible, and harmonization in this specific area is desirable.

Approval Basis

    Although the 207-minute ETOPS authority is an extension of 180-
minute ETOPS, certain criteria will apply when the increase in 
diversion authority is being exercised.
    The operator shall comply with all the operational approval 
requirements for 180-minute ETOPS. Following are additional 
requirements for 207 minutes:
    1. Operators shall use satellite communications (SATCOM) voice and/
or SATCOM datalink as a minimum in order to meet 14 CFR requirements 
for rapid and reliable communications.
    2. Operators shall, prior to the extended range entry point, use 
datalink to update any revised flight plan (company communications) if 
required as a result of reevaluation of aircraft system capabilities 
and enroute alternates. Dispatch will review enroute alternates and 
advise the flight crew of all suitable alternates within 207 minutes of 
the planned routing.
    3. The operator shall have single-engine automated capability on 
the airplane and such systems must be operable for dispatch.
    4. MEL restrictions for 180-minute operations shall be applicable. 
In addition, the following shall not be inoperative prior to dispatch 
for 207 minutes ETOPS:
     Fuel quantity indicating system (FQIS).
     Auxiliary power unit (including electrical and pneumatic 
supply to its designed capability).
     Autothrottle system.
     SATCOM voice and/or SATCOM datalink.
    5. Operators shall ensure that adequate levels of RFFS for enroute 
ETOPS alternates are available. For the case of 207-minute ETOPS, the 
aircraft must remain at all times within 207 minutes of at least one 
adequate airport (as defined in AC 120-42A, Appendix 3) which has an 
RFFS of International Civil Aviation Organization (ICAO) Category 7 or 
higher. If such equipment is not available on the airport, an 
equivalent level of support must be reasonably accessible given 
notification of the divert.
    6. Operators shall inform the flightcrew anytime an aircraft is 
dispatched under this authority and shall make available the dispatch 
considerations requiring such operations.
    7. Operators who are granted 207-minute ETOPS authority shall 
submit to the FAA, on a regular monthly basis, a record of all ETOPS 
operations in that area. For each segment where the 207-minute 
authority was exercised, the dispatch justifications must be 
delineated. Industry data for all such operations will be reviewed on a 
regular basis by an industry group to be determined by the FAA.
    The airframe-engine must have 180 minutes type design approval. All 
requirements specified in the Configuration Maintenance and Procedures 
(CMP) for 180-minute ETOPS will remain applicable. The airframe-engine 
combination shall be reviewed to determine if there are any factors 
which would affect safe conduct of 207-minute operations on a flight-
by-flight exception basis as defined in (c) of the ``Discussion'' 
section of this policy letter. Such a review shall ensure:
    1. Numerical Probability Analysis (NPA) provided to support 180 
minutes will be reanalyzed to support a 207-minute diversion.
    2. The engine installations have adequate oil supply margins to 
support 207-minute plus an additional allowance of 15 minutes (for 
holding, an approach and landing) for a total of 2202 minutes ETOPS 
diversions per FAR 25.1011(b).
    3. Time-related cargo fire limitations shall not be less than the 
approved 207 minutes plus an additional allowance of 15 minutes (for 
holding, an approach, and landing) for a total of 222 minutes.
    4. If the airframe-engine combination has other time limited 
systems, the time limit for those systems shall not be less than 207 
minutes plus an additional allowance of 15 minutes (for holding, an 
approach and landing) for a total of 222 minutes.
    5. The risk of uncontained engine failures and subsequent fuel tank 
damage shall be reviewed to demonstrate continued compliance with FAR 
25.903(d)(1).
    6. Engine inflight shutdown (IFSD) target level shall be at .019/
1000 engine hours (based on Appendix 1 to AC 120-42A).
    7. Electrical power to at least one fuel crossfeed valve shall be 
available as long as the main battery or a backup power source is 
available.
    8. At least one fuel boost pump in each main fuel tank must be able 
to be powered by a backup electrical power source other than the 
primary engine driven or APU driven generator.
    9. Any one of the engine or APU driven generator sources present 
shall be capable of powering main AC and main DC buses.
    Amendments to the master minimum equipment list (MMEL) shall be 
made if the reliability analysis or if service experience indicates 
that the existing MMEL is no longer appropriate for 207-minute ETOPS.

[[Page 22669]]

Application

    Operators currently approved for 180 minutes ETOPS authority will 
be considered for 207-minute authority upon application. When approved, 
207-minute ETOPS authority will be considered an extension of 180-
minute ETOPS (and the area of operation associated with that authority) 
and will be exercised by the operator on a flight-by-flight exception 
basis as defined in (c) of the ``Discussion'' section of this policy 
letter.
    Operators with existing 180-minute ETOPS authority may apply for 
207-minute ETOPS authority by letter application to the Air 
Transportation Division, AFS-200, through the certificate holding 
district office (CHDO). The ETOPS authority will be granted by the 
Director, Flight Standards Service, AFS-1, and will be reflected in the 
operator's Operations specifications. The application shall include the 
following information as minimum:
    1. Current ETOPS authority (i.e., 180 minutes).
    2. Specify the airframe-engine combinations presently authorized 
for ETOPS, and the airframe-engine combinations for which 207-minute 
ETOPS approval is being sought.
    3. The area of operation requested for 207-minute ETOPS authority.
    4. Provide a summary of revisions made to operational documents.
    5. Provide a summary of the revision to training curriculum for 
maintenance, dispatch, and flight crew personnel to distinguish 207-
minute ETOPS authority from 180-minute ETOPS criteria.
    A copy of this policy is to be disseminated to all ETOPS operators.

