[Federal Register Volume 84, Number 42 (Monday, March 4, 2019)]
[Rules and Regulations]
[Pages 7266-7269]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-03408]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2016-9189; Product Identifier 2016-NM-114-AD; Amendment 
39-19578; AD 2019-03-26]
RIN 2120-AA64


Airworthiness Directives; The Boeing Company Airplanes

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Final rule.

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SUMMARY: We are adopting a new airworthiness directive (AD) for certain 
The Boeing Company Model 737-600, -700, -700C, -800, -900, and -900ER 
series airplanes. This AD was prompted by reports of passenger service 
units (PSUs) becoming detached from the supporting airplane structure 
in several Model 737 series airplanes. This AD requires modifying the 
PSUs and life vest panels by replacing the existing inboard lanyard and 
installing two new lanyards on the outboard edge of the PSUs and life 
vest panels; measuring the distance between the hooks of the torsion 
spring of the lanyard assembly; replacing discrepant lanyard 
assemblies; and re-identifying serviceable lanyard assemblies. We are 
issuing this AD to address the unsafe condition on these products.

DATES: This AD is effective April 8, 2019.
    The Director of the Federal Register approved the incorporation by 
reference of a certain publication listed in this AD as of April 8, 
2019.

ADDRESSES: For service information identified in this final rule, 
contact Boeing Commercial Airplanes, Attention: Contractual & Data 
Services (C&DS), 2600 Westminster Blvd., MC 110 SK57, Seal Beach, CA 
90740-5600; telephone 562-797-1717; internet https://www.myboeingfleet.com. You may view this service information at the 
FAA, Transport Standards Branch, 2200 South 216th St., Des Moines, WA. 
For information on the availability of this material at the FAA, call 
206-231-3195. It is also available on the internet at http://www.regulations.gov by searching for and locating Docket No. FAA-2016-
9189.

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-2016-
9189; or in person at Docket Operations between 9 a.m. and 5 p.m., 
Monday through Friday, except Federal holidays. The AD docket contains 
this final rule, the regulatory evaluation, any comments received, and 
other information. The address for Docket Operations (phone: 800-647-
5527) is U.S. Department of Transportation, Docket Operations, M-30, 
West Building Ground Floor, Room W12-140, 1200 New Jersey Avenue SE, 
Washington, DC 20590.

FOR FURTHER INFORMATION CONTACT: Scott Craig, Aerospace Engineer, Cabin 
Safety and Environmental Systems Section, FAA, Seattle ACO Branch, 2200 
South 216th St., Des Moines, WA 98198; phone and fax: 206-231-3566; 
email: [email protected].

SUPPLEMENTARY INFORMATION: 

Discussion

    We issued a notice of proposed rulemaking (NPRM) to amend 14 CFR 
part 39 by adding an AD that would apply to certain The Boeing Company 
Model 737-600, -700, -700C, -800, -900, and -900ER series airplanes. 
The NPRM published in the Federal Register on October 13, 2016 (81 FR 
70647). The NPRM was prompted by reports of PSUs becoming detached from 
the supporting airplane structure in several Model 737 series airplanes 
during survivable accidents. The NPRM proposed to require modifying the 
PSUs and life vest panels by removing the existing inboard lanyard and 
installing two new lanyards on the outboard edge of the PSUs and life 
vest panels.

[[Page 7267]]

    We issued a supplemental NPRM (SNPRM) to amend 14 CFR part 39 by 
adding an AD that would apply to certain The Boeing Company Model 737-
600, -700, -700C, -800, -900, and -900ER series airplanes. The SNPRM 
published in the Federal Register on September 14, 2018 (83 FR 46666). 
We issued the SNPRM to add airplanes to the applicability, add a 
measurement of the distance between the hooks of the torsion spring of 
the lanyard assembly, replace discrepant lanyard assemblies, and re-
identify serviceable lanyard assemblies.
    We are issuing this AD to address PSUs and life vest panels 
detaching from the supporting airplane structure, which could lead to 
passenger injuries and impede passenger and crew egress during 
evacuation.

Comments

    We gave the public the opportunity to participate in developing 
this final rule. The following presents the comments received on the 
SNPRM and the FAA's response to each comment.

