[Federal Register Volume 80, Number 107 (Thursday, June 4, 2015)]
[Notices]
[Pages 31946-31948]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-13542]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration


Aviation Rulemaking Advisory Committee; Transport Airplane and 
Engine Issues; New Task

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Notice of new task assignment for the Aviation Rulemaking 
Advisory Committee (ARAC).

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SUMMARY: The FAA assigned the Aviation Rulemaking Advisory Committee 
(ARAC) a new task to provide recommendations regarding the 
incorporation of airframe-level crashworthiness and ditching standards 
into Title 14, Code of Federal Regulations (14 CFR) part 25 and 
development of associated advisory material. The issue is during the 
development of current airworthiness standards and regulatory guidance, 
the FAA assumed that airframe structure for transport airplanes would 
be constructed predominantly of metal, using skin-stringer-frame 
architecture. Therefore, certain requirements either do not address all 
of the issues associated with nonmetallic materials, or have criteria 
that are based on experience with traditionally-configured large 
metallic airplanes. With respect to crashworthiness, there is no 
airframe-level standard for crashworthiness. Many of the factors that 
influence airframe performance under crash conditions on terrain also 
influence airframe performance under ditching conditions. Past studies 
and investigations have included recommendations for review of certain 
regulatory requirements and guidance material to identify opportunities 
for improving survivability during a ditching event; consideration of 
these recommendations is included in this tasking.
    This notice informs the public of the new ARAC activity and 
solicits membership for the Transport Airplane Crashworthiness and 
Ditching Working Group.

FOR FURTHER INFORMATION CONTACT: Ian Won, Federal Aviation 
Administration, 1601 Lind Avenue SW., Renton, WA 98055, 
[email protected], phone number 425-227-2145, facsimile number 425-227-
1232.

SUPPLEMENTARY INFORMATION: 

ARAC Acceptance of Task

    As a result of the March 19, 2015 ARAC meeting, the FAA has 
assigned and ARAC has accepted this task and will establish the 
Transport Airplane Crashworthiness and Ditching Working Group, 
Transport Airplane and Engine Issues. The working group will serve as 
staff to the ARAC and provide advice and recommendations on the 
assigned task. The ARAC will review and approve the recommendation 
report and will submit it to the FAA.

Background

    The FAA established the ARAC to provide information, advice, and 
recommendations on aviation related issues that could result in 
rulemaking to the FAA Administrator, through the Associate 
Administrator of Aviation Safety.
    The Transport Airplane Crashworthiness and Ditching Working Group 
will provide advice and recommendations to the ARAC on airframe-level 
crashworthiness and ditching standards to incorporate into part 25 and 
any associated advisory material.
    The requirements of Title 14, Code of Federal Regulations (14 CFR) 
25.561 apply equally to structure constructed from either metallic or 
nonmetallic materials, and regardless of the design architecture and 
airplane size. Guidance material is mainly contained in FAA Advisory 
Circular (AC) 25-17A. While not explicitly stated in part 25, during 
the development of current airworthiness standards and published 
advisory circulars, the FAA assumed that airplane airframes would be 
constructed predominantly of metal, using skin-stringer-frame 
architecture. Therefore, some of the requirements either do not address 
all of the issues associated with nonmetallic materials, or have 
criteria that are based on experience with traditionally-configured 
large metallic airplanes. With respect to crashworthiness, there is no 
airframe-level standard for crashworthiness. The FAA promulgated 
standards for occupant protection at the seat installation level, with 
the presumption that the airframe provides an acceptable level of 
crashworthiness. Thus when an applicant proposes to use unconventional 
fuselage structure (materials, design, or both), the FAA has written 
special conditions to ensure the level of crash protection is 
equivalent to that provided by a traditionally-configured metallic 
airplane. These special conditions have been comparative in nature, and 
do not establish performance standards that are independent of 
traditional metallic skin-stringer-frame architecture for airframe 
crashworthiness.
    Crashworthiness Factors: Many factors influence the crashworthiness 
of an airframe, including materials of

