[Federal Register Volume 72, Number 147 (Wednesday, August 1, 2007)]
[Proposed Rules]
[Pages 41958-41963]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 07-3712]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2007-28828; Directorate Identifier 2007-NM-010-AD]
RIN 2120-AA64


Airworthiness Directives; Boeing Model 707 Airplanes and Model 
720 and 720B Series Airplanes

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

ACTION: Notice of proposed rulemaking (NPRM).

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SUMMARY: The FAA proposes to adopt a new airworthiness directive (AD) 
for all Boeing Model 707 airplanes and Model 720 and 720B series 
airplanes. This proposed AD would require accomplishing an airplane 
survey to define the configuration of certain system installations, and 
repair of any discrepancy found. This proposed AD would also require 
modifying the fuel system by installing lightning protection for the 
fuel quantity indication system (FQIS), ground fault relays for the 
fuel boost pumps, and additional power relays for the center tank fuel 
pumps and uncommanded on-indication lights at the flight engineer's 
panel. This proposed AD results from fuel system reviews conducted by 
the manufacturer. We are proposing this AD to prevent certain failures 
of the fuel pumps or FQIS, which could result in a potential ignition 
source inside the fuel tank, which, in combination with flammable fuel 
vapors, could result in a fuel tank explosion and consequent loss of 
the airplane.

DATES: We must receive comments on this proposed AD by September 17, 
2007.

ADDRESSES: Use one of the following addresses to submit comments on 
this proposed AD.
     DOT Docket Web site: Go to http://dms.dot.gov and follow 
the instructions for sending your comments electronically.
     Government-wide rulemaking Web site: Go to http://www.regulations.gov and follow the instructions for sending your 
comments electronically.
     Mail: U.S. Department of Transportation, Docket 
Operations, M-30, West Building Ground Floor, Room W12-140, 1200 New 
Jersey Avenue, SE., Washington, DC 20590.
     Fax: (202) 493-2251.
     Hand Delivery: Room W12-140 on the ground floor of the 
West Building, 1200 New Jersey Avenue, SE., Washington, DC, between 9 
a.m. and 5 p.m., Monday through Friday, except Federal holidays.
    Contact Boeing Commercial Airplanes, P.O. Box 3707, Seattle, 
Washington 98124-2207, for the service information identified in this 
proposed AD.

FOR FURTHER INFORMATION CONTACT: Kathrine Rask, Aerospace Engineer, 
Propulsion Branch, ANM-140S, FAA, Seattle Aircraft Certification 
Office, 1601 Lind Avenue, SW., Renton, Washington 98057-3356; telephone 
(425) 917-6505; fax (425) 917-6590.

SUPPLEMENTARY INFORMATION:

Comments Invited

    We invite you to submit any relevant written data, views, or 
arguments regarding this proposed AD. Send your comments to an address 
listed in the ADDRESSES section. Include the docket number ``FAA-2007-
28828; Directorate Identifier 2007-NM-010-AD'' at the beginning of your 
comments. We specifically invite comments on the overall regulatory, 
economic, environmental, and energy aspects of the proposed AD. We will 
consider all comments received by the closing date and may amend the 
proposed AD in light of those comments.
    We will post all comments we receive, without change, to http://dms.dot.gov, including any personal information you provide. We will 
also post a report summarizing each substantive verbal contact with FAA 
personnel concerning this proposed AD. Using the search function of 
that Web site, anyone can find and read the comments in any of our 
dockets, including the name of the individual who sent the comment (or 
signed the comment on behalf of an association, business, labor union, 
etc.). You may review DOT's complete Privacy Act Statement in the 
Federal Register published on April 11, 2000 (65 FR 19477-78), or you 
may visit http://dms.dot.gov.

Examining the Docket

    You may examine the AD docket on the Internet at http://dms.dot.gov, or in person at the Docket Operations office between 9 
a.m. and 5 p.m., Monday through Friday, except Federal holidays. The 
Docket Operations office (telephone (800) 647-5527) is located on the 
ground floor of the West Building at the street address stated in the 
ADDRESSES section. Comments will be available in the AD docket shortly 
after the Docket Management System receives them.

