FAA-INDUSTRY TRAINING STANDARDS (FITS)

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PLAN

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EXECUTIVE SUMMARY

General aviation constitutes a significant majority of the civil
aircraft fleet in the United States and performs a variety of critical
functions ranging from flight training for most pilots to medical
evacuation, small package delivery, fractional ownership, business
transportation, agricultural operations, and law enforcement among
others. Increasingly, general aviation is also providing a viable air
transportation complement to the air carrier "hub and spoke" system.
Corporate aviation and on-demand air taxis have provided such service
for some time and new forms of general aviation are expanding these
alternatives.

General aviation safety has been improving continuously for nearly 25
years and accidents continue to decrease even as activity increases. The
leading causes of general aviation fatal accidents are related to
weather and loss of control. If general aviation growth becomes even
more pronounced, a major challenge for the community will be to decrease
accident rates to maintain and increase public acceptability of general
aviation as an alternative form of air travel.

Many new developments have taken place that will have a pronounced
effect on general aviation flight operations and, consequently, general
aviation training. For example, the complexity of the airspace will
increase as the National Airspace System (NAS) is modernized and the
FAA's Operational Evolution Plan (OEP) takes effect. Similarly, new
airspace and other operational changes will also be inevitable to
accommodate aviation security concerns following the terrorist attacks
of September 11, 2001. These changes will be magnified as new cockpit
and other flight technologies are introduced. New technologies and
aircraft are always being developed and brought to market. New and
innovative ways to train need to be developed to be able to train a
safer pilot with less time and cost. With older technology systems, it
did not matter who built the system since they all functioned and looked
similar. However, with new technology, systems that perform similar
functions may not look alike and pilot interaction with these systems
may be completely different. Consequently, a "one-size-fits-all"
approach to training may no longer be adequate.

The FITS program seeks to use an evolutionary approach to change that is
responsive to the pace of development in the general aviation community.
As new technology and aircraft are being developed the FAA will identify
future training needs. FAA-Industry Training Standards (FITS) program
will develop training product and guidelines appropriate to the needs of
the customers.

The FITS program is under the Safer Skies program and compliant with
Challenge 2000 and OMB Circular A-119, [Federal Participation in the
Development and Use of Voluntary Consensus Standards and in Conformity
Assessment Activities]{.underline}. The FITS program is a collaboration
of FAA, industry (manufacturers, training providers, universities,
insurance companies, trade associations, etc) and the General Aviation
Center of Excellence which seeks an evolutionary approach to change that
is responsive to the pace of development in the general aviation
community. The FITS program will work to develop standards that comply
with the flexibility of the current rules, and regulations.

One important element of FITS is the inherent opportunity for parties to
share information and build on each other's experience. Products
produced under the FITS program will be made available to the general
public via the FAA web. Knowledge sharing within the industry will be
one of the corner stones of the FITS program.

**1. PURPOSE**

Very simply, the purpose of this program is to ensure that general
aviation pilots have access to up-to-date and pertinent information and
training programs for their situation. New developments continue to take
place that will have a pronounced effect on general aviation flight
operations and, consequently, general aviation training. Among them are:

-   The complexity of the airspace will increase as the NAS is
    modernized and the FAA's Operational Evolution Plan (OEP) takes
    effect. These changes will be magnified as new cockpit and other
    flight technologies are introduced and advanced airspace concepts
    such as Free Flight emerge.

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-   New airspace and other operational changes will also be inevitable
    to accommodate aviation security concerns following the terrorist
    attacks of September 11, 2001.

-   New small general aviation aircraft, systems and technologies that
    do not fit neatly into the currently approved training programs are
    being produced faster than the FAA's resources can react to them.

-   New technology systems that perform similar functions may not look
    alike and pilot interaction with these systems may be completely
    different. With older technology systems, it did not matter who
    built the system, they all functioned and looked similarly. The
    current training approach may not be adequate for these new flight
    and operational systems.

> Finally, the FITS program will work with general aviation industry
> leaders to produce training standards that account for the current and
> future NAS and aviation technologies. These standards will be made
> available to the public on the FAA web site.
>
> This program has many expectations. Among them are:

-   Maintain at least an equivalent level of safety

-   Train single pilot operations in turbine powered aircraft to operate
    at the same level of safety as a two pilot crew in air
    transportation

-   Develop and prove a training program that is innovative and more
    effective and goes beyond the current training programs available.

-   Set a new standard for the insurance industry

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-   Training should be real-world scenario based, problem solving and
    case study training with definable metrics for evaluation on
    aeronautical decision making, information management and risk
    management.

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-   Write new terminology, tasks, standards and curriculum

-   A new standard for single pilot, transportation operation (piston &
    jet)

-   A single standard for operations in RNP airspace operating to new
    destinations

