[Federal Register Volume 67, Number 106 (Monday, June 3, 2002)]
[Notices]
[Pages 38305-38308]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-13820]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration


Draft Advisory Circular 93-1, Reservations for Unscheduled 
Flights at High Density Traffic Airports

AGENCY: Federal Aviation Administration, DOT.

ACTION: Notice of draft advisory circular and request for comments.

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SUMMARY: This notice requests comments on Advisory Circular 
``Reservations for Unscheduled Flights at High Density Traffic 
Airports.'' This advisory circular would harmonize and clarify 
procedures currently in the Aeronautical Information Manual and the 
Aeronautical Information Publication, update methods of obtaining 
reservations to include a new web-based application, discontinue use of 
telephone modem access, provide for an increase in the number of hours 
in advance of operation that reservations may be made, and reflect 
recent statutory changes affecting operations at Chicago O'Hare 
International Airport.

DATES: Comments must be received on or before June 24, 2002.

ADDRESSES: Comments should be mailed or delivered in duplicate to: U.S. 
Department of Transportation Dockets, Docket No. FAA-2002-XXXX, 400 
Seventh Street, SW., Room Plaza 401, Washington, DC 20590. Comments may 
also be sent electronically to the following Internet address: http//
dms.dot.gov. Comments may be filed and/or examined in Room Plaza 401 
between 10 a.m. and 5 p.m. weekdays except Federal holidays.

FOR FURTHER INFORMATION CONTACT: Diane Crean, Manager, Terminal 
Operations/Procedures, ATP-120, 800 Independence Avenue, SW., 
Washington, DC 20591, telephone 202-267-3538, or facsimile 202-267-
5305.

SUPPLEMENTARY INFORMATION:

Comments Invited

    Interested persons are invited to comment by submitting such 
written data, views, or arguments, as they may desire. Communications 
should identify the docket number and be submitted in duplicate to the 
address specified above. Electronic filings should be made to the 
Docket via the Internet. The FAA will consider comments made on or 
before the closing date for comments before taking any action on the 
draft advisory circular.
    The FAA will acknowledge receipt of a comment if the commentor 
includes a self-addressed, stamped postcard with the comment. The 
postcard should be marked ``Comments to Docket No. FAA-2002-xxxx. When 
the FAA receives the comment, the postcard will be dated, time stamped, 
and returned to the commentor.

Discussion

    The FAA limits flights during certain hours at four high density 
traffic airports: John F. Kennedy International Airport (JFK), 
LaGuardia Airport (LGA), Chicago O'Hare International Airport (ORD), 
and Ronald Reagan Washington National Airport (DCA). (Although Newark 
International Airport is also designated as a high density traffic 
airport, the quotas for that airport have been suspended indefinitely.) 
Reservations for air carrier and commuter flights (also called slots) 
are allocated in accordance with Title 14 of the Code of Federal 
Regulations (CFR) Part 93, Subpart S, and are not allocated by the 
procedures described in this draft advisory circular. Reservation 
procedures for the ``other'' of category operations are currently in 
the Aeronautical Information Manual and other air traffic publications. 
The Airport Reservation Office (ARO), a function of the David J. Hurley 
Air Traffic Control System Command Center, allocates these reservations 
for unscheduled operations. Reservations are allocated primarily by the 
Computer Voice Reservation System (CVRS), which is currently available 
using a touch-tone telephone or a computer and telephone modem.
    The FAA notes that certain general aviation and other unscheduled 
flights are currently limited at DCA. If future FAA actions regarding 
flights at DCA would require changes to the procedures described in 
this advisory circular, they will be addressed separately. Users should 
continue to check current NOTAMs for the latest information. Comments 
about the current flight limits at DCA are beyond the scope of this 
advisory circular.
    This advisory circular announces several changes to current 
procedures and adds clarifying language. The major changes are 
discussed below.
    The FAA proposes to change the lead-time during which a reservation 
for an unscheduled operation may be obtained from 48 hours with 
exceptions to 72 hours with no exceptions. Current procedures allow an 
operator to make a reservation no more than 48 hours in advance of the 
operation, with two exceptions. [The first exception is for weekends, 
which provides that reservations may be made on Thursday for Monday and 
on Friday for Tuesday. The second exception provides that an additional 
reservation beyond the 48-hour period may be made if the second 
reservation is for the same calendar day and is made during the same 
telephone call. The second exception was adopted to allow an operator 
to obtain roundtrip reservation availability beginning 48 hours in 
advance of the operation and to provide an opportunity to revise 
operational plans should the requested slot times not be available.] 
The FAA proposes the adoption of a straight 72-hour window to obtain a 
reservation and the elimination of the 48-hour window with the related 
exceptions. This new procedure permits an operator to make an arrival 
or departure reservation at a high density traffic airport (HDTA) 
beginning 72 hours in advance of the proposed hour of operation. The 
FAA believes that a 72-hour limit generally provides more advance time 
for obtaining reservations and planning operations accordingly. In 
addition, it will address an abuse of current procedures by some 
operators who obtain multiple reservations beginning at the earliest 
possible time for the express purpose of exceeding the 48-hour limits 
during one telephone call. One example of abuse is when an operator 
obtains a reservation for a 6 a.m. arrival 48 hours in advance and, in 
the same telephone transaction, makes a reservation for a 5 p.m. 
departure. The operator then makes additional reservations by second 
telephone call for a 6 a.m. departure and a 4 p.m. arrival. The 
operator ultimately conducts only flights arriving at 4 p.m. and 
departing at 5 p.m. using reservations that were both made more than 48 
hours in advance. This results in inequitable opportunities for the 
operators who comply with the intent of

