[Federal Register Volume 79, Number 78 (Wednesday, April 23, 2014)]
[Proposed Rules]
[Pages 22596-22599]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-09243]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2014-0253; Directorate Identifier 2013-NM-257-AD]
RIN 2120-AA64


Airworthiness Directives; The Boeing Company Airplanes

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Notice of proposed rulemaking (NPRM).

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SUMMARY: We propose to adopt a new airworthiness directive (AD) for 
certain The Boeing Company Model 747-100B SUD, 747-200B, 747-300, 747-
400, 747-400D series airplanes. This proposed AD was prompted by an 
evaluation by the design approval holder (DAH) indicating that the 
upper deck tension ties are subject to widespread fatigue damage (WFD). 
This proposed AD would require repetitive inspections for cracking in 
the upper deck tension ties, and related investigative and corrective 
actions if necessary; tension tie replacement; and post-replacement 
repetitive inspections for cracking in the upper deck tension ties, and 
related investigative and corrective actions if necessary. We are 
proposing this AD to detect and correct fatigue cracking of the upper 
deck tension ties. Severed or disconnected tension ties at multiple 
locations could result in rapid decompression and loss of structural 
integrity of the airplane.

DATES: We must receive comments on this proposed AD by June 9, 2014.

ADDRESSES: You may send comments, using the procedures found in 14 CFR 
11.43 and 11.45, by any of the following methods:
     Federal eRulemaking Portal: Go to http://www.regulations.gov. Follow the instructions for submitting comments.
     Fax: 202-493-2251.
     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.
     Hand Delivery: Deliver to Mail address above between 9 
a.m. and 5 p.m., Monday through Friday, except Federal holidays.
    For service information identified in this proposed AD, contact 
Boeing Commercial Airplanes, Attention: Data

[[Page 22597]]

& Services Management, P.O. Box 3707, MC 2H-65, Seattle, WA 98124-2207; 
telephone 206-544-5000, extension 1; fax 206-766-5680; Internet https://www.myboeingfleet.com. You may view this referenced service 
information at the FAA, Transport Airplane Directorate, 1601 Lind 
Avenue SW., Renton, Washington. For information on the availability of 
this material at the FAA, call 425-227-1221.

Examining the AD Docket

    You may examine the AD docket on the Internet at http://www.regulations.gov by searching for and locating Docket No. FAA-2014-
0253; or in person at the Docket Management Facility between 9 a.m. and 
5 p.m., Monday through Friday, except Federal holidays. The AD docket 
contains this proposed AD, the regulatory evaluation, any comments 
received, and other information. The street address for the Docket 
Office (phone: 800-647-5527) is in the ADDRESSES section. Comments will 
be available in the AD docket shortly after receipt.

FOR FURTHER INFORMATION CONTACT: Nathan Weigand, Aerospace Engineer, 
Airframe Branch, ANM-120S, FAA, Seattle Aircraft Certification Office, 
1601 Lind Avenue SW., Renton, WA 98057-3356; phone: 425-917-6428; fax: 
425-917-6590; email: [email protected].

SUPPLEMENTARY INFORMATION: 

Comments Invited

    We invite you to send any written relevant data, views, or 
arguments about this proposal. Send your comments to an address listed 
under the ADDRESSES section. Include ``Docket No. FAA-2014-0253; 
Directorate Identifier 2013-NM-257-AD'' at the beginning of your 
comments. We specifically invite comments on the overall regulatory, 
economic, environmental, and energy aspects of this proposed AD. We 
will consider all comments received by the closing date and may amend 
this proposed AD because of those comments.
    We will post all comments we receive, without change, to http://www.regulations.gov, including any personal information you provide. We 
will also post a report summarizing each substantive verbal contact we 
receive about this proposed AD.