-   A way to collect and share best practices for all users

**2. GOALS**

> FITS is an ongoing program. Aviation is constantly changing and new
> technologies and aircraft are continually being developed and brought
> to market. Regulations and standards change. New and innovative ways
> to train need to be developed for the purpose of both initial training
> and for keeping pilots flight current in less time with less cost.
> With older technology systems, it did not matter who built the system,
> they all functioned and looked similarly. New technology systems that
> perform similar functions may not look alike and pilot interaction
> with these systems may be completely different. Consequently,
> "one-size-fits-all" approach to training may not be adequate for these
> flight and operational systems. The FITS program seeks an evolutionary
> approach to change that is responsive to the pace of development in
> the general aviation community. Consequently, when new needs arise the
> FITS program will develop training products appropriate to the needs
> of the customers.
>
> FITS will have initial, intermediate, and long term products. Initial
> products will be developed for the launch customers (Elite Flight
> Center and Eclipse Aviation). Intermediate and long term products are
> as yet unspecified. The future products list is an estimate of what
> may be required in the future.
>
> FITS FOCUS.
>
> The FITS program will focus on technically advanced small
> reciprocating and jet powered (12,500 lbs. Maximum gross takeoff
> weight) aircraft that is owner of professionally flown for
> transportation. Commercial operators (air carriers and charter
> operators) have stringent training requirements. Operators of 2-pilot
> business jets already have a safety record nearly equal of air
> carriers. Sport and recreational pilots have their own training and
> certification standards. They also are restricted in the airspace
> which they can fly and the number of passengers they can carry. This
> should reduce their exposure to risk. An example of where the FITS
> program is concentrated is a businessman using a technically advanced
> aircraft (TAA) as a transportation tool. For the purposes of FITS, a
> TAA is an aircraft that contains GPS navigator with a moving map, plus
> any additional systems. Traditional systems such as autopilots when
> combined with GPS navigators are included. It includes aircraft used
> in both VFR and IFR operations, with systems certified to either VFR
> or IFR standards. Note: there will be application to non-TAAs.
>
> CATEGORIES OF FITS PRODUCTS
>
> The FITS program will be implemented administratively. New rulemaking
> will be the last resort. Normally FITS will use the flexibility
> already in the CFRs to administer training standards. There are three
> categories of FITS standards. The first two are not regulatory in
> nature but are advisory and describe one means for how training,
> endorsements, and checking can be accomplished. The third category
> uses a regulation already in place for the use of a FITS standard.
> Those categories are:

1.  [GENERIC FITS FOR THE USE BY THE GENERAL AVIATION COMMUNITY AS A
    WHOLE]{.underline}. Generic standards will be developed for a broad
    category of training functions such as the flight review, complex
    and high performance training, and other function. Individual
    training entities may adapt them for a particular aircraft or other
    scenarios. Whenever possible, incentive mechanisms will be
    incorporated into the standard. A directory scheme will be developed
    for the FAA web site access and a separate FITS "user manual" will
    be developed and included in the catalog.

2.  [SPECIFIC FITS FOR PROGRAM A SPECIFIC AIRCRAFT OR
    TECHNOLOGY]{.underline}. Specific standards will be initially
    developed in partnership with Eclipse Aviation, Cirrus Designs/Elite
    Air Center, and the General Aviation Center of Excellence. They will
    prototype and implement initial, transition, recurrent, and flight
    instructor training requirements of their customers and flight
    operations. Incentive mechanisms in these programs will include
    regulatory incentives within the current CFR (i.e. 141.57, Special
    curricula) as well as industry incentives such as insurance.
    Development will be in conjunction with certification under 14 CFR
    part 142 (eclipse) and Part 141 (Elite Flight Center).

> Future specific FITS are expected to be developed as new aircraft and
> new technologies are developed. For example a specific FITS might be
> developed to train a pilot on a specific display or capability the
> pilot has retrofitted into his or her aircraft.

3.  [MANDATORY FITS STANDARDS IN ACCORDANCE WITH 14 CFR SECTION
    61.31(h)]{.underline}. In rare instances, the FAA may elect to
    invoke 14 CFR §61.31(h) to require aircraft type specific training
    for aircraft with unusual operating characteristics, flight systems,
    or for aircraft with sever safety issues. Because of the regulatory
    implications of this FITS, to implement this provision, notice
    and/or public comment would normally be required through the Federal
    Register. Promulgation could be through an amendment to the aircraft
    flight manual, which refers to the FITS standard directory.
    Initially there are only two such designation contemplated.

-   Robertson R-22/R-44. SFAR 73 requires special training and
    experience, above that of 14 CFR part 61, to operate a Robertson
    R-22 or R-44 helicopter. This SFAR is set to expire December
    31, 2002. A FITS standard, as described above would replace SFAR 73.
    Public notice would be required, but comment may not be required
    because the contents of SFAR 73 would merely be incorporated in the
    FITS standard.

-   Mitsubishi MU-2. Mitsubishi Heavy Industries America has requested
    that the FAA required a type rating for the MU-2. There is currently
    an Airworthiness Directive mandating icing awareness training for
    pilots. Data indicates that a FITS standard would be desirable
    because of the aircraft's unusual characteristics and high
    performance. Public notice and comment through the Federal Register
    would be required.

> INITIAL GENERAL SUPPORTING PRODUCTS:

-   Established FITS web presents

-   Establish template for FITS products

-   Publish Advisory Circular on FITS

> SHORT TERM PRODUCTS:
>
> The FITS launch customers are Elite Flight Center and Eclipse.