[[Page 38306]]

the procedures. The FAA also has received numerous complaints from 
operators about certain peak hour reservations being fully allocated 
before the 48-hour period. This occurs due to the current exceptions to 
the 48-hour rule. The proposed 72-hour window addresses these issues 
and is expected to make the reservation process more open and equitable 
for all users. The FAA will continue to monitor operations and 
reservation allocation practices to determine whether additional 
actions are required to promote equitable access to reservations and 
the HDTA's for all unscheduled operators.
    In Summer 2002, the FAA plans to enhance the current CVRS with a 
web-based interface that will allow users to make HDTA reservations 
using the Internet, and improve the response time of the touch-tone 
telephone interface. This replacement reservation system will be known 
as the Enhanced Computer Voice Reservation System (e-CVRS). At the same 
time e-CVRS is deployed, the current computer modem connection will be 
eliminated. The ability to make on-line reservations using the Internet 
will bring faster and easier reservation capability to many users. The 
computer modem interface will be discontinued primarily due to 
supportability and cost issues. The FAA does not plan to develop a 
replacement for the computer modem interface since it would largely 
duplicate the web interface.
    The FAA is requesting comments on having users provide optional 
information on aircraft type and the next airport service point 
immediately prior to or following the operation at a high density 
airport. Fields for data input would be available using the Internet 
interface and the telephone interface of e-CVRS would be programmed to 
accept similar information. It would not be mandatory to provide this 
data to obtain a reservation. To the extent that it is available, this 
operational information would be combined with other data available to 
air traffic control and used for planning purposes. It may also be used 
to determine whether additional operations could be accommodated based 
on the expected demand.
    Changes will also be made to incorporate recent statutory changes 
at certain high density traffic airports. On April 5, 2000, the Wendell 
H. Ford Aviation Investment and Reform Act for the 21st Century (AIR-
21) was enacted. AIR-21 provides that (1) effective May 1, 2000, 
reservations are not required for flights conducting foreign air 
transportation at ORD; (2) effective July 1, 2001, the high density 
rule (HDR) will apply from 2:45 p.m. through 8:14 p.m. at ORD; (3) 
after July 1, 2002, the HDR will be eliminated at ORD; (4) effective 
January 1, 2007, the HDR will be eliminated at JFK and LGA. Therefore, 
beginning July 2, 2002, reservations will not be required at ORD and it 
will be eliminated from e-CVRS after that date.
    The FAA will consider other comments beyond those specifically 
solicited above. However, changes that would require rulemaking are 
beyond the scope of this proposed advisory circular. In compliance with 
the Paperwork Reduction Act, a request for approval to collect the 
necessary information will be submitted to the Office of Management and 
Budget.

Draft Advisory Circular

1. Purpose

    This circular provides information for obtaining instrument and 
visual flight rule (IFR/VFR) reservations for unscheduled operations at 
the High Density Traffic Airports (HDTA). The High Density Traffic 
Airports Rule (Title 14 of the Code of Federal Regulations (CFR), part 
93, subpart K) classifies user groups as air carrier, commuter, and 
other operators. Reservations for regularly scheduled operations 
conducted by air carrier and commuter operators (also called slots) are 
allocated in accordance with 14 CFR part 93, subpart S--Allocation of 
Commuter and Air Carrier IFR Operations at High Density Traffic 
Airports. Reservations for all other operations are obtained through 
the Airport Reservation Office (ARO) using the procedures described in 
this circular.