Discussion

    The FAA has examined the underlying safety issues involved in fuel 
tank explosions on several large transport airplanes, including the 
adequacy of existing regulations, the service history of airplanes 
subject to those regulations, and existing maintenance practices for 
fuel tank systems. As a result of those findings, we issued a 
regulation titled ``Transport Airplane Fuel Tank System Design Review, 
Flammability Reduction and Maintenance and Inspection Requirements'' 
(66 FR 23086, May 7, 2001). In addition to new airworthiness standards 
for transport airplanes and new maintenance requirements, this rule 
included Special Federal Aviation Regulation No. 88 (``SFAR 88,'' 
Amendment 21-78, and subsequent Amendments 21-82 and 21-83).
    Among other actions, SFAR 88 requires certain type design (i.e., 
type certificate (TC) and supplemental type certificate (STC)) holders 
to substantiate that their fuel tank systems can prevent ignition 
sources in the fuel tanks. This requirement applies to type design 
holders for large turbine-powered transport airplanes and for 
subsequent modifications to those airplanes. It requires them to 
perform design reviews and to develop design changes and maintenance 
procedures if their designs do not meet the new fuel tank safety 
standards. As explained in the preamble to the rule, we intended to 
adopt airworthiness directives to mandate any changes found necessary 
to address unsafe conditions identified as a result of these reviews.
    In evaluating these design reviews, we have established four 
criteria intended to define the unsafe conditions associated with fuel 
tank systems that require corrective actions. The percentage of 
operating time during which fuel tanks are exposed to flammable 
conditions is one of these criteria. The other three criteria address 
the failure types under evaluation: single failures, single failures in 
combination with a latent condition(s),

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and in-service failure experience. For all four criteria, the 
evaluations included consideration of previous actions taken that may 
mitigate the need for further action.
    Results from the SFAR 88 analysis show that potential ignition 
sources include:
     Fuel pump electrical failures that burn through the pump 
end cap or case.
     Fuel pump electrical failures that burn through the wire 
and cause electrical arcing through the conduit.
     Mechanical failure of center tank fuel pumps due to 
uncommanded operation that causes an ignition source and an arc in a 
wing tank due to a latent in-tank degradation of the fuel quantity 
indication system (FQIS) and a lightning strike.
    We have determined that the actions identified in this AD are 
necessary to prevent certain failures of the fuel pumps or FQIS, which 
could result in a potential ignition source inside the fuel tank, 
which, in combination with flammable fuel vapors, could result in fuel 
tank explosion and consequent loss of the airplane.

FAA's Determination and Requirements of the Proposed AD

    We have evaluated all pertinent information and identified an 
unsafe condition that is likely to exist or develop on other airplanes 
of this same type design. For this reason, we are proposing this AD, 
which would require modifying the fuel system by installing lightning 
protection for the fuel quantity indication system (FQIS), ground fault 
relays for the fuel boost pumps, and additional power relays for the 
center tank fuel pumps and uncommanded on-indication lights at the 
flight engineer's panel.
    To date, the airframe manufacturer has not developed service 
information for the modifications proposed by this AD. Due to the age 
of the subject airplane models, the operator needs to conduct an 
airplane survey to define the configuration of system installations for 
the wing leading edges, wing-to-body area, electrical equipment bay, 
flight deck, and FQIS to facilitate development of the required service 
information. The survey would identify locations where new components 
and wire bundles could be installed, as well as the configuration of 
affected systems.
    Therefore, to ensure that service information is available within a 
reasonable time to allow modification of the airplane; this proposed AD 
would also require conducting an airplane survey, and reporting the 
results to the FAA. The report would include photographs and sketches, 
part numbers of certain components, and the actual configuration of 
certain systems.
    Due to the age of these airplanes, it is possible that 
discrepancies (i.e., wear or deterioration) might be detected during 
the survey. This proposed AD would also require repair of those 
discrepancies.

Ensuring Compliance with Airplane Survey

    Appendix 1 of this proposed AD contains the 707 SFAR 88 survey 
areas. The appendix is for informational use and provides highlights of 
the general content of the required survey to assist operators in 
developing an acceptable survey plan. Operators may wish to use the 
appendix as an aid to implement the airplane survey.

Costs of Compliance

    There are about 185 airplanes of the affected design in the 
worldwide fleet. This proposed AD would affect about 52 airplanes of 
U.S. registry.
    The proposed survey would take about 20 work hours per airplane, at 
an average labor rate of $80 per work hour. Based on these figures, the 
estimated cost of the proposed survey for U.S. operators is $83,200, or 
$1,600 per airplane.
    Because the manufacturer has not yet developed a modification 
commensurate with the actions specified by this proposed AD, we cannot 
provide specific information regarding the required number of work 
hours or the cost of parts to do the proposed modification. In 
addition, modification costs will likely vary depending on the operator 
and the airplane configuration. The proposed compliance time of 72 
months should provide ample time for the development, approval, and 
installation of an appropriate modification.
    Based on similar modifications accomplished previously on other 
airplane models, however, we can reasonably estimate that the proposed 
modification may require as many as 420 work hours per airplane, at an 
average labor rate of $80 per work hour. Required parts may cost up to 
$185,000 per airplane. Based on these figures, the estimated cost of 
the proposed modification for U.S. operators is $11,367,200, or 
$218,600 per airplane.