-   [Elite Flight Center]{.underline} is developing an owner pilot
    shared ownership program using the Cirrus SR-22. Elite Flight Center
    products include:

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-   14 CFR part 141 pilot school certification

-   Ab-initio private pilot certificate with an instrument rating course
    (under their part 141 pilot school certificate)

-   Instrument course for pilots who already hold at least a private
    pilot certificate (under their part 141 pilot school certificate)

-   Flight evaluation program for pilots that already hold at least a
    private pilot certificate with an instrument rating to determine
    what training is required to ensure AirShares Elite pilots can
    safely operate the SR-22

-   A modular training system that can be customized to the skill and
    knowledge of the pilot. This training is specifically for the
    owner-pilot fractional owner transitioning to the Cirrus SR-22.
    (Given the somewhat conflicting demands of varying pilot
    qualifications and aircraft configuration and the need for
    standardized, reproducible training, a modular program appears to be
    the best option. Modularity allows instructors to customize the
    curriculum to anticipated student need and then fine-tune it during
    delivery. It also allows the instructor to rearrange the lesson
    schedule to account for weather or other unavoidable delays.)

-   Currency requirements specific to the Cirrus SR-22

-   Recurrent training program

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-   Eclipse Aviation is developing a six-place, twin-turbofan aircraft
    powered by Williams International jet engines. The Eclipse Aviation
    program schedule is for the Eclipse aircraft to be type certificated
    in December 2003. Eclipse products include:

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-   14 CFR part 142 training center certification

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-   Evaluation testing program to determine the extent of training a
    prospective pilot will need to determine what training is required
    to ensure Eclipse pilots can meet the type rating requirements and
    safely operate the Eclipse 500.

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-   Training program modules for all pilots depending on their need
    (determined by the evaluation testing program above)

-   Training program similar to the air carrier Line Oriented Flight
    Training (LOFT) program

-   Recurrent training program

-   Currency requirements

-   Type rating training program

> In addition to the products specifically for these launch customers,
> FAA certification support will be required. Consequently, additional
> short-term products will be:

-   Aviation Safety Inspector training/guidance

-   Appropriate changes to the FAA Practical Test Standards

-   Designated Examiner guidance

> FUTURE PRODUCTS:

-   Transition training

-   Type specific aircraft training

-   Type rating training

-   Special training (i.e. R-22, MU-2)

-   Recurrent training

-   Currency requirements

-   Equipment training (i.e. GPS, HITS, MFD/PFD, SVS)

-   Specific avionics equipment training

-   Ab-initio training for professional pilots

-   Ab-initio training for non-professional (enthusiast) pilots

-   First officer training

-   Designated examiner/FAA inspector training

-   Flight instructor renewal

-   Possible 14 CFR part 135 training

> It must be stressed that, although the FAA is directly involved, the
> products developed by the FITS program are industry standards (or
> voluntary consensus standards, see section 3(e) of this program plan),
> not FAA policies. It is **not** the intent of the FITS program to
> develop or establish FAA policies. The FITS program will develop
> standards that comply with the rules, regulations, and policies
> already in place. The FAA will help develop these standards and make
> them available to the public to improve aviation safety.
>
> Finally, many FITS products would be useless in the FAA inspector and
> designated examiner workforce does not have the knowledge or expertise
> to apply the standards. Consequently, the FAA is chartering an
> internal group that will work on training and guidance for FAA
> inspectors and designated examiners.

**3. BACKGROUND.**

> **a. General**
>
> General aviation constitutes a significant majority of the civil
> aircraft fleet in the United States and performs a variety of critical
> functions ranging from flight training for most pilots to medical
> evacuation and law enforcement. Increasingly, general aviation is also
> providing a viable air transportation complement to the air carrier
> "hub and spoke" system. Corporate aviation and on-demand air taxis
> have provided such service for some time now and new forms of general
> aviation are expanding these alternatives.
>
> General aviation safety has been improving continuously for nearly 25
> years and accidents continue to decrease even as activity increases.
> The leading causes of general aviation fatal accidents are related to
> weather and loss of control. If general aviation growth becomes even
> more pronounced, a major challenge for the community will be to
> decrease accident rates to maintain and increase public acceptability
> of general aviation as a form of air travel.
>
> **b. New Technologies**

Many new developments have taken place that will have a pronounced
effect on general aviation flight operations and general aviation
training.

-   The complexity of the airspace will increase as the NAS is
    modernized and the FAA's Operational Evolution Plan (OEP) takes
    effect. These changes will be magnified as new cockpit and other
    flight technologies are introduced and advanced airspace concepts
    such as Free Flight emerge.

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-   New airspace and other operational changes will also be inevitable
    to accommodate aviation security concerns following the terrorist
    attacks of September 11, 2001.

-   New small general aviation aircraft, systems and technologies that
    do not fit neatly into the currently approved training programs are
    being produced faster than the FAA's resources can react to them.

-   New technology systems that perform similar functions may not look
    alike and pilot interaction with these systems may be completely
    different. Current training may not be adequate for these new
    systems.