2. Definitions

a. Reservation
    An authorization received in compliance with 14 CFR part 93, 
subpart K, to operate to and/or from a designated HDTA. A reservation 
for DCA, JFK, or LGA is allocated on an hourly basis. However, at 
Chicago O'Hare (ORD) a reservation is allocated on a 30-minute basis. 
(Reservations at ORD will not be required after July 1, 2002.) A 
reservation authorizes an operation only within the approved time 
period unless the flight encounters an air traffic control (ATC) 
traffic delay. (Note: In addition to obtaining a reservation as 
described in this advisory circular, it is the separate responsibility 
of the user to comply with all other NOTAMs, security or other 
regulatory requirements to operate at an HDTA.)
b. Airport Reservation Office (ARO)
    An operational unit of the FAA Air Traffic Control System Command 
Center that is responsible for administration of slot reservations for 
the ``other'' category of operations (nonscheduled flights) at HDTA's.
c. Unscheduled Operation
    An operation other than one regulatory conducted by an air carrier 
or commuter between an HDTA and another service point. Certain types of 
air carrier and commuter operations are also considered for these 
purposes as unscheduled. These include irregular charter, hired 
aircraft service, ferry flights, and other nonpassenger flights.
d. Additional Reservation
    An approved IFR and VFR reservation above the hourly IFR quota at 
an HDTA. Additional reservations are available for unscheduled 
operations only and are allocated in accordance with the procedures 
described in this circular.
e. Enhanced Computer Voice Reservation System (e-CVRS)
    FAA operates the e-CVRS to make arrival and/or departure 
reservations at airports designated by 14 part 93 subpart K as HDTA. 
There is a touch-tone telephone interface and an Internet web interface 
for making reservations.

3. Discussion

    a. The FAA designated John F. Kennedy International (JFK) LaGuardia 
(LGA), Chicaco O'Hare International (ORD), Ronald Reagan Washington 
National Airport (DCA), and Newark Intternational (EWR) Airports as 
high density traffic airports and has prescribed air traffic rules and 
requirements for operating aircraft to and from these airports (14 CFR 
Part 93, Subpart K). (The HDR at EWR has been suspended indefinitely.) 
Reservations for JFK are required from 3 p.m. through 7:59 p.m. local 
time. Reservations at ORD are required from 2:45 p.m. through 8:14 p.m. 
local time. Reservations for LGA and DCA are required from 6 a.m. 
through 11:59 p.m. local time. Helicopter operations are excluded from 
the requirement for a reservation. Reservations at ORD are not required 
for any aircraft providing foreign air transportation. Air-21 provides 
for slot restrictions to be removed at ORD after July 1, 2002, and at 
JFK and LGA on January 1, 2007.
    b. The FAA has established an ARO to receive and process all IFR 
reservation requests for unscheduled operations at the HDTA's. This 
office monitors operation of the HDR and allocates reservations for the 
``other''

[[Page 38307]]

category on a ``first-come-first-served'' basis determined by the time 
the request is received at the reservation office. Standby lists are 
not maintained. The ARO uses e-CVRS to make all reservations. Users may 
access the computer system using a touch-tone telephone or via the 
Internet. Requests for IFR reservations will be accepted beginning 72 
hours prior to the proposed time of operation at the affected airport. 
For example, a request for an 11 a.m. reservation on a Thursday will be 
accepted beginning at 11 a.m. on the previous Monday.
    c. A maximum of two transactions per telephone call/Internet 
session will be accepted.
    d. The ARO will not provide scheduling according to planned 
departure/arrival time. Assignments will be made on an hourly or 30-
minute basis, e.g., an approved reservation for 2000 UTC covers an 
operation any time from 2000 through 2059 at DCA, JFK, and LGA, and an 
approved reservation for 2145 at ORD covers an operation from 2145 
through 2214.
    e. A reservation does not ensure against traffic delays nor does it 
guarantee arrival and/or departure within such allotted hours. A 
reservation also is not an ATC clearance.
    f. Users are advised to check current NOTAMs in effect for HDTA's. 
A reservation from e-CVRS does not constitute permission to operate at 
an HDTA if additional operational limits or procedures are required by 
NOTAM and/or regulation.
    g. The filing of a request for an IFR reservation does not 
constitute the filing of an IFR flight plan as required by regulation. 
The IFR flight plan should be filed only after the reservation is 
obtained and should be filed through normal channels. The ARO does not 
accept or process flight plans.

