[Federal Register Volume 70, Number 162 (Tuesday, August 23, 2005)]
[Proposed Rules]
[Pages 49207-49210]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 05-16751]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. 2001-NM-213-AD]
RIN 2120-AA64


Airworthiness Directives; Boeing Model 747SP, 747SR, 747-100, -
100B, -100B SUD, -200B, -200C, -200F, and -300 Series Airplanes

AGENCY: Federal Aviation Administration (FAA), Department of 
Transportation (DOT).

ACTION: Supplemental notice of proposed rulemaking; reopening of 
comment period.

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SUMMARY: This document revises an earlier proposed airworthiness 
directive (AD), applicable to all Boeing Model 747SP, 747SR, 747-100, -
100B, -100B SUD, -200B, -200C, -200F, and -300 series airplanes, that 
would have required modification of the escape slide/raft pack assembly 
and cable release sliders. This new action revises the proposed rule by 
incorporating new service information, which clarifies the airplanes on 
which certain actions must be done, and by adding a new requirement for 
certain airplanes. The actions specified by this new proposed AD are 
intended to prevent improper deployment of the escape slide/raft or 
blockage of the passenger/crew doors in the event of an emergency 
evacuation, which could result in injury to passengers or crewmembers. 
This action is intended to address the identified unsafe condition.

DATES: Comments must be received by September 19, 2005.

ADDRESSES: Submit comments in triplicate to the Federal Aviation 
Administration (FAA), Transport Airplane Directorate, ANM-114, 
Attention: Rules Docket No. 2001-NM-213-AD, 1601 Lind Avenue, SW., 
Renton, Washington 98055-4056. Comments may be inspected at this 
location between 9 a.m. and 3 p.m., Monday through Friday, except 
Federal holidays. Comments may be submitted via fax to (425) 227-1232. 
Comments may also be sent via the Internet using the following address: 
[email protected]. Comments sent via fax or the Internet must 
contain ``Docket No. 2001-NM-213-AD'' in the subject line and need not 
be submitted in triplicate. Comments sent via the Internet as attached 
electronic files must be formatted in Microsoft Word 97 or 2000 or 
ASCII text.
    The service information referenced in the proposed rule may be 
obtained from Boeing Commercial Airplanes, P.O. Box 3707, Seattle, 
Washington 98124-2207. This information may be examined at the FAA, 
Transport Airplane Directorate, 1601 Lind Avenue, SW., Renton, 
Washington.

FOR FURTHER INFORMATION CONTACT: Keith Ladderud, Aerospace Engineer, 
Cabin Safety and Environmental Systems Branch, ANM-150S, FAA, Seattle 
Aircraft Certification Office, 1601 Lind Avenue, SW., Renton, 
Washington 98055-4056; telephone (425) 917-6435; fax (425) 917-6590.

SUPPLEMENTARY INFORMATION:

Comments Invited

    Interested persons are invited to participate in the making of the 
proposed rule by submitting such written data, views, or arguments as 
they may desire. Communications shall identify the Rules Docket number 
and be submitted in triplicate to the address specified above. All 
communications received on or before the closing date for comments, 
specified above, will be considered before taking action on the 
proposed rule. The proposals contained in this action may be changed in 
light of the comments received.
    Submit comments using the following format:
     Organize comments issue-by-issue. For example, discuss a 
request to change the compliance time and a request to change the 
service bulletin reference as two separate issues.
     For each issue, state what specific change to the proposed 
AD is being requested.
     Include justification (e.g., reasons or data) for each 
request.
    Comments are specifically invited on the overall regulatory, 
economic, environmental, and energy aspects of the proposed rule. All 
comments submitted will be available, both before and after the closing 
date for comments, in the Rules Docket for examination by interested 
persons. A report summarizing each FAA-public contact concerned with 
the substance of this proposal will be filed in the Rules Docket.
    Commenters wishing the FAA to acknowledge receipt of their comments 
submitted in response to this action must submit a self-addressed, 
stamped postcard on which the following statement is made: ``Comments 
to Docket Number 2001-NM-213-AD.'' The postcard will be date stamped 
and returned to the commenter.