> General aviation will be impacted positively by the introduction of
> new aircraft, new technologies, and new approaches to shared ownership
> of these aircraft. The general flying public, especially those who are
> not pilots but seek air travel alternatives to the airlines, are
> currently benefiting from fractional ownership schemes. Similar
> owner-pilot shared ownership programs are emerging for pilots who wish
> to use small piston engine aircraft. The emergence of new lower cost
> turbine aircraft could benefit both groups.
>
> The common denominator in all these changes is the need to have an
> adaptable flight training system that will not only maintain but also
> greatly improve the safety and utility of general aviation flight
> operations. As mentioned above, current training paradigm may not be
> adequate to train pilots in new technology aviation systems and
> aircraft. To accomplish this challenging goal, it is necessary to
> examine such training in the context of both the current general
> aviation system safety environment as well as emerging changes in
> system safety philosophy. Modernized approaches to flight training
> systems, policies, and procedures can then be examined and a
> mitigation strategy devised.

c.  **The Current Regulatory and System Safety Environment For General
    Aviation**

> The FAA's mandate with regard to oversight of general aviation safety
> was originally contained in the Federal Aviation Act of 1958 and is
> currently contained in Title 49, United States Code. Section 44701 of
> Title 49 clearly allows, in fact, mandates that the FAA Administrator
> shall differentiate between air transportation (air carriers engaged
> in common carriage) and "other air commerce". With respect to air
> transportation, Section 44701 mandates that the FAA shall "consider
> the duty of an air carrier to provide service with the highest
> possible degree of safety in the public interest". Title 49 is silent
> on the standard to be applied to "other air commerce" but gives the
> FAA Administrator discretion in setting such a standard.
>
> The FAA, through policy directive, has established a standard for
> other air commerce in the Policy Statement of the Federal Aviation
> Administration (Order 1000.1A). Chapter 2 of that directive states, in
> part, that "...in regulating segments of aviation other than for hire,
> the FAA will pursue a regulatory policy that...balances the rights of
> individuals to accept personal risk against society's interest in the
> safety of the individual...limits the individual's right to incur risk
> when the exercise of that right creates a risk for others... regulates
> in a manner that recognizes the need to protect the public interest".
>
> Unfortunately, changing regulations and FAA policies is easier said
> than done. In 1995, the FAA Administrator commissioned a study of
> regulatory approaches needed for FAA to fulfill its future safety
> oversight responsibility in an era of exploding industry growth, great
> changes in flight technology, and static or declining resources. The
> cornerstone of this initiative, Challenge 2000, was a study conducted
> by a major national consulting firm. The study, concluded in 1997, had
> many findings. Paragraph 4-1.3, [Empower Rulemaking And Evolve To
> Performance Based Regulations]{.underline}, states "The current
> rulemaking process and the prescriptive nature of most of the FARs are
> neither responsive to the pace of change in the aviation environment,
> nor to granting industry the operational flexibility implied in the
> stratification program discussed above. This element of the change
> program requires three actions:

-   Provide rulemaking with greater visibility and top-level attention;

-   Move from a sequential process to one consistent with an integrated
    team; and

-   Evolve towards performance-based regulations.

> The first two actions are designed to address two major areas of
> concern regarding rulemaking at the FAA. First, there is consensus -
> among industry as well as within the FAA - that rulemaking is not
> given the high level management commitment it deserves, and that it
> suffers due to a lack of clear accountability. Second, the current
> process, with its average cycle time; to initiate, draft, and
> promulgate a rule; is almost four years. This can severely inhibit the
> pace of change in the regulated industry, since new technologies (for
> example, avionics software) may enter the market and even become
> obsolete in half this time.
>
> To carry out its statutory responsibilities with regard to safety, the
> FAA has established a safety oversight system. Until recently this
> system was based largely on a combination of regulations,
> certification (of air carriers and other air operators, airmen,
> aircraft, and other entities), inspection, surveillance, and
> enforcement. These functions were not correlated in a true system
> safety approach and other functions such as safety education,
> communication of safety information, best practice promulgation, and
> flight technology leverage served mainly as peripheral activities.
> Since about 1996, the FAA's Flight Standards Service has been
> developing a more holistic system safety approach for air carrier
> oversight. The FAA began developing a general aviation system safety
> model in 2000.
>
> It is important to note that, other than establishing the basic
> regulations for certification of aircraft, airmen, and some other
> entities, the level of FAA involvement in certification, inspection,
> surveillance, and enforcement of general aviation activities is only a
> fraction of that devoted to air carrier oversight. For example,
> industry designees, rather than FAA inspectors, perform virtually all
> airmen certification work. Accordingly, one may attribute the
> continually improving general aviation safety record to a combination
> of industry actions and FAA actions other than the oversight methods.
> These could, for example, include better industry training methods,
> the introduction of new flight technology, the impact of the FAA's
> Aviation Safety Program for educational seminars, and/or some other
> factors.
>
> The current regulatory infrastructure promulgated by FAA to support
> general aviation is contained in several parts of the Title 14 of the
> Code of Federal Regulations (14 CFR), but the ones most relevant to
> general aviation flight training and related activities are Part 61
> (Certification: Pilots, Flight Instructors, and Ground Instructors)
> and Part 141 (Pilot Schools). These regulations last received a major
> revision in 1997, as the second phase of a three-phase program to
> update them (the last comprehensive revision having occurred in 1973).
> The third phase of the regulatory review was to have addressed the
> impact of new flight technologies on general aviation certification
> and training. This phase is proceeding very slowly as a result of
> other rulemaking priorities.
>
> Actual general aviation ground and flight training are based on
> specific aeronautical knowledge, flight proficiency, and aeronautical
> experience requirements specified in Parts 61 and 141. The training is
> generally structured to prepare the applicant to pass both the
> knowledge test and the practical test specified in the CFRs. Some
> industry observers, FAA officials, and others believe this approach
> fosters a tendency to "teach to the test" rather than prepare
> applicants to operate safely in a complex NAS. Additionally, since the
> CFRs and practical test standards were developed based on older
> technology, the training a pilot received may not adequately train a
> student to operate new technologies (i.e. GPS, Glass cockpits with
> primary flight displays and multi function displays) installed in
> emerging aircraft.
>
> The FAA believes it has fulfilled its responsibility under Title 49 to
> establish minimum standards for "other air commerce", and a case can
> be made that this system has served us well up to this point. Emerging
> changes in system safety philosophy and changes in NAS flight
> procedures and in flight technologies may call for a new approach to
> flight training. For example, no good model exists for a program
> combining modern avionics training and aircraft transition training
> for light GA aircraft.
>
> The regulatory infrastructure is supported by a Guidelines, Standards
> and Certification (GSC) system comprising AC's, handbooks, test
> guides, Practical Test Standards (PTSs), and other materials. As
> described below, the state of currency of this guidance material
> varies. Several obstacles exist to keeping this system up-to-date and
> were covered earlier in this section.
>
> To describe the state of the current GSC system, it is helpful to
> subdivide the current system into categories, based on the regulatory
> requirements for initial pilot certification, currency, upgrade
> training, and other purposes. These categories are as follows.