Discussion

    Structural fatigue damage is progressive. It begins as minute 
cracks, and those cracks grow under the action of repeated stresses. 
This can happen because of normal operational conditions and design 
attributes, or because of isolated situations or incidents such as 
material defects, poor fabrication quality, or corrosion pits, dings, 
or scratches. Fatigue damage can occur locally, in small areas or 
structural design details, or globally. Global fatigue damage is 
general degradation of large areas of structure with similar structural 
details and stress levels. Multiple-site damage is global damage that 
occurs in a large structural element such as a single rivet line of a 
lap splice joining two large skin panels. Global damage can also occur 
in multiple elements such as adjacent frames or stringers. Multiple-
site-damage and multiple-element-damage cracks are typically too small 
initially to be reliably detected with normal inspection methods. 
Without intervention, these cracks will grow, and eventually compromise 
the structural integrity of the airplane, in a condition known as WFD. 
As an airplane ages, WFD will likely occur, and will certainly occur if 
the airplane is operated long enough without any intervention.
    The FAA's WFD final rule (75 FR 69746, November 15, 2010) became 
effective on January 14, 2011. The WFD rule requires certain actions to 
prevent catastrophic failure due to WFD throughout the operational life 
of certain existing transport category airplanes and all of these 
airplanes that will be certificated in the future. For existing and 
future airplanes subject to the WFD rule, the rule requires that design 
approval holders (DAHs) establish a limit of validity (LOV) of the 
engineering data that support the structural maintenance program. 
Operators affected by the WFD rule may not fly an airplane beyond its 
LOV, unless an extended LOV is approved.
    The WFD rule (75 FR 69746, November 15, 2010) does not require 
identifying and developing maintenance actions if the DAHs can show 
that such actions are not necessary to prevent WFD before the airplane 
reaches the LOV. Many LOVs, however, do depend on accomplishment of 
future maintenance actions. As stated in the WFD rule, any maintenance 
actions necessary to reach the LOV will be mandated by airworthiness 
directives through separate rulemaking actions.
    In the context of WFD, this approach is necessary to enable DAHs to 
propose LOVs that allow operators the longest operational lives for 
their airplanes, and still ensure that WFD will not occur. This 
approach allows for an implementation strategy that provides 
flexibility to DAHs in determining the timing of service information 
development (with FAA approval), while providing operators with 
certainty regarding the LOV applicable to their airplanes.
    The identified unsafe condition is at airplane body station 
locations 880 to 1100 where the floor beams were replaced with tension 
ties during airplane conversion to special freighter or Boeing 
converted freighter. Tension ties have been determined to be structure 
that is susceptible to WFD. WFD could cause multiple adjacent tension 
ties to become severed or disconnected from the frames, which could 
result in rapid decompression and loss of structural integrity of the 
airplane.

Relevant Service Information

    We reviewed Boeing Alert Service Bulletin 747-53A2866, dated 
December 4, 2013. For information on the procedures and compliance 
times, see this service information at http://www.regulations.gov by 
searching for Docket No. FAA-2014-0253.

FAA's Determination

    We are proposing this AD because we evaluated all the relevant 
information and determined the unsafe condition described previously is 
likely to exist or develop in other products of the same type design.

Proposed AD Requirements

    This proposed AD applies to current and future Model 747-100B SUD, 
747-200B, 747-300, 747-400, 747-400D series airplanes converted to 
special freighter or Boeing converted freighter configuration.
    This proposed AD would require repetitive inspections for cracking 
in the upper deck tension ties, and related investigative and 
corrective actions if necessary; tension tie replacement; and post-
replacement repetitive inspections for cracking in the upper deck 
tension ties, and related investigative and corrective actions if 
necessary; as specified in the service information identified 
previously, except as discussed under ``Difference Between this 
Proposed AD and the Service Information.''
    The phrase ``related investigative actions'' is used in this 
proposed AD. ``Related investigative actions'' are follow-on actions 
that (1) are related to the primary actions, and (2) further 
investigate the nature of any condition found. Related investigative 
actions in an AD could include, for example, inspections.
    The phrase ``corrective actions'' is used in this proposed AD. 
``Corrective actions'' correct or address any

[[Page 22598]]

condition found. Corrective actions in an AD could include, for 
example, repairs.
    The FAA worked in conjunction with industry, under the 
Airworthiness Directives Implementation Aviation Rulemaking Committee, 
to enhance the AD system. One enhancement was a new process for 
annotating which steps in the service information are required for 
compliance with an AD. Differentiating these steps from other tasks in 
the service information is expected to improve an owner's/operator's 
understanding of crucial AD requirements and help provide consistent 
judgment in AD compliance. The actions specified in the service 
information described previously include steps that are labeled as RC 
(required for compliance) because these steps have a direct effect on 
detecting, preventing, resolving, or eliminating an identified unsafe 
condition.
    As noted in the specified service information, steps labeled as RC 
must be done to comply with the proposed AD. However, steps that are 
not labeled as RC are recommended. Those steps that are not labeled as 
RC may be deviated from, done as part of other actions, or done using 
accepted methods different from those identified in the service 
information without obtaining approval of an alternative method of 
compliance (AMOC), provided the steps labeled as RC can be done and the 
airplane can be put back in a serviceable condition. Any substitutions 
or changes to steps labeled as RC will require approval of an AMOC.

Difference Between This Proposed AD and the Service Information

    Boeing Alert Service Bulletin 747-53A2866, dated December 4, 2013, 
specifies to contact the manufacturer for instructions on how to repair 
certain conditions, but this proposed AD would require repairing those 
conditions in one of the following ways:
     In accordance with a method that we approve; or
     Using data that meet the certification basis of the 
airplane, and that have been approved by the Boeing Commercial 
Airplanes Organization Designation Authorization (ODA) whom we have 
authorized to make those findings.