Availability of NPRMs

    Any person may obtain a copy of this NPRM by submitting a request 
to the FAA, Transport Airplane Directorate, ANM-114, Attention: Rules 
Docket No. 2001-NM-213-AD, 1601 Lind Avenue, SW., Renton, Washington 
98055-4056.

Discussion

    A proposal to amend part 39 of the Federal Aviation Regulations (14 
CFR part 39) to add an airworthiness directive (AD), applicable to all 
Boeing Model 747SP, 747SR, 747-100, -100B, -100B SUD, -200B, -200C, -
200F, and -300 series airplanes, was published as a notice of proposed 
rulemaking (NPRM) (hereafter referred to as the ``original NPRM'') in 
the Federal Register on September 10, 2003 (68 FR 53309). That NPRM 
would have required modification of the escape slide/raft pack assembly 
and cable release sliders. The original NPRM was prompted by improper 
escape slide/raft deployment and passenger/crew door blockage during 
slide deployment tests. That condition, if not corrected, could result 
in injury to passengers or crewmembers.

Comments

    Due consideration has been given to the comments received in 
response to the original NPRM.

Request To Change Preamble/Add Revised Service Information

    One commenter asks that Boeing Special Attention Service Bulletin 
747-25-3274, Revision 2, dated August 26, 2004, be added to the first 
paragraph of the ``Explanation of Relevant Service Information'' 
section of the original NPRM. Revision 1 of the service bulletin was 
referenced in the original NPRM as the source of service information 
for modifying the slide/raft pack assembly. The commenter also asks 
that the following be added to that paragraph: ``Note: Revision 2 will 
revise work instructions to move two airplane effectivities to a 
different group to reflect conversion from passenger

[[Page 49208]]