1.  Pilot initial certification for a certificate or rating (knowledge
    test, practical test)

2.  Currency requirements (flight reviews, proficiency checks, other
    currency)

3.  Upgrade/transition requirements (type ratings, complex/high
    altitude/type specific)

4.  Flight instructors (initial certification, renewal)

5.  Pilot examiners (initial standardization, recurrent standardization)

6.  Pilot schools/14 CFR Part 141 (training course outlines, curricula,
    stage checks)

7.  Pilot schools/14 CFR Part 61 (syllabus)

8.  NAS operations (procedures, operating standards, etc.)

9.  14 CFR part 135 checks

> In some of these categories, for example, pilot initial certification,
> type ratings, and flight instructor/pilot examiner qualification, GSC
> material is current, although oriented towards passing the knowledge
> and practical tests rather than outlining a scenario-based training
> and testing approach. In the other categories, however, GSC documents
> are often out-of-date or non-existent. For example, GSC's for the
> flight review requirements were last updated in 1991 (AC 61-98A[,
> Currency and Additional Qualification Requirements for Certificated
> Pilots]{.underline}) and are probably obsolete. There are no FAA GSC's
> for transitioning to aircraft equipped with new technologies. There is
> also an issue regarding whether the existing GSC's are being used
> effectively or at all by the training community.
>
> The current system of GSC's has served the general aviation community
> well in supporting the training environment of yesterdays
> technologies. It is clear, however, that a new approach may be needed
> to GSC development for flight training and related functions in light
> of the issues discussed above relating to new system safety
> philosophy, an evolving general aviation industry, and a modernized
> NAS. Such a new approach might reflect the concepts of modernized
> flight training approaches.
>
> A new approach to training should be integrated and must be embraced
> by both the FAA and the general aviation community. The System Safety
> Approach for General Aviation (SAGA) is being developed emphasizing
> improved risk management, training and education, and proper use of
> technology should form the cornerstone of the strategy. Clearly, the
> current system of GSC's may not effectively and efficiently support
> such an evolution. Accordingly, a more flexible system of the FITS
> program may be needed to accomplish this.
>
> A FITS system developed over time in an evolutionary manner and in
> full partnership between the FAA and the general aviation community
> could target those functions most relevant to ensuring continued and
> improving general aviation safety in an evolving NAS. To be flexible,
> it should take advantage of the latest information technology to allow
> for rapid creation and revision of standards. By confining the scope
> of FITS to technical standards, rather than regulatory and policy
> issues, it should be possible to reduce or eliminate administrative
> and policy review, thus reducing product cycle time. To minimize use
> of static FAA resources, FITS development should be primarily
> undertaken by those elements of the general aviation community who
> will most benefit by them (instructors, manufacturers, training
> material vendors, insurance underwriters, pilot schools, etc.). The
> FAA's role is primarily in the areas of technical review and as
> repository for the standards. To ensure widespread awareness of and
> use of FITS, the FAA and industry in partnership will conduct a
> widespread outreach effort and develop incentives for training
> providers to use FITS. Examples of such incentives could include
> insurance benefits and reduced training times for those using the
> standards (as is done currently for 14 CFR Part 141 schools). This
> partnership approach is also being done in the development of the
> sport pilot program.
>
> Although this is an industry training standard, the FAA has a
> statutory oversight responsibility. FAA personnel in the field must be
> trained and knowledgeable in these standards. Consequently, the FAA is
> assembling an FAA FITS workgroup. This workgroup will evaluate FITS
> products and recommend appropriate training programs and guidance for
> Aviation Safety Inspectors and Designated Pilot Examiners.