Explanation of Compliance Time

    The compliance time for the modification specified in this proposed 
AD for addressing WFD was established to ensure that discrepant 
structure is modified before WFD develops in airplanes. Standard 
inspection techniques cannot be relied on to detect WFD before it 
becomes a hazard to flight. We will not grant any extensions of the 
compliance time to complete any AD-mandated service bulletin related to 
WFD without extensive new data that would substantiate and clearly 
warrant such an extension.

Costs of Compliance

    We estimate that this proposed AD affects 76 airplanes of U.S. 
registry.
    We estimate the following costs to comply with this proposed AD:

                                                 Estimated Costs
----------------------------------------------------------------------------------------------------------------
                                                                                                Cost on U.S.
              Action                    Labor cost        Parts cost    Cost per product          operators
----------------------------------------------------------------------------------------------------------------
Inspections                        Up to 164 work-hours           $0  Up to $13,940 per     Up to 1,059,440 per
 (pre[dash]modification and         x $85 per hour =                   inspection cycle.     inspection cycle.
 post[dash]modification).           $13,940 per
                                    inspection cycle.
Modification.....................  366 work-hours x $85           $0  $31,110.............  $2,364,360.
                                    per hour = $31,110.
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    We have received no definitive data that would enable us to provide 
cost estimates for the on-condition actions specified in this proposed 
AD.

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 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 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),
    (3) Will not affect intrastate aviation in Alaska, and
    (4) 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.

List of Subjects in 14 CFR Part 39

    Air transportation, Aircraft, Aviation safety, Incorporation by 
reference, 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

0
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]

0
2. The FAA amends Sec.  39.13 by adding the following new airworthiness 
directive (AD):

The Boeing Company: Docket No. FAA-2014-0253; Directorate Identifier 
2013-NM-257-AD.

(a) Comments Due Date

    We must receive comments by June 9, 2014.

[[Page 22599]]

(b) Affected ADs

    None.

(c) Applicability

    This AD applies to The Boeing Company Model 747-100B SUD, 747-
200B, 747-300, 747-400, and 747-400D series airplanes, certificated 
in any category, as identified in Boeing Alert Service Bulletin 747-
53A2866, dated December 4, 2013.

(d) Subject

    Air Transport Association (ATA) of America Code 53, Fuselage.

(e) Unsafe Condition

    This AD was prompted by an evaluation by the design approval 
holder (DAH) indicating that the upper deck tension ties are subject 
to widespread fatigue damage (WFD). We are issuing this AD to detect 
and correct fatigue cracking of the upper deck tension ties. Severed 
or disconnected tension ties at multiple locations could result in 
rapid decompression and loss of structural integrity of the 
airplane.

(f) Compliance

    Comply with this AD within the compliance times specified, 
unless already done.

(g) Inspections, Related Investigative Actions, and Corrective Actions

    For airplanes identified as Group 1, Configuration 2; and Group 
2; in Boeing Alert Service Bulletin 747-53A2866, dated December 4, 
2013: Before the accumulation of 10,000 flight cycles after 
conversion to special freighter or Boeing converted freighter 
configuration, or within 2,000 flight cycles after the effective 
date of this AD, whichever occurs later, do the actions specified in 
paragraph (g)(1) or (g)(2) of this AD, and do all applicable related 
investigative and corrective actions, in accordance with the 
Accomplishment Instructions of Boeing Alert Service Bulletin 747-
53A2866, dated December 4, 2013, except as provided by paragraph (h) 
of this AD. Do all applicable related investigative and corrective 
actions before further flight. Repeat the inspection of the forward 
and aft tension tie channels thereafter at the applicable time and 
intervals specified in paragraph 1.E., ``Compliance,'' of Boeing 
Alert Service Bulletin 747-53A2866, dated December 4, 2013.
    (1) At each tension tie station from 880 to 1100: Do a detailed 
inspection for cracks in the forward and aft tension tie channels.
    (2) At each tension tie station from 880 to 1100: Do a detailed 
inspection for cracks in the forward and aft tension tie channels, 
and do a surface high frequency eddy current (HFEC) inspection for 
cracks around fasteners in the tension tie channels.

(h) Exceptions to Service Information Specifications

    If, during accomplishment of the related investigative action or 
inspections required by this AD, any cracking is found, and Boeing 
Alert Service Bulletin 747-53A2866, dated December 4, 2013, 
specifies to contact Boeing for repair instructions: Before further 
flight, do the repair using a method approved in accordance with the 
procedures specified in paragraph (k) of this AD.