configuration to special freighter configuration and will add a note 
that no work needs to be done at Door 3 left-hand and right-hand if 
Boeing Service Bulletin 747-25-2666, Revision 2, dated April 24, 2003, 
has previously been incorporated.''
    The commenter asks that the term ``pulley guard bracket'' be 
changed to ``cable guard bracket'' in that same section and in the 
paragraph following ``modification'' of the original NPRM. The 
commenter provides no reason for these changes.
    The commenter also asks that Boeing Special Attention Service 
Bulletin 747-25-3307, Revision 1, dated February 12, 2004, be added to 
the second paragraph of the ``Explanation of Relevant Service 
Information'' section of the original NPRM. The original issue of the 
service bulletin was referenced in the original NPRM as the source of 
service information for modifying the cable release sliders. The 
commenter also asks that the following be added to that paragraph: 
``Note: Revision 1 will add airplanes to service bulletin 
effectivities, combine Groups 2 and 3, and revise work instructions and 
Figure 2 to provide airlines with an alternate, easier modification.''
    The commenter asks that the phrase ``of the escape slide/raft pack 
assembly'' be changed to ``of the floor-mounted upper deck slide pack 
assembly.'' The commenter provides no reason for these changes.
    We acknowledge and agree with the commenter's remarks on the 
preamble of the original NPRM as these descriptions provide 
clarification; however, the ``Explanation of Relevant Service 
Information'' section is not restated in this supplemental NPRM. We 
have changed the term ``pulley guard bracket'' to ``cable guard 
bracket'' in paragraph (a)(2) of the supplemental NPRM, which is the 
only paragraph where the term is used. We have also changed the phrase 
``of the escape slide/raft pack assembly'' to ``of the floor-mounted 
upper deck slide pack assembly'' in paragraph (b) of the supplemental 
NPRM.
    Since issuance of the original NPRM, Boeing has issued, and we have 
reviewed, Boeing Special Attention Service Bulletin 747-25-3274, 
Revision 2, dated August 26, 2004; and Revision 3, dated December 16, 
2004. Revision 2 contains the changes described previously by the 
commenter. Revision 2 also clarifies the airplanes on which certain 
actions must be done. Revision 3 is essentially the same as Revision 2, 
but the work hours and parts cost for the modification are reduced and 
Revision 3 provides further clarification of certain actions. Revision 
3 specifies that no more work is necessary on airplanes changed as 
shown in Revision 2, except that certain cable assemblies must be 
replaced with new cable assemblies for airplanes on which Boeing 
Service Bulletin 747-25-2666, Revision 2, dated April 24, 2003; and 
Goodrich Service Bulletin 25-092, Revision 3, dated December 8, 1986 
(superseded by Goodrich Service Bulletin 25-238, Revision 1, dated 
January 31, 2003); have been incorporated at Door 3 of the emergency 
exit. Service Bulletin 747-25-2666 describes procedures for 
installation of a one-piece ramp/slide at Door 3 of the emergency exit. 
Service Bulletins 25-092 and 25-238 describe procedures for 
modification of the escape slide raft assembly. We have added the new 
requirement specified in Service Bulletin 25-238 to paragraph (a)(2) of 
the supplemental NPRM.
    In addition, as specified in Revision 3 of Service Bulletin 747-25-
3274, no further action is required if corrective actions were 
performed in accordance with previous revisions, except as specified in 
paragraph 1.D., ``Description'', of the service bulletin. That 
paragraph, in part, specifies that no more work is necessary on 
airplanes changed per Revision 1 of the service bulletin, except 
airplanes RD103 or RD104 that have incorporated Service Bulletin 747-
25-2258 and have stored gas upper deck slides that should be modified 
by the instructions for Group 1 and Group 13 airplanes, as specified in 
Revision 3 of Service Bulletin 747-25-3274. Therefore, we have added 
Revision 3 of the service bulletin for accomplishing the modification 
specified in paragraph (a) of this supplemental NPRM, except as 
specified in paragraph 1.D. of the service bulletin.
    We have also reviewed Boeing Special Attention Service Bulletin 
747-25-3307, Revision 1, dated February 12, 2004; and Revision 2, dated 
July 8, 2004. Revision 1 contains the changes described previously. 
Revision 2 is essentially the same as Revision 1, and specifies that no 
more work is necessary on airplanes changed as shown in Revision 1. We 
have referenced Revision 2 of the service bulletin as the appropriate 
source of service information for accomplishing the modification 
required by paragraph (b) of this supplemental NPRM.

Request To Change Parts Installation Paragraph

    One commenter, the airplane manufacturer, asks that paragraph (c) 
of the original NPRM be changed. The commenter states that, as written, 
paragraph (c) would not allow installation of certain parts on any 
airplane after the effective date of the AD. The commenter adds that it 
finds the requirements in this paragraph excessively restrictive 
because those requirements would not allow slides to be moved from one 
airplane to another, or installation of an overhauled slide during the 
next 36 months if an old part number cable is installed. The commenter 
states that, since the original NPRM affects slide/raft pack assemblies 
rather than airplanes, installing old cables after the effective date 
of the AD should be restricted to include the slide/raft pack 
assemblies only. The commenter suggests that paragraph (c) be changed 
as follows: ``As of the effective date of this AD, no one may install, 
on any slide/raft pack assembly, a pin cable assembly with a part 
number listed.''
    In light of the rationale provided by the commenter, we agree with 
the remark that the proposed requirements of paragraph (c) are too 
restrictive. Operators must comply with the requirements of this AD by 
the compliance time specified in paragraph (a) of the supplemental 
NPRM. If an operator must install an escape slide, it is their 
responsibility to ensure that all affected parts of that slide conform 
to the requirements of this supplemental NPRM by the compliance 
deadline. Accordingly, paragraph (c) of the proposed rule has not been 
included in this supplemental NPRM. (Operators should note, however, 
that once an airplane has been modified according to this AD, the 
airplane cannot be modified in any way that negates accomplishment of 
the actions in this AD--i.e., an escape slide with a modified cable 
assembly cannot be replaced with an escape slide with an unmodified 
cable assembly.)