Request To Include PSU-Mounted Liquid Crystal Display (LCD) Panels

    JeJu Air requested that we consider adding actions similar to those 
in the SNPRM for PSU-mounted LCD panels. JeJu Air noted that they 
experienced an incident in which four PSU-mounted LCD panels dropped 
during flight, resulting in minor injuries to several passengers. JeJu 
Air stated that PSU-mounted LCD panels are not subject to routine 
inspections through a manufacturer's maintenance planning document. The 
commenter added that the PSU-mounted LCD panels are heavier than normal 
PSUs and therefore could be riskier for passengers if they fall.
    We acknowledge the commenter's concern. However, making the 
requested change would require issuance of a second SNPRM with another 
public comment period, delaying the issuance of a final rule. To delay 
this action would be inappropriate, since we have determined that an 
unsafe condition exists and that PSU modifications and lanyard 
replacements must be made to ensure continued safety. We will consider 
additional rulemaking to address PSU-mounted LCD panels. We have not 
changed this AD in this regard.

Request To Revise the Applicability

    Boeing requested that we revise the applicability of the proposed 
AD (in the SNPRM) to The Boeing Company Model 737-600, -700, -700C, -
800, -900, and -900ER series airplanes ``as identified in Boeing 
Service Bulletin 737-25-1707, Revision 1, dated May 18, 2018.'' Boeing 
stated that including airplanes beyond those identified in Boeing 
Service Bulletin 737-25-1707, Revision 1, dated May 18, 2018, would not 
add to the safety of the operating fleet. Boeing added that airplanes 
with potentially affected lanyard assemblies, whether included in 
reworked airplanes, installed during production, or issued in kits, are 
all categorized and addressed in Boeing Service Bulletin 737-25-1707, 
Revision 1, dated May 18, 2018.
    We disagree with the commenter's request. The PSUs and lanyard 
assemblies are rotable parts that can be installed on airplanes that 
previously did not have affected PSUs and lanyard assemblies installed. 
Therefore, the applicability of this AD, ``all The Boeing Company Model 
737-600, -700, -700C, -800, -900, and -900ER series airplanes, 
certificated in any category, without a Boeing Sky Interior (BSI),'' 
ensures that no PSUs without the updated lanyard assemblies are 
installed and the unsafe condition is addressed on all affected 
airplanes. We have not changed this AD in this regard.

Request To Correct a Service Bulletin Effectivity Range

    Boeing requested that we revise the ``Differences Between This 
SNPRM and the Service Information'' section of the SNPRM to note that 
the effectivity of Boeing Service Bulletin 737-25-1707, Revision 1, 
dated May 18, 2018, is limited to ``line numbers 1 through 6099,'' 
rather than ``line numbers 1 through 6009.''
    We acknowledge this typographical error. However, the ``Differences 
Between This SNPRM and the Service Information'' section does not carry 
over into this AD. Therefore, we have not changed this AD in this 
regard.

Request To Remove a Requirement To Add an Identifying Mark

    American Airlines (AAL) requested that we remove a requirement in 
the proposed AD (in the SNPRM) to identify new lanyard assemblies as 
serviceable by adding a permanent white mark. AAL noted that Figure 1, 
step 3 of Boeing Service Bulletin 737-25-1707, Revision 1, dated May 
18, 2018, which is Required for Compliance (RC), says to ``Identify the 
lanyard assembly as serviceable with a permanent white mark, that can 
be easily seen when the PSU is lowered.'' The commenter stated that new 
lanyards received in certain kits are deemed serviceable, but not 
identified with a white mark. AAL asked why the parts would be marked 
at installation rather than inspection or fabrication, which seems to 
place the burden on installers to determine the lanyard assembly is 
serviceable.
    We disagree with the commenter's request. Some previously delivered 
lanyard assembly kits contained lanyards that were manufactured 
incorrectly and might not properly secure the PSU in the event of an 
accident. By inspecting and identifying the lanyard assembly during 
installation, operators can ensure that the correct lanyard assembly is 
installed on an airplane. On some airplanes, a correct lanyard assembly 
may already be installed and only needs to be identified with a white 
mark. Boeing Service Bulletin 737-25-1707, Revision 1, dated May 18, 
2018, clearly identifies a serviceable lanyard assembly, and the white 
mark is an important part of that definition. We have not changed this 
AD in this regard.