(i) Tension Tie Replacement

    After the accumulation of 13,000 total flight cycles; but before 
the accumulation of 22,000 flight cycles after conversion to special 
freighter or Boeing converted freighter configuration, or within 
2,000 flight cycles after the effective date of this AD, whichever 
occurs later: Do the tension tie replacement, in accordance with the 
Accomplishment Instructions of Boeing Alert Service Bulletin 747-
53A2866, dated December 4, 2013, except as provided by paragraph (h) 
of this AD. Accomplishment of the actions required by this paragraph 
terminates the inspection requirements of paragraph (g) of this AD.

(j) Post-tension Tie Replacement Inspections, Related Investigative 
Actions, and Corrective Actions

    After accomplishing the actions required by paragraph (i) of 
this AD: At the applicable time specified in paragraph 1.E., 
``Compliance,'' of Boeing Alert Service Bulletin 747-53A2866, dated 
December 4, 2013, do the actions specified in paragraph (j)(1) or 
(j)(2) of this AD; and do all applicable related investigative and 
corrective actions; in accordance with the Accomplishment 
Instructions of Boeing Alert Service Bulletin 747-53A2866, dated 
December 4, 2013, except as provided by paragraph (h) of this AD. Do 
all applicable related investigative and corrective actions before 
further flight. Repeat the applicable inspection of the forward and 
aft tension tie channels thereafter at the applicable time and 
intervals specified in paragraph 1.E., ``Compliance,'' of Boeing 
Alert Service Bulletin 747-53A2866, dated December 4, 2013.
    (1) At each tension tie station from 880 to 1100: Do a detailed 
inspection for cracks in the forward and aft tension tie channels.
    (2) At each tension tie station from 880 to 1100: Do a detailed 
inspection for cracks in the forward and aft tension tie channels, 
and do a surface HFEC inspection for cracks around fasteners in the 
tension tie channels.

(k) Alternative Methods of Compliance (AMOCs)

    (1) The Manager, Seattle Aircraft Certification Office (ACO), 
FAA, has the authority to approve AMOCs for this AD, if requested 
using the procedures found in 14 CFR 39.19. In accordance with 14 
CFR 39.19, send your request to your principal inspector or local 
Flight Standards District Office, as appropriate. If sending 
information directly to the manager of the ACO, send it to the 
attention of the person identified in the paragraph (l)(1) of this 
AD. Information may be emailed to: [email protected].
    (2) Before using any approved AMOC, notify your appropriate 
principal inspector, or lacking a principal inspector, the manager 
of the local flight standards district office/certificate holding 
district office.
    (3) An AMOC that provides an acceptable level of safety may be 
used for any repair required by this AD if it is approved by the 
Boeing Commercial Airplanes Organization Designation Authorization 
(ODA) that has been authorized by the Manager, Seattle ACO to make 
those findings. For a repair method to be approved, the repair must 
meet the certification basis of the airplane, and the approval must 
specifically refer to this AD.
    (4) If the service information contains steps that are labeled 
as RC (Required for Compliance), those steps must be done to comply 
with this AD; any steps that are not labeled as RC are recommended. 
Those steps that are not labeled as RC may be deviated from, done as 
part of other actions, or done using accepted methods different from 
those identified in the specified service information without 
obtaining approval of an AMOC, provided the steps labeled as RC can 
be done and the airplane can be put back in a serviceable condition. 
Any substitutions or changes to steps labeled as RC require approval 
of an AMOC.

(l) Related Information

    (1) For more information about this AD, contact Nathan Weigand, 
Aerospace Engineer, Airframe Branch, ANM-120S, FAA, Seattle Aircraft 
Certification Office, 1601 Lind Avenue SW., Renton, WA 98057-3356; 
phone: 425-917-6428; fax: 425-917-6590; email: 
[email protected].
    (2) For service information identified in this AD, contact 
Boeing Commercial Airplanes, Attention: Data & Services Management, 
P.O. Box 3707, MC 2H-65, Seattle, WA 98124-2207; telephone 206-544-
5000, extension 1; fax 206-766-5680; Internet https://www.myboeingfleet.com. You may view this referenced service 
information at the FAA, Transport Airplane Directorate, 1601 Lind 
Avenue SW., Renton, Washington. For information on the availability 
of this material at the FAA, call 425-227-1221.

    Issued in Renton, Washington, on April 14, 2014.
Jeffrey E. Duven,
Manager, Transport Airplane Directorate, Aircraft Certification 
Service.
[FR Doc. 2014-09243 Filed 4-22-14; 8:45 am]
BILLING CODE 4910-13-P