4. IFR Reservations

    a. For an IFR operation, an IFR reservation is required prior to 
takeoff for any operation to or from an HDTA. Users may obtain IFR 
reservations by (1) calling the ARO's interactive computer system via 
touch-tone telephone, or via the Internet; or (2) calling the ARO 
directly. The telephone number for the e-CVRS computer is 1-800-875-
9694. Users would then select option number 1 from the menu to make a 
reservation using e-CVRS. This toll free number is valid for calls 
originating within the United States, Canada, and the Caribbean. Users 
outside those areas may access e-CVRS by calling the toll number of 
(703) 707-0568. The Internet Web address for accessing e-CVRS is http://www.fly.faa.gov/ecvrs.
    User may contact the ARO at 703-904-4452 if they have a problem 
making a reservation using the automated interfaces, if they have a 
question concerning the HDTA regulations or procedures, of if they wish 
to make a telephone reservation from outside the United States, Canada, 
or the Caribbean. (Note: The inability to obtain a reservation because 
all the reservations have been allocated is not considered as having a 
problem making a reservation).
    b. When filing a request for an IFR reservation, the pilot should 
be prepared to provide the following information:
    (1) Name(s) of high density traffic airport(s) for which the pilot 
wishes reservation(s).
    (2) Date(s) and hour(s) (UTC) of proposed operation(s).
    (3) Aircraft call sign, flight identification, or tail number(s). 
Operators should ensure that for each reservation, the ARO has an 
accurate record of the call sign or aircraft identification number that 
will be used for communication with air traffic control. Operators 
using a 3-letter identifier and flight number for ATC communication 
should obtain a reservation using that same information. Operators 
using an aircraft tail number should obtain a reservation using the 
tail number. Note: The FAA monitors compliance with the requirement to 
obtain a reservation at the HDTA's by comparing ATC flight records with 
e-CVRS reservation data. Therefore, in order to ensure comparability of 
data, the operator should ensure that the call sign/tail number data is 
the same for both ATC and e-CVRS.
    (4) Aircraft type identifier. This information is optional and is 
not required to obtain a reservation.
    (5) Origin/Destination Airport immediately prior to or following 
the proposed operation at a high density traffic airport. This 
information is optional and is not required to obtain a reservation. 
The 3-letter identifier for the airport should be used.
    c. Should the requested time not be available, the user will be 
offered the closest time before and after the requested time. If an 
alternate time is accepted, this will be considered an allocated 
reservation.
    d. Users are encouraged to advise the ARO whenever a change is 
needed to a reservation. Changes should be made to e-CVRS reservations 
by using the telephone interface, the Internet web interface, or by 
calling the ARO.
    e. A reservation should be canceled when a user knows that it will 
not be used. Cancellations should be made through e-CVRS as soon as 
practical using the telephone interface, the Internet web interface, or 
by calling the ARO. Early cancellation of reservation will provide 
opportunities for other operators to use the limited number of airport 
reservations.
    f. The following information is needed to change or cancel a 
reservation:
    (1) Aircraft 3-letter identifier and flight number or tail number, 
depending on what information was provided for the original 
reservation.
    (2) Airport for which the reservation was made.
    (3) Date and Time (UTC) of reservation.
    (4) Reservation number.

5. Additional IFR Reservations

    a. If ATC weather and capacity conditions are favorable and 
significant delay is not likely at an HDTA, the ARO may coordinate with 
the appropriate ATC facility to determine if additional IFR 
reservations may be accommodated at the HDTA for a specific time 
period, (See 14 CFR 93.129.) Generally, availability of additional 
reservations will not be determined more than 8 hours in advance. If 
available, additional IFR reservations will be granted on a first-come-
first-serve basis using the procedures described in section 4 of this 
advisory circular. Reservations for IFR operations are not granted by 
the local ATC facility.
    b. An operator who has been unable to obtain a reservation at the 
beginning of the 72-hour window may find he or she is able to obtain a 
reservation on the scheduled day of operation when additional 
reservations may be authorized.
    c. ATC will accommodate declared emergency situations without 
regard to slot reservations.

6. Visual Flight Rules (VFR) Reservations

    a. The operator of an unscheduled VFR operation may take off or 
land an aircraft under VFR at an HDTA if a departure or arrival 
clearance is obtained from the FAA ATC facility serving the HDTA.
    b. Under 14 CFR 93.129, a VFR operation is an additional operation 
beyond the hourly and half-hourly quotas. VFR additional operations may 
be granted by ATC if they can be accommodated without significant delay 
to operations already allocated. In addition, the reported ceiling at 
the HDTA must be at least 1,000 feet and the reported ground visibility 
at least 3 miles.

[[Page 38308]]

    c. Each HDTA lies within Class B airspace. A clearance from ATC to 
enter the airspace or depart the airport under VFR constitutes an 
approval for a VFR additional reservation. No additional reservation 
under this section is required for VFR operations. Operators who have 
obtained a reservation from e-CVRS for a VFR operation are encouraged 
to cancel those reservations at the earliest opportunity so that they 
may be available for IFR operations.
    d. Any time an HDTA is not authorizing VFR operations, a NOTAM to 
that effect will be issued by the controlling ATC facility and a 
recording placed on the Automated Terminal Information Service.