Request To Provide More Details on PSU Removal and Installation

    AAL requested that the Boeing 737NG Aircraft Maintenance Manual 
(AMM) 25-23-61 provide more detailed instructions for removing and 
installing the PSU. AAL noted that Boeing Service Bulletin 737-25-1707, 
Revision 1, dated May 18, 2018, provides detailed instructions for 
attaching the lanyard clip to the PSU rail, but the AMM does not 
provide the same level of instructions. We infer that the commenter is 
asking us to require Boeing to update the AMM to provide more details.
    We acknowledge the commenter's request. The AMM is identified as an 
affected publication in Boeing Service Bulletin 737-25-1707, Revision 
1, dated May 18, 2018; however, this AD does not require compliance 
with the AMM, and the AMM is not part of an RC step in the service 
bulletin. The AMM is referred to as one source of information for 
removing and installing the PSU, but as noted in paragraph (i)(4)(ii) 
of this AD, operators may rely on their own accepted methods in 
accordance with the operator's maintenance or inspection program for 
those steps. In addition, Boeing Service Bulletin 737-25-1707, Revision 
1, dated May 18, 2018, provides adequate details to address the unsafe 
condition in this AD. Therefore, we have not changed this AD in this 
regard.

Request To Revise the Costs of Compliance

    AAL stated that Boeing Service Bulletin 737-25-1707, dated 
September 24, 2015, provided a work-hours task total of 1.35 work-hours 
per PSU. The commenter added that Boeing Service

[[Page 7268]]

Bulletin 737-25-1707, Revision 1, dated May 18, 2018, increased the 
scope of work done on the PSU, but reduced the work-hours task total to 
0.4 work-hours per PSU. We infer that the commenter is suggesting that 
the work-hour estimates should be revised in the final rule.
    We agree to clarify the Costs of Compliance section of this AD. 
Boeing Service Bulletin 737-25-1707, Revision 1, dated May 18, 2018, 
separates the work-hour estimates into multiple tables based on group 
configurations and the type of work to be done. Adding all of the work-
hours from the applicable tables for a given configuration, the total 
work-hours estimate is higher for certain configurations. Therefore, 
the estimated costs in this AD represent the highest work-hours and 
parts cost for all configurations. We have not changed this AD in this 
regard.

Conclusion

    We reviewed the relevant data, considered the comments received, 
and determined that air safety and the public interest require adopting 
this final rule as proposed, except for minor editorial changes. We 
have determined that these minor changes:
     Are consistent with the intent that was proposed in the 
SNPRM for addressing the unsafe condition; and
     Do not add any additional burden upon the public than was 
already proposed in the SNPRM.

Related Service Information Under 1 CFR Part 51

    We reviewed Boeing Service Bulletin 737-25-1707, Revision 1, dated 
May 18, 2018. This service information describes procedures for 
modifying the PSUs and life vest panels by replacing the existing 
inboard lanyard and installing two new lanyards on the outboard edge of 
the PSUs and life vest panels, measuring the distance between the hooks 
of the torsion spring of the lanyard assembly, replacing any discrepant 
lanyard assemblies, and re-identifying serviceable lanyard assemblies. 
This service information is reasonably available because the interested 
parties have access to it through their normal course of business or by 
the means identified in the ADDRESSES section.

Costs of Compliance

    We estimate that this AD affects 2,015 airplanes of U.S. registry. 
We estimate the following costs to comply with this AD:

                                                                     Estimated Costs
--------------------------------------------------------------------------------------------------------------------------------------------------------
               Action                          Labor cost                Parts cost           Cost per product             Cost on U.S. operators
--------------------------------------------------------------------------------------------------------------------------------------------------------
Measurement and modification........  Up to 75 work-hours x $85    Up to $11,760.........  Up to $18,135.........  Up to $36,542,025.
                                       per hour = Up to $6,375.
--------------------------------------------------------------------------------------------------------------------------------------------------------

    According to the manufacturer, some or all of the costs of this AD 
may be covered under warranty, thereby reducing the cost impact on 
affected individuals. We do not control warranty coverage for affected 
individuals. As a result, we have included all known costs in our cost 
estimate.

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.
    This AD is issued in accordance with authority delegated by the 
Executive Director, Aircraft Certification Service, as authorized by 
FAA Order 8000.51C. In accordance with that order, issuance of ADs is 
normally a function of the Compliance and Airworthiness Division, but 
during this transition period, the Executive Director has delegated the 
authority to issue ADs applicable to transport category airplanes and 
associated appliances to the Director of the System Oversight Division.

Regulatory Findings

    This AD will not have federalism implications under Executive Order 
13132. This AD will 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 this AD:
    (1) Is not a ``significant regulatory action'' under Executive 
Order 12866,
    (2) Is not a ``significant rule'' under 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.

Adoption of the Amendment

    Accordingly, under the authority delegated to me by the 
Administrator, the FAA amends 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):

2019-03-26 The Boeing Company: Amendment 39-19578; Docket No. FAA-
2016-9189; Product Identifier 2016-NM-114-AD.

(a) Effective Date

    This AD is effective April 8, 2019.