**d. Associated Programs and Reports**

# *SAFER SKIES*

In 1998, the FAA announced a major initiative to achieve significant
reductions in fatal accidents by 2007. Concentrating its resources on
the most prevalent causes of aircraft accidents, Safer Skies uses a
disciplined, data driven approach to find root causes and determine the
best actions to break the chain of events that lead to accidents. Safer
Skies consists of two teams with similar goals to improve aviation
safety:

> The Commercial Aviation Safety Team (CAST) aims to reduce the
> commercial aviation accident rate by 80 percent by 2007. CAST focuses
> on the leading causes of commercial aviation fatalities:

-   Uncontained engine failures

-   Controlled flight into terrain

-   Approach and landing

-   Loss of control

-   Runway incursions

-   Weather (including turbulence)

The General Aviation Joint Steering Committee (GA JSC) aims to eliminate
the equivalent of an entire year's worth of accidents by 2007. This
committee focuses on the leading causes of general aviation accidents:

-   **Controlled flight into terrain**

CFIT is the event that occurs when an airworthy aircraft, under the
control of a qualified pilot, is flown into terrain (or water or
obstacles) with inadequate awareness on the part of the pilot of the
impending disaster. CFIT accidents account for 17 percent of all general
aviation fatalities. More than half of these CFIT accidents occurred
during Instrument Meteorological Conditions (IMC). FAA is working in
partnership with industry to develop an action plan, revise guidance
material and prepare a collective view to the NAS Modernization Plan.\
\
[Expected Outcome]{.underline}: Provide interventions that attack each
link in the chain of events leading to CFIT.

[FITS Application:]{.underline} New technologies (terrain displays,
etc.) are now being incorporated into small general aviation aircraft at
an affordable price. Terrain displays will give the pilot better
situational awareness, but only if the pilot understands what the
displays are showing. FITS will develop training programs to efficiently
use these new technologies.

-   **Weather**

> Weather-related accidents most often involve pilots only authorized to
> operate in Visual meteorological conditions (VMC) flyng into IMC;
> resulting in controlled flight into terrain or other objects; or loss
> of control due to spatial disorientation or structural failure of the
> aircraft. Accidents also involve weather as a contributing factor,
> such as improper Instrument Flight Rules (IFR) approaches and
> crosswinds or tailwinds on landings. Weather is the number one
> cause/factor cited in general aviation accidents and was the greatest
> contributor to the fatality rate. Numerous FAA/Industry partnership
> initiatives are underway to ensure more complete, more accurate, and
> more timely weather information, including the National Aviation
> Weather Strategic Plan and the Aviation Safety Program's educational
> programs for pilots.
>
> [Expected Outcome]{.underline}: Provide more accurate, current, and
> affordable weather information in a format that is clearly understood
> by pilots and to provide products in educating pilots on aviation
> weather.

[FITS Application:]{.underline} New technologies of weather in the
cockpit (both real time and forecasts) are becoming available in small
general aviation aircraft at an affordable price. Current training
programs do not address the use of this equipment. FITS will develop
training programs to efficiently use these new technologies.

-   **Pilot decision making:**

> Pilot decision making often is a fundamental element in accident
> causal chains, where a pilot did not make the best safety decision
> about a flying or non-flying situation. It is estimated that about 3/4
> of all fatal general aviation accidents are attributable to pilot
> performance. Pilots must work to improve communications between
> maintenance and controller personnel to gain more information in an
> effort to avoid an accident. Numerous FAA/Industry partnership
> initiatives to develop new material and explore new ways to reach
> pilots are underway.
>
> [Expected Outcome]{.underline}: Provide new decision aids and
> educational training and enhance the appropriate existing guidance
> material.

[FITS Application:]{.underline} New technologies (terrain displays,
weather in the cockpit (both real time and forecasts) displays, cockpit
display of traffic information (CDTI) etc.) will give the pilot better
situational awareness, and a more complete picture of what is happening
in the immediate area, along the route of flight, and at the
destination. This information can enhance pilot decision making, but
only if the pilot is trained and understands what the displays are
showing.

-   **Loss of control**

> Loss of Control refers to accidents resulting from situations in which
> the pilot should have maintained or regained aircraft control but did
> not. Many loss of control accidents occur when the pilot has divided
> their attention among mission-related activities, such as aerial
> applications, banner towing, or law enforcement and flying the
> aircraft. Maneuvering flight accidents account for 26 percent of fatal
> pilot-related accidents, most of which involve buzzing or other
> unauthorized low flight. Loss of control continues to be the most
> common type of fatal general aviation accident. FAA and industry will
> distribute training aids and improve the collection of accident data
> related to general aviation.
>
> [Expected Outcome]{.underline}: Broaden the data spectrum needed by
> pilots to enhance their ability to avoid or recover from loss of
> control.

[FITS Application:]{.underline} New technologies built into some new
aircraft will include anti-upset technology. Additionally, many loss of
control accidents are attributed to continued VMC into IMC. Some FITS
applications will be an ab-initio training program to obtain a private
pilot certificate with an instrument rating. Consequently, all pilots
trained under this product will have the proficiency and certification
to operate in IMC conditions.

-   **Survivability**

> Emphasis is on survivability improvements has been identified to
> reduce fatalities. FAA is working in partnership with industry to
> conduct research and develop safety initiatives that can improve
> survivability.
>
> [Expected Outcome]{.underline}: Reduce the number of fatalities
> incurred in survivable general aviation accidents.

[FITS Application:]{.underline} FITS is currently oriented toward to
pilot training, not aircraft construction. Although FITS has no direct
application to survivability, our propeller driven aircraft launch
customer is utilizing an aircraft (Cirrus SR-22) that comes standard
with a ballistic recovery system (parachute) that will lower the entire
aircraft to the ground when all alternatives to land the aircraft have
been exhausted. Training in the use of this survivability equipment is
required.

-   **Runway incursions**

> Any occurrence at an airport involving an aircraft, vehicle, person,
> or object on the ground that creates a collision hazard or results in
> loss of separation with an aircraft taking off, intending to take off,
> landing, or intending to land. The FAA is working with the aviation
> community to identify various educational programs and technological
> advances through which the current rate of incursions can be reduced.
>
> [Expected Outcome]{.underline}: Reduce accidents and incidents
> attributable to runway incursions.