[[Page 31947]]

construction, geometry, structural philosophy, and fuselage size 
(fuselage diameter). The key elements of crashworthy airframe design 
are managing energy absorption and maintaining structural integrity. 
For the most part, energy absorption is managed through plastic 
deformation and controlled failures of the lower fuselage structure. 
Maintaining the integrity of the structure is a balance between keeping 
loads within human tolerance levels, retaining items of mass, 
preserving a survivable volume and maintaining access to exits. 
Existing airworthiness requirements mainly focus on the safety of 
flight, and not crashworthiness, consequently when deviating from the 
traditional methods of construction an adequate level of safety cannot 
be assured.
    Increased Use of Composites: In June 2009, the FAA Transport 
Airplane Directorate requested comments through the Federal Register 
(74 FR 26919) on whether there was a need for future rulemaking to 
address manufacturers' extensive use of composite materials in airplane 
construction. Several candidate technical areas were noted in the 
request, including fire safety, crashworthiness, lightning protection, 
fuel tank safety and damage tolerance. All responses that the FAA 
received indicated that crashworthiness in particular needs improved 
guidance and possible rulemaking.
    Ditching: The FAA conducted several investigations on ditching and 
water-related impacts in the 1980s and 1990s. In conjunction with 
Transport Canada and the United Kingdom Civil Aviation Authority (UK 
CAA), the FAA recently investigated ditching/water-related impacts and 
ditching certification. One of the findings of these investigations is 
that current practices may not provide an adequate level of safety for 
the most likely ditching scenarios. From this research, a ditching 
event can be categorized as a specific type of emergency landing. Many 
of the factors (e.g., airframe energy absorption characteristics, 
structural deformation, etc.) that influence airframe performance under 
crash conditions on terrain also influence airframe performance under 
ditching conditions. Flight crew procedures, airplane configuration, 
safety equipment, and passenger preparedness also have a significant 
influence on survivability during a ditching event. Findings from these 
investigations include recommendations for review of certain regulatory 
requirements and guidance material related to the aforementioned 
factors to identify opportunities for improving survivability during a 
ditching event.

The Task

    The Transport Airplane Crashworthiness and Ditching Working Group 
is tasked to:
    1. Specifically advise and make written recommendations on what 
airframe-level crashworthiness and ditching standards to incorporate 
into 14 CFR part 25 and any associated advisory material.
    2. Evaluate Sec. Sec.  25.561, 25.562, 25.563, 25.785, 25.787, 
25.789, 25.801, 25.807, 25.1411, 25.1415, and associated regulatory 
guidance material (e.g., ACs and policy memorandums) to determine what 
aspects need to be revised to maintain the current level of safety. 
Evaluate Special Conditions Nos. 25-321-SC, 25-362-SC, 25-528-SC, 25-
537-SC, as a basis for future requirements. The Transport Airplane 
Crashworthiness and Ditching Working Group will specifically review the 
following factors in making its recommendations:
    a. Fuselage size effects as discussed in FAA report DOT/FAA/CT-
TN90/23;
    b. Safety benefit considerations as identified in CAA Paper 96011 
(and any subsequent revisions);
    c. Other non-traditional airplane level configurations or 
structural configurations (e.g., non-skin, stringer, frame 
construction).
    3. Make recommendations, using the information in FAA reports DOT/
FAA/TC-14/8 (draft), DOT/FAA/AR-95/54, DOT/FAA/CT-92/04, DOT/FAA/CT-84/
3, FAA policy memorandum PS-ANM100-1982-00124, and any other pertinent 
information that may be available on:
    a. Assumptions used in establishing the airplane configuration for 
ditching, both planned and unplanned;
    b. Validation of assumptions used for establishing airplane flight 
performance for planned and unplanned ditching scenarios;
    c. Procedures to be used to execute a successful ditching;
    d. Minimum equipment needed to address the likely ditching 
scenarios.
    4. Consider the performance of existing-conventional metallic 
airframe structure in crash conditions (with consideration to size 
effects) when developing recommendations for airframe-level 
crashworthiness and ditching standards, such that conventionally 
configured airplanes fabricated with typical metallic materials and 
design details can be shown to meet the proposed regulations without 
extensive investigation or documentation.
    5. Based on the Transport Airplane Crashworthiness and Ditching 
Working Group recommendations, perform the following:
    a. Estimate what regulated parties will do differently as a result 
of the proposed regulation and how much it would cost;
    b. Estimate the improvement (if any) in survivability of future 
accidents from this proposed regulation (cite evidence in the 
historical record as support if possible);
    c. Estimate any other benefits (e.g., reduced administrative 
burden) or costs that would result from implementation of the 
recommendations.
    6. Develop a report containing recommendations on whether to 
incorporate airframe-level crashworthiness and ditching standards into 
14 CFR part 25, the recommended requirements, and any associated 
advisory material.
    7. Develop a report containing recommendations on the findings and 
results of the tasks explained above.
    a. The report should document both majority and dissenting 
positions on the findings and the rationale for each position.
    b. Any disagreements should be documented, including the rationale 
for each position and the reason for the disagreement.
    8. Consider EASA requirements, accepted means of compliance (AMC) 
and guidance material (GM) for harmonization to the extent possible.
    9. The Transport Airplane Crashworthiness and Ditching Working 
Group may be reinstated to assist the ARAC by responding to the FAA's 
questions or concerns after the recommendation report has been 
submitted.