7. Making HDTA Reservations Using e-CVRS

    a. Telephone users. When using a touch-tone telephone to make a 
reservation, you are prompted for input of information about what you 
wish to do. All input is accomplished using the keypad on the 
telephone. One issue with a touch-tone telephone entry is that most 
keys have a letter and number associated with them. When the system 
asks for a date or time, it is expecting an input of numbers. A problem 
arises when entering a tail number, or 3-letter identifier. The system 
does not detect if you are entering a letter (alpha character) or a 
number. Therefore, when entering an aircraft identifier and flight 
number or aircraft registration/tail number two keys are used to 
represent each letter or number. When entering a number, precede the 
number you wish by the number 0 (zero) i.e., 01, 02, 03, 04, * * * If 
you wish to enter a letter, first press the key on which the letter 
appears and then pass 1, 2, or 3, depending upon whether the letter you 
desire is the first, second, or third letter on that key. For example 
to enter the letter ``N'' first press the ``6'' key because ``N'' is on 
that key, then press the ``2'' key because the letter ``N'' is the 
second letter on the ``6'' key. Since there are no keys for the letters 
``Q'' and ``Z,'' e-CVRS pretends they are on the number ``1'' key. 
Therefore, to enter the letter ``Q,'' press 11, and to enter the letter 
``Z,'' press 12.


    Note: Users are reminded to enter the ``N'' character with their 
tail numbers (see Table 1). Operators using a 3-letter identifier 
and flight number to communicate with ATC facilities should enter 
that call sign when making their reservation.


             Table 1.--Codes for Call Sign/Tail Number Input
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               Codes for Call Sign/Tail Number Input Only
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         A-21               J-51              S-73              1-01
         B-22               K-52              T-81              2-02
             C-23           L-53              U-82              3-03
         D-31               M-61              V-83              4-04
         E-32               N-62              W-91              5-05
         F-33               O-63              X-92              6-06
         G-41               P-71              Y-93              7-07
         H-42               Q-11              Z-12              8-08
         I-43               R-72              0-00              9-09
------------------------------------------------------------------------

    b. Additional helpful key entries: (See Table 2).

                      Table 2.--Helpful Key Entries
------------------------------------------------------------------------
 
-------------------------------------------------------------------------
 After entering a call sign/tail number, depressing the ``pound
 key'' () twice will indicate the end of the tail number.
*2 Will take the user back to the start of the process.
*3 Will repeat the call sign/tail number used in a previous reservation.
*5 Will repeat the previous question.
*8 Tutorial Mode: In the tutorial mode each prompt for input includes a
 more detailed description of what is expected as input. *8 is a toggle
 on/off switch. If you are in tutorial mode and enter *8, you will
 return to the normal mode.
*0 Expert Mode: In the expert mode each prompt for input is brief with
 little or no explanation. Expert mode is also on/off toggle.
------------------------------------------------------------------------

    c. Internet Web Based Interface. The e-CVRS reservation system 
includes a Web-based interface. The Internet option is intended to 
provide a fast, user-friendly environment for making slot reservations. 
The Internet address is http://www.fly.faa.gov/ecvrs. The web-based 
interface incorporates the current CVRS telephone features and adds new 
features. In addition to the airport, date, time, and tail number/call 
sign information, you will be asked to enter the aircraft type and the 
arrival/departure airport immediately preceding or following your 
operation at an HDTA. If you are making an arrival reservation at an 
HDTA, you will be asked to provide the 3-letter identifier for your 
departure airport. Conversely, if you are making a departure 
reservation, you will now be asked for your destination airport. This 
information is optional and is not required to obtain a reservation. 
This information may be added or edited using e-CVRS after the 
reservation is initially obtained.
    All users of e-CVRS must complete a one-time registration form 
containing the following information: full name; e-mail address; a 
personal password; password confirmation; and company affiliation 
(optional). Your e-mail and password are required each time you login 
to use e-CVRS. Instructions are provided on each page to guide you 
through the reservation process. If you need help at any time, you can 
access page-specific help by clicking the question mark ``?'' located 
in the upper right corner of the page.

    Issued in Washington, DC, on May 28, 2002.
Michael A. Cirillo,
Program Director for Air Traffic Planning and Procedures.
[FR Doc. 02-13820 Filed 5-31-02; 8:45 am]
BILLING CODE 4910-13-M