[FITS Application:]{.underline} New display technologies coupled with
new navigation technologies (GPS, Wide Area Augmentation System and
Local Area Augmentation System, ADS-B and CDTI) are expected to
incorporate runway incursion mitigation technology. FITS will directly
support this program.

*CHALLENGE 2000*:

Within the aviation industry, the entire range of activities in aircraft
manufacturing and maintenance and in airline operation, ownership and
services is becoming increasingly complex. Major structural changes and
operating efficiencies are being brought about by rapidly developing
technologies, the globalization of aircraft design and production,
airline consolidation and changing patterns of world trade. These
developments will continue at a steady pace, while Federal government
resources are being constrained by the need to reduce deficit spending.
These increasing fiscal pressures are placing strains upon FAA
regulators to keep pace.

> The Office of Regulation and Certification (AVR) is responsible for
> implementing that portion of the FAA Charter that covers aviation
> safety regulation, and performs three primary activities to this end:
> certification of aircraft, development of flight operations standards
> and procedures, and management of the rulemaking process. AVR\'s
> responsibilities are central to all missions of the FAA, and as such,
> impact every aspect of the civil aviation industry. AVR has authored
> much of the aviation regulatory system that exists today. The
> regulatory system has slowly but relentlessly evolved, becoming both
> complex and, in part, antiquated. The current body of U.S. airline
> operating standards were written in an era when airlines were subject
> to regulation by the Federal government.
>
> Arising from a major aviation safety conference in 1995, one safety
> initiative recommended was a comprehensive review of all industry
> oversight procedures and programs. The FAA Administrator established
> the \"*Challenge 2000*\" Project with several objectives, including:

-   Finding an operational paradigm by which AVR can assist the industry
    to move toward zero accidents

-   Developing the necessary processes by which AVR can \"do more with
    less\".

Booz·Allen & Hamilton has analyzed the future aviation safety regulatory
environment, and working closely with the FAA\'s Challenge 2000 Senior
Executive Panel, with AVR and with the Administrator, has developed a
change program designed to reposition AVR for anticipated changes in the
environment it regulates. These recommendations call for sweeping
changes in AVR\'s regulatory philosophy and approach, its organization,
the deployment of its resources, and its mix of skills. But this must be
done within expected resources, with the intended consequence of
improving aviation safety nationally and internationally. The four
elements of the change program, which are an integrated set of mutually
supporting recommendations, include:

-   **Shifting roles and responsibilities of AVR and industry.** AVR
    will move to program level definition, design, and insertion of
    industry safety programs. AVR recognizes that some of the air
    carrier and manufacturing organizations it oversees presently exceed
    \"minimum standards\" as defined in the CFRs, and through proven
    safety records, are capable of a greater degree of self-regulation.
    Only by devoting fewer resources to the oversight of these
    organizations will AVR be able to shift its resources to other,
    generally smaller organizations that require more intensive
    oversight and direction. Consistent with this observation, the
    Challenge 2000 Project recommends a reallocation of the roles and
    responsibilities between AVR and certain segments of the industry it
    regulates.

    [FITS Application:]{.underline} The FITS program has Flight
    Standards (part of AVR) personnel working with industry to develop
    training standards that will be above the "minimum standards" as
    defined by the CFRs since some of the standards are antiquated due
    to new technologies brought to the aviation market.

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-   **Deploying functional resources through \"Centers of
    Excellence\".** AVR\'s current mix and deployment of skills reflects
    the needs of the aviation industry as it existed when AVR was
    formed. The air carrier industry is becoming more sophisticated in
    its operations, and is in the midst of globalization. Evolution in
    aircraft technologies such as structures and materials has slowed,
    while computer hardware and information technologies to include
    state-of-the-art multi-national satellite CNS/ATM systems are now
    rapidly evolving. The Challenge 2000 Project recommends a broad
    overhaul of the structure and technological capabilities that reside
    in AVR through the adoption of \"Centers of Excellence\" (CoEs) as
    AVR\'s new delivery mechanism, each employing a substantial number
    of industry safety experts and National Resource Specialists.
    Detailed recommendations include the establishment of a new aviation
    information technology CoE, and an international safety regulatory
    CoE.

    [FITS Application]{.underline}: The GA CoE has been established.
    FITS will work directly with the GA CoE, leveraging its resources to
    produce customer oriented training programs. The FAA lead in the
    FITS program is expected to be a National Program Manager (National
    Resource Managers are being phased out).

-   **Empowering rulemaking and evolving to performance-based
    regulations.** The current system of FAA regulations and procedural
    handbooks is inflexible and inefficient, and not well positioned for
    the future environment. The rulemaking process takes too long and
    discourages widespread industry involvement. The Challenge 2000
    Project recommends that these problems be addressed by redesigning
    the rulemaking process, employing and integrating the focused
    capabilities of the new CoE, and by moving to performance-based
    regulations wherever appropriate.

    [FITS Application:]{.underline} Initially, no rule changes are
    required to implement FITS. FITS will work within the flexibility of
    the rules to develop training standards that meet the needs of the
    aviation community. Future FITS products may require changes to the
    regulations.