Schedule

    The recommendation report must be submitted to the FAA for review 
and acceptance no later than 24 months after publication of this 
notice.

Working Group Activity

    The Transport Airplane Crashworthiness and Ditching Working Group 
must comply with the procedures adopted by the ARAC. As part of the 
procedures, the working group must:
    1. Conduct a review and analysis of the assigned tasks and any 
other related materials or documents.
    2. Draft and submit a work plan for completion of the task, 
including the rationale supporting such a plan, for consideration by 
the Transport Airplane and Engine Subcommittee.
    3. Provide a status report at each Transport Airplane and Engine 
Subcommittee meeting.

[[Page 31948]]

    4. Draft and submit the recommendation report based on the review 
and analysis of the assigned tasks.
    5. Present the recommendation report at the Transport Airplane and 
Engine Subcommittee meeting.

Participation in the Working Group

    The Transport Airplane Crashworthiness and Ditching Working Group 
will be comprised of technical experts having an interest in the 
assigned task. A working group member need not be a member 
representative of the ARAC. The FAA would like a wide range of members 
to ensure all aspects of the tasks are considered in development of the 
recommendations. The provisions of the August 13, 2014 Office of 
Management and Budget guidance, ``Revised Guidance on Appointment of 
Lobbyists to Federal Advisory Committees, Boards, and Commissions'' (79 
FR 47482), continues the ban on registered lobbyists participating on 
Agency Boards and Commissions if participating in their ``individual 
capacity.'' The revised guidance now allows registered lobbyists to 
participate on Agency Boards and Commissions in a ``representative 
capacity'' for the ``express purpose of providing a committee with the 
views of a nongovernmental entity, a recognizable group of persons or 
nongovernmental entities (an industry, sector, labor unions, or 
environmental groups, etc.) or state or local government.'' (For 
further information see Lobbying Disclosure Act of 1995 (LDA) as 
amended, 2 U.S.C. 1603, 1604, and 1605.)
    If you wish to become a member of the Transport Airplane 
Crashworthiness and Ditching Working Group, write the person listed 
under the caption FOR FURTHER INFORMATION CONTACT expressing that 
desire. Describe your interest in the task and state the expertise you 
would bring to the working group. The FAA must receive all requests by 
July 6, 2015. The ARAC and the FAA will review the requests and advise 
you whether or not your request is approved.
    If you are chosen for membership on the working group, you must 
actively participate in the working group by attending all meetings, 
and providing written comments when requested to do so. You must devote 
the resources necessary to support the working group in meeting any 
assigned deadlines. You must keep your management chain and those you 
may represent advised of working group activities and decisions to 
ensure the proposed technical solutions do not conflict with the 
position of those you represent. Once the working group has begun 
deliberations, members will not be added or substituted without the 
approval of the ARAC Chair, the FAA, including the Designated Federal 
Officer, and the Working Group Chair.
    The Secretary of Transportation determined the formation and use of 
the ARAC is necessary and in the public interest in connection with the 
performance of duties imposed on the FAA by law.
    ARAC meetings are open to the public. However, meetings of the 
Transport Airplane Crashworthiness and Ditching Working Group are not 
open to the public, except to the extent individuals with an interest 
and expertise are selected to participate. The FAA will make no public 
announcement of working group meetings.

    Issued in Washington, DC, on May 28, 2015.
Brenda D. Courtney,
Acting Designated Federal Officer, Aviation Rulemaking Advisory 
Committee.
[FR Doc. 2015-13542 Filed 6-3-15; 8:45 am]
 BILLING CODE 4910-13-P