Request To Remove Requirement for Prior or Concurrent Modification of 
Cable Release Sliders

    The same commenter states that it does not agree that modification/
replacement of the cable release sliders on the floor-mounted upper 
deck escape slide (as specified in paragraph (b) of the original NPRM) 
warrants an AD. Boeing Special Attention Service Bulletin 747-25-3307, 
Revision 2, dated July 8, 2004, is referenced as the appropriate source 
of service information for the concurrent modification required by 
paragraph (b). The commenter notes that although deployment forces can 
be higher than normal if the modification/replacement is not 
accomplished, the commenter is

[[Page 49209]]

not aware of any non-deployment due to this condition.
    We partially agree with the commenter. We agree that certain 
concurrent actions specified in Boeing Special Attention Service 
Bulletin 747-25-3307, Revision 2, are not necessary. We have determined 
that the concurrent modification specified in Figure 1 of the service 
bulletin is not required; however, the concurrent modification of the 
outboard cover panel, as specified in Figure 2 of the service bulletin, 
must be accomplished on Groups 2, 5, 6, 7, 8, 11, 12, 13, 14, and 15 
airplanes. We have changed paragraph (b) of this supplemental NPRM 
accordingly.

Request To Change Applicability

    One commenter asks that the applicability specified in the original 
NPRM be changed to specify a component (appliance), rather than 
airplanes, and suggests that the AD apply only to airplanes with floor-
mounted upper deck slide pack assemblies having the part numbers 
identified in the referenced service information. The commenter states 
that the applicability specified can be misleading and has the 
potential to cause compliance and record-keeping errors. The commenter 
adds that the original NPRM should not be applicable to airplanes 
because the actions are required for a removable component; the 
component can be removed, repaired, and/or overhauled separately from 
the airplane, moved to another airplane, or stored until installation. 
The commenter notes that it operates several Model 747-100 series 
airplanes that do not have the affected floor-mounted upper deck slide 
pack assemblies installed, although the airplanes are included in the 
applicability. In addition, the commenter states that it operates one 
Model 747SR series airplane that is equipped with an affected assembly, 
but is not included in the effectivity specified in the referenced 
service information.
    We do not agree with the commenter. Our general policy, when an 
unsafe condition results from an appliance or other item that is, or 
could be, installed on multiple airplane models, is that the AD is 
issued so that it is applicable to all of those airplane models, rather 
than to the item. The applicability of the original NPRM states ``all'' 
and takes precedence over the service bulletin effectivity. By making 
the AD applicable to the airplane models on which the appliance or 
other item is installed, we ensure that operators of those airplanes 
will be notified directly of the unsafe condition and the action 
required to correct it. While we assume that an operator will know the 
models of airplanes that it operates, there is a potential that the 
operator will not know or be aware of specific items that are installed 
on its airplanes. Therefore, calling out the airplane model as the 
subject of the AD prevents ``unknowing non-compliance'' on the part of 
the operator.
    Additionally, there have been reports of non-deployments of escape 
slides that were delivered by Boeing with the airplane, as well as 
those that were installed post-delivery by the supplemental type 
certification (STC) process. After reviewing the in-service incidents, 
we found that all of the escape slides installed per the STC used the 
packboards that were delivered with the airplane. We then determined 
that specifying the airplane model in the applicability of the NPRM 
instead of the escape slide itself ensures that all discrepant cable 
assemblies are replaced on all Model 747 escape slide packboards, 
regardless of which airplane the escape slide is installed on. 
Therefore, components on airplanes not affected would not be 
overlooked. We have made no change to the supplemental NPRM in this 
regard.
    Another commenter states that in the applicability of the original 
NPRM, Model 747-400F series airplanes are missing. The commenter notes 
that the upper deck slides on Model 747-400F series airplanes are the 
same as the slides installed on Model 747-200 series airplanes.
    Although no specific request was made, we infer that the commenter 
wants us to add Model 747-400F series airplanes to the applicability of 
the supplemental NPRM. Although the slides for Model 747-200 and 747-
400F series airplanes are similar, they are not interchangeable. When 
the Model 747-400F series airplanes were built, the escape slides that 
were installed had newer cover release cables which changed the 
configuration; therefore, the actions specified in the supplemental 
NPRM are not required for Model 747-400F series airplanes. We have made 
no change to the supplemental NPRM in this regard.