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 Findings

    We have determined that this proposed AD would not have federalism 
implications under Executive Order 13132. This proposed AD 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.
    For the reasons discussed above, I certify that the 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. 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.
    We prepared a regulatory evaluation of the estimated costs to 
comply with this proposed AD and placed it in the AD docket. See the 
ADDRESSES section for a location to examine the regulatory evaluation.

List of Subjects in 14 CFR Part 39

    Air transportation, Aircraft, Aviation safety, Safety.

The Proposed Amendment

    Accordingly, under the authority delegated to me by the 
Administrator, the FAA proposes to amend 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. The Federal Aviation Administration (FAA) amends Sec.  39.13 by 
adding the following new airworthiness directive (AD):


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Boeing: Docket No. FAA-2007-28828; Directorate Identifier 2007-NM-
010-AD.

Comments Due Date

    (a) The FAA must receive comments on this AD action by September 
17, 2007.

Affected ADs

    (b) None.

Applicability

    (c) This AD applies to all Boeing Model 707-100 long body, -200, 
-100B long body, and -100B short body series airplanes; and Model 
707-300, -300B, -300C, and -400 series airplanes; and Model 720 and 
720B series airplanes; certificated in any category.

Unsafe Condition

    (d) This AD results from fuel system reviews conducted by the 
manufacturer. We are issuing this AD to prevent certain failures of 
the fuel pumps or fuel quantity indication system (FQIS), which 
could result in a potential ignition source inside the fuel tank, 
which, in combination with flammable fuel vapors, could result in 
fuel tank explosion and consequent loss of the airplane.

Compliance

    (e) You are responsible for having the actions required by this 
AD performed within the compliance times specified, unless the 
actions have already been done.

Airplane Survey

    (f) Within 12 months after the effective date of this AD: 
Conduct an airplane survey that defines the configuration of system 
installations for the wing leading edges, wing-to-body area, 
electrical equipment bay, flight deck, and FQIS using a method 
approved in accordance with the procedures specified in paragraph 
(h)(1) of this AD. If any discrepancy is detected, repair before 
further flight using a method approved in accordance with the 
procedures specified in paragraph (h)(1) of this AD. Submit the 
survey results to the Manager, Seattle Aircraft Certification Office 
(ACO), FAA, 1601 Lind Avenue SW., Renton, Washington 98057-3356, at 
the applicable time specified in paragraph (f)(1) or (f)(2) of this 
AD. The report must include the survey results (e.g., photographs 
and sketches, part numbers of FQIS components and fuel pumps, and 
the actual configuration of FQIS and the fuel pump control systems), 
a description of any discrepancy found, the airplane serial number, 
and the number of landings and flight hours on the airplane. Under 
the provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et 
seq.), the Office of Management and Budget (OMB) has approved the 
information collection requirements contained in this AD and has 
assigned OMB Control Number 2120-0056.
    (1) If the survey was done after the effective date of this AD: 
Submit the report within 30 days after the survey.
    (2) If the survey was done before the effective date of this AD: 
Submit the report within 30 days after the effective date of this 
AD.

    Note 1: For the purposes of this AD, ``discrepancy'' is defined 
as any wear or deterioration (e.g., damage, fluid leaks, corrosion, 
cracking, or system failures) that might prevent the airplane from 
being in an airworthy condition.

Modification of Fuel System

    (g) Within 72 months after the effective date of this AD: Modify 
the fuel system as specified in paragraphs (g)(1), (g)(2), and 
(g)(3) of this AD, using a method approved in accordance with the 
procedures specified in paragraph (h)(1) of this AD.
    (1) Replace the FQIS wire bundle along the leading edge of the 
left and right wings with a new wire bundle that has a lightning 
shield that is separated from other wiring.
    (2) Replace each fuel pump relay with a ground fault interrupter 
relay.
    (3) Install redundant power relays for the center tank fuel 
pumps and uncommanded on-indication lights at the flight engineer's 
panel.

Alternative Methods of Compliance (AMOCs)

    (h)(1) The Manager, Seattle ACO has the authority to approve 
AMOCs for this AD, if requested in accordance with the procedures 
found in 14 CFR 39.19.
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    (2) To request a different method of compliance or a different 
compliance time for this AD, follow the procedures in 14 CFR 39.19. 
Before using any approved AMOC on any airplane to which the AMOC 
applies, notify your appropriate principal inspector

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(PI) in the FAA Flight Standards District Office (FSDO), or lacking 
a PI, your local FSDO.

    Issued in Renton, Washington, on July 18, 2007.
Stephen P. Boyd,
Acting Manager, Transport Airplane Directorate, Aircraft Certification 
Service.
[FR Doc. 07-3712 Filed 7-31-07; 8:45 am]
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