(b) Affected ADs

    None.

(c) Applicability

    This AD applies to all The Boeing Company Model 737-600, -700, -
700C, -800, -900, and -900ER series airplanes, certificated in any 
category, without a Boeing Sky Interior (BSI).

[[Page 7269]]

(d) Subject

    Air Transport Association (ATA) of America Code 25, Equipment/
furnishings.

(e) Unsafe Condition

    This AD was prompted by reports of passenger service units 
(PSUs) becoming detached from the supporting airplane structure in 
several Model 737 series airplanes during survivable accidents. We 
are issuing this AD to address PSUs and life vest panels detaching 
from the supporting airplane structure, which could lead to 
passenger injuries and impede passenger and crew egress during 
evacuation.

(f) Compliance

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

(g) Required Actions

    Within 60 months after the effective date of this AD, do all 
applicable actions identified as ``RC'' (required for compliance) 
in, and in accordance with, the Accomplishment Instructions of 
Boeing Service Bulletin 737-25-1707, Revision 1, dated May 18, 2018.

(h) Parts Installation Prohibition

    As of the applicable time specified in paragraph (h)(1) or 
(h)(2) of this AD, no person may install on any airplane a PSU or 
life vest panel, unless the lanyard assembly has been updated as 
required by paragraph (g) of this AD.
    (1) For airplanes that have PSUs or life vest panels without the 
updated lanyard assemblies installed: After modification of the 
airplane as required by this AD.
    (2) For airplanes that have PSUs or life vest panels with the 
updated lanyard assemblies installed: As of the effective date of 
this AD.

(i) Alternative Methods of Compliance (AMOCs)

    (1) The Manager, Seattle ACO Branch, 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 certification office, send it to the attention of the 
person identified in paragraph (j) 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, modification, or alteration 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 Branch, FAA, to make those findings. To be 
approved, the repair method, modification deviation, or alteration 
deviation must meet the certification basis of the airplane, and the 
approval must specifically refer to this AD.
    (4) For service information that contains steps that are labeled 
as Required for Compliance (RC), the provisions of paragraphs 
(i)(4)(i) and (i)(4)(ii) of this AD apply.
    (i) The steps labeled as RC, including substeps under an RC step 
and any figures identified in an RC step, must be done to comply 
with the AD. If a step or substep is labeled ``RC Exempt,'' then the 
RC requirement is removed from that step or substep. An AMOC is 
required for any deviations to RC steps, including substeps and 
identified figures.
    (ii) Steps not labeled as RC may be deviated from using accepted 
methods in accordance with the operator's maintenance or inspection 
program without obtaining approval of an AMOC, provided the RC 
steps, including substeps and identified figures, can still be done 
as specified, and the airplane can be put back in an airworthy 
condition.

(j) Related Information

    For more information about this AD, contact Scott Craig, 
Aerospace Engineer, Cabin Safety and Environmental Systems Section, 
FAA, Seattle ACO Branch, 2200 South 216th St., Des Moines, WA 98198; 
phone and fax: 206-231-3566; email: [email protected].

(k) Material Incorporated by Reference

    (1) The Director of the Federal Register approved the 
incorporation by reference (IBR) of the service information listed 
in this paragraph under 5 U.S.C. 552(a) and 1 CFR part 51.
    (2) You must use this service information as applicable to do 
the actions required by this AD, unless the AD specifies otherwise.
    (i) Boeing Service Bulletin 737-25-1707, Revision 1, dated May 
18, 2018.
    (ii) [Reserved]
    (3) For service information identified in this AD, contact 
Boeing Commercial Airplanes, Attention: Contractual & Data Services 
(C&DS), 2600 Westminster Blvd., MC 110-SK57, Seal Beach, CA 90740-
5600; telephone 562-797-1717; internet https://www.myboeingfleet.com.
    (4) You may view this service information at the FAA, Transport 
Standards Branch, 2200 South 216th St., Des Moines, WA. For 
information on the availability of this material at the FAA, call 
206-231-3195.
    (5) You may view this service information that is incorporated 
by reference at the National Archives and Records Administration 
(NARA). For information on the availability of this material at 
NARA, call 202-741-6030, or go to: http://www.archives.gov/federal-register/cfr/ibr-locations.html.

    Issued in Des Moines, Washington, on February 14, 2019.
Michael Kaszycki,
Acting Director, System Oversight Division, Aircraft Certification 
Service.
[FR Doc. 2019-03408 Filed 3-1-19; 8:45 am]
 BILLING CODE 4910-13-P