Executive Summary: B777 Reliability Study

    During the past several years, Boeing, the aviation industry and 
government agencies have been working together to develop safer and 
more efficient methods of air transportation for the traveling public. 
One area of such particular focus has been extended range operations 
with twin engine airplanes (ETOPS).
    Currently, most Boeing twins have been type design approved for 
ETOPS up to 180 minutes. Until recently, this accommodated highly 
effective twin-engine, on those routes on which these airplanes were 
typically operated. Recently, however, the 180 minute limit has been 
shown to present certain obstacles to reliable operations in the North 
Pacific.
    At times, some North Pacific alternates may be unavailable in the 
planning phase or during flight as a result of weather, volcanic 
eruptions or other temporary closures. While it is unlikely that all 
alternates would be unavailable during the actual flight, Advisory 
Circular 120-42A applies a conservative alternate airport weather 
minima factor during ETOPS flight planning. This factor may at times 
cause an alternate airport to be considered unavailable in the planning 
phase, thereby requiring an ETOPS flight to be canceled, have a 
possible extended departure delay, or forcing it to follow a less 
direct route to stay within 180 minutes of other suitable alternate 
airports. However, this conservative weather factor no longer applies 
once the flight dispatches. Thereafter, any decision to divert would be 
based on the actual suitability of the available alternate airports. 
Consequently, this well-intended weather factor may at times cause an 
airplane to be further away from the nearest suitable alternate airport 
if and when a diversion becomes necessary.
    Boeing, pertinent airlines and pilot associations have been 
studying the impact of a 15% operational extension, on an exception 
basis, to 180 minute ETOPS. This operational extension would only be 
exercised when typically used alternate airports are temporarily 
unavailable for reasons such as weather--it is not intended to permit 
use of routes that cannot normally be operated with a 180 minute 
approval. The above parties find that such an extension to 207 minutes 
in the North Pacific will at times permit airlines to use routes that 
are most efficient and will likely, in the event a diversion is 
necessary, result in the airplane actually being closer to a suitable 
alternate airport, most, if not all of the time.
    Boeing twin engine jetliners have logged close to 1.4 million ETOPS 
flights. During this vast experience, there has never been a diversion 
of 180 minutes' duration. In nearly half a century of commercial jet 
transportation, moreover, no airplane of any type, regardless of the 
number of engines, has ever performed an emergency diversion of 180 
minutes or more to an alternate airport. Therefore, allowing a 15% 
extension to 207-minute ETOPS is unlikely to result in an actual 
diversion in excess of 180 minutes. However, it will allow more-direct 
routings, as well as greater choice and flexibility for flight crews, 
should a diversion be necessary.
    As 207-minute ETOPS will in some cases permit shorter flights, it 
is not anticipated to result in diversions in excess of 180 minutes and 
may actually result in decreased diversion times. Such may actually 
yield a net decrease in risk. As a result, formal review of B-777 
certification-related data is probably unnecessary for approval of 207-
minute ETOPS. However, to assure that no compromise to safety occurs or 
might be perceived, an analysis of the B-777 type design was 
nevertheless performed to assess the suitability of the B-777 airplane 
to a 207-minute diversion.
    Using design and reliability data from the B-777 airplane, a 
reliability analysis was performed on those systems considered 
important for ETOPS (electrical power generation system, hydraulic, 
bleed air, anti-ice, equipment cooling, fuel and propulsion). The 
exercise identified the necessary ``top events'' that needed to be 
analyzed to show compliance with the requirements posed by the 15% 
increase. Where numerical probability analysis (NPA) was used, it 
ensured that NPA ground rules were applied to the original analysis. 
Where an existing ETOPS NPA was performed considering a 180 minute 
diversion, an analysis for a 207 minute diversion was completed to show 
compliance for the 15% increase. However, if the existing ETOPS NPA was 
performed for the full 14 hours, not taking credit for the 180 minute 
diversion, no additional analysis was deemed necessary because that 
analysis showed ETOPS capability beyond 207 minutes. In all cases, the 
most conservative criteria with the greatest impacts were applied to 
this analysis.
    In each case, the analysis showed that the probability of a 
catastrophic event was extremely improbable, even under the most 
extreme circumstances. In fact, this analysis confirmed B-777 airplane 
design and reliability capability well in excess of the proposed 15% 
extension.
    Furthermore, the undersigned parties are prepared to offer a 
modification to the cargo fire protection system that accommodates the 
15% extension in ETOPS diversion time, even though risk analysis 
methodology does not demonstrate a need for such a modification.
    The Boeing Company has reviewed the results of this analysis with 
Mr. Steve Clarke, the FAA's focal for ETOPS type design approval, as 
well as individuals from the Aircraft Evaluation Group (AEG). Boeing is 
prepared to conduct additional such reviews for the FAA upon request.
Thomas E. McSweeny,
Associate Administrator for Regulation and Certification.
[FR Doc. 99-10556 Filed 4-26-99; 8:45 am]
BILLING CODE 4910-13-M