[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]
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