FAA's Determination and Proposed Requirements of the Supplemental NPRM

    Since a certain change, discussed above, expands the scope of the 
original NPRM, we have determined that it is necessary to reopen the 
comment period to provide additional opportunity for public comment on 
this supplemental NPRM.

Changes to 14 CFR Part 39/Effect on the Original NPRM

    On July 10, 2002, the FAA issued a new version of 14 CFR part 39 
(67 FR 47997, July 22, 2002), which governs the FAA's airworthiness 
directives system. The regulation now includes material that relates to 
altered products, special flight permits, and alternative methods of 
compliance (AMOCs). These changes are reflected in this supplemental 
NPRM.

Cost Impact

    There are approximately 592 airplanes of the affected design in the 
worldwide fleet. We estimate that 187 airplanes of U.S. registry would 
be affected by this proposed AD.
    It would take approximately 2 work hours per escape slide to 
accomplish the new proposed modification of the escape slide/raft pack 
assembly, at an average labor rate of $65 per work hour. Required parts 
would cost between $8,354 and $30,688 per airplane. Based on these 
figures, the cost impact of the modification of the escape slide/raft 
pack assembly proposed by this AD on U.S. operators is estimated to be 
between $1,586,508 and $5,762,966, or between $8,484 and $30,818 per 
airplane.
    Should an operator be required to accomplish the overhaul of the 
cable release sliders, it would take approximately 2 work hours to 
accomplish the proposed overhaul, at an average labor rate of $65 per 
work hour. Required parts cost would be negligible. Based on these 
figures, the cost impact of the overhaul of the cable release sliders 
proposed by this AD on U.S. operators is estimated to be $130 per 
escape slide and $260 per airplane.
    Should an operator be required to accomplish the replacement of the 
cable release sliders, it would take approximately 1 work hour to 
accomplish the proposed replacement, at an average labor rate of $65 
per work hour. Required parts would cost approximately $2,940 per 
escape slide. Based on these figures, the cost impact of the 
replacement of the cable release sliders proposed by this AD on U.S. 
operators is estimated to be $3,005 per escape slide or $6,010 per 
airplane.
    The cost impact figures discussed above are based on assumptions 
that no operator has yet accomplished any of the proposed requirements 
of this AD action, and that no operator would accomplish those actions 
in the future if this AD were not adopted. The cost impact figures 
discussed in AD rulemaking actions represent only the time necessary to 
perform the specific

[[Page 49210]]

actions actually required by the AD. These figures typically do not 
include incidental costs, such as the time required to gain access and 
close up, planning time, or time necessitated by other administrative 
actions.

Authority for This Rulemaking

    Title 49 of the United States Code specifies the FAA's authority to 
issue rules on aviation safety. Subtitle I, Section 106, describes the 
authority of the FAA Administrator. Subtitle VII, Aviation Programs, 
describes in more detail the scope of the Agency's authority.
    We are issuing this rulemaking under the authority described in 
subtitle VII, part A, subpart III, section 44701, ``General 
requirements.'' Under that section, Congress charges the FAA with 
promoting safe flight of civil aircraft in air commerce by prescribing 
regulations for practices, methods, and procedures the Administrator 
finds necessary for safety in air commerce. This regulation is within 
the scope of that authority because it addresses an unsafe condition 
that is likely to exist or develop on products identified in this 
rulemaking action.

Regulatory Impact

    The regulations proposed herein would not have a substantial direct 
effect on the States, on the relationship between the national 
Government and the States, or on the distribution of power and 
responsibilities among the various levels of government. Therefore, it 
is determined that this proposal would not have federalism implications 
under Executive Order 13132.
    For the reasons discussed above, I certify that this proposed 
regulation (1) is not a ``significant regulatory action'' under 
Executive Order 12866; (2) is not a ``significant rule'' under the DOT 
Regulatory Policies and Procedures (44 FR 11034, February 26, 1979); 
and (3) if promulgated, will not have a significant economic impact, 
positive or negative, on a substantial number of small entities under 
the criteria of the Regulatory Flexibility Act. A copy of the draft 
regulatory evaluation prepared for this action is contained in the 
Rules Docket. A copy of it may be obtained by contacting the Rules 
Docket at the location provided under the caption ADDRESSES.

List of Subjects in 14 CFR Part 39

    Air transportation, Aircraft, Aviation safety, Safety.

The Proposed Amendment

    Accordingly, pursuant to the authority delegated to me by the 
Administrator, the Federal Aviation Administration proposes to amend 
part 39 of the Federal Aviation Regulations (14 CFR part 39) as 
follows:

PART 39--AIRWORTHINESS DIRECTIVES

    1. The authority citation for part 39 continues to read as follows:

    Authority: 49 U.S.C. 106(g), 40113, 44701.


Sec.  39.13  [Amended]

    2. Section 39.13 is amended by adding the following new 
airworthiness directive:

Boeing: Docket 2001-NM-213-AD.

    Applicability: All Model 747SP, 747SR, 747-100, -100B, -100B 
SUD, -200B, -200C, -200F, and -300 series airplanes; certificated in 
any category.
    Compliance: Required as indicated, unless accomplished 
previously.
    To prevent improper deployment of the escape slide/raft or 
blockage of the passenger/crew doors in the event of an emergency 
evacuation, which could result in injury to passengers or 
crewmembers, accomplish the following:

Modification

    (a) Within 36 months after the effective date of this AD: 
Accomplish the actions specified in paragraphs (a)(1) and (a)(2) of 
this AD, as applicable, in accordance with Boeing Special Attention 
Service Bulletin 747-25-3274, Revision 3, dated December 16, 2004. 
Previously accomplishing the modification in accordance with Boeing 
Special Attention Service Bulletin 747-25-3274, Revision 1, dated 
January 9, 2003; or Revision 2, dated August 26, 2004; is acceptable 
for compliance with paragraph (a)(1) of this AD, except as specified 
in paragraph 1.D, `Description', of Revision 3 of the service 
bulletin.
    (1) For airplanes on which the actions specified in Boeing 
Service Bulletin 747-25-2666, Revision 2, dated April 24, 2003; and 
Goodrich Service Bulletin 25-238, Revision 1, dated January 31, 
2003, have been accomplished: Replace cable assemblies having part 
number (P/N) 69B55462-( ) with new cable assemblies having P/N 
416U6004-1.
    (2) For airplanes on which the modification required by 
paragraph (a)(1) of this AD has not been accomplished: Modify the 
escape slide/raft pack assembly (includes removing the slide packs, 
replacing the cover release pin cable assemblies with new 
assemblies, and removing the cable guard bracket, as applicable).

Concurrent Modification

    (b) For Groups 2, 5, 6, 7, 8, 11, 12, 13, 14, and 15 airplanes: 
Prior to or concurrently with accomplishment of paragraph (a) of 
this AD, modify the outboard cover panel of the cable release 
sliders of the floor-mounted upper deck slide pack assembly, as 
specified in Figure 2 of Boeing Special Attention Service Bulletin 
747-25-3307, Revision 2, dated July 8, 2004.

Alternative Methods of Compliance

    (c) The Manager, Seattle Aircraft Certification Office (ACO), 
FAA, has the authority to approve AMOCs for this AD, if requested in 
accordance with the procedures found in 14 CFR 39.19.

    Issued in Renton, Washington, on August 12, 2005.
Ali Bahrami,
Manager, Transport Airplane Directorate, Aircraft Certification 
Service.
[FR Doc. 05-16751 Filed 8-22-05; 8:45 am]
BILLING CODE 4910-13-P