-   **Resizing and restructuring AVR for the new mission and operating
    model.** The changes in roles and the needed delivery mechanism of
    AVR require a general reengineering of the organization and its
    processes. This reengineering will also allow AVR to institute
    improved work force skills and processes throughout the
    organization, and to utilize information and automation technology
    to increase efficiency and industry safety. The Challenge 2000
    Project recommends that a comprehensive process reengineering
    program be implemented, and that regulations governing these
    processes be revised to fit the new mission and operating model.

> [FITS Application:]{.underline} Resizing and restructuring AVR for the
> new mission and operating model is not a FITS application. The FITS
> program does not have the authority to resize or restructure AVR.

### e. OMB Circular A-119

On February 10, 1998 the Office of Management and Budget published OMB
Circular A-119, [Federal Participation in the Development and Use of
Voluntary Consensus Standards and in Conformity Assessment
Activities]{.underline}. This Circular establishes policies to improve
the internal management of the Executive Branch. Consistent with Section
12(d) of P.L. 104-113, the \"National Technology Transfer and
Advancement Act of 1995\" (hereinafter \"the Act\"), this Circular
directs agencies to use voluntary consensus standards in lieu of
government-unique standards except where inconsistent with law or
otherwise impractical. It also provides guidance for agencies
participating in voluntary consensus standards bodies and describes
procedures for satisfying the reporting requirements in the Act. The
policies in this Circular are intended to reduce to a minimum the
reliance by agencies on government-unique standards.

Many voluntary consensus standards are appropriate or adaptable for the
Government\'s purposes. The use of such standards, whenever practicable
and appropriate, is intended to achieve the following goals:

> a\. Eliminate the cost to the Government of developing its own
> standards and decrease the cost of goods procured and the burden of
> complying with agency regulation*.*

b\. Provide incentives and opportunities to establish standards that
serve national needs.\
c. Encourage long-term growth for U.S. enterprises and promote
efficiency and economic competition through harmonization of standards.\
d. Further the policy of reliance upon the private sector to supply
Government needs for goods and services.

> The FAA is using the voluntary consensus standard in the development
> of the sport pilot program.

The FITS program is consistent with this circular.

**4. SCHEDULE:**

> **General:**
>
> FITS is an ongoing program. Aviation is constantly changing. New
> technologies and aircraft are always being developed and brought to
> market. Regulations and standards change. New and innovative ways to
> train are developed for the purpose of training and keeping current a
> pilot in less time with and lower cost. Consequently, when new needs
> arise the FITS program will develop a schedule to develop an
> appropriate training product.

**Launch Customers:**

[Elite Flight Center]{.underline}:

4^th^ quarter 2002-

-   Initial meeting (complete)

-   Secure funding (complete)

> 1^st^ quarter 2003-

-   Formal agreement between FAA, Elite Flight Center and the CoE on
    what products should be produced. (complete)

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-   Initial training program for all pilots who already hold at least a
    private pilot certificate with an instrument rating.

-   Recurrent training program

-   Currency requirements

-   Ab-initio training program

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-   Develop initial required materials (application, training course
    outline, pilot school manual, etc.) needed to apply for a 14 CFR
    part 141 pilot school certificate (complete)

-   Apply for a 14 CFR part 141 pilot school certificate. (Complete)

> 2^nd^ quarter 2003-

-   Complete initial draft of training required for pilots that already
    hold at least a private pilot certificate with an instrument rating

-   Complete initial draft for recurrent training program

-   Determine currency requirements

-   Complete the certification process and be issued a 14 CFR part 141
    pilot school certificate

> 3^rd^ quarter 2003-

-   Begin training of pilots

[Eclipse:]{.underline}

4^th^ quarter 2002

-   Initial meeting (complete)

-   Secure funding (complete)

> 1^st^ quarter 2005-

-   Formal agreement between FAA, Eclipse and the CoE on what products
    should be produced.

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-   Evaluation testing program to determine the extent of training a
    prospective pilot will need

-   Training program modules for all pilots depending on their need
    (determined by the evaluation testing program above)

-   Loft training program

-   Recurrent training program

-   Currency requirements

-   1^st^ draft of the type rating curriculum March 31, 2005

> 2^nd^ quarter 2005-

-   Develop draft evaluation testing program to determine the extent of
    training a prospective pilot will need

-   Develop initial draft for recurrent training program

-   Begin to develop materials required for the application of a 14 CFR
    part 142 training center certificate

> 3^rd^ quarter 2004-

-   Complete type rating training program

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-   Develop initial required materials (application, training course
    outline, pilot school manual, etc.) needed to apply for a 14 CFR
    part 142 Training Center certificate

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-   Apply for a 14 CFR part 142 Training Center certificate

-   Develop evaluation system to ensure effectiveness and efficiency of
    the training program

> 4^th^ quarter 2005-

-   Begin initial type rating training

-   Begin applying evaluation system

**5. ORGANIZATIONS INVOLVED IN FITS**

> The FITS program will continue to evolve with the evolution of
> aviation technology. As new technologies are brought to market by
> different developers and venders, organizations and customers in the
> FITS program will change. When new needs arise the FITS program will
> develop training product appropriate to the needs of the customers.
> The following is a partial list of types of organizations that may, at
> one time or another, be involved in the FITS program:

-   FAA:

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-   Flight Standards (FITS leader)

-   FITS Work Group

-   FITS Oversight Committee

-   Aircraft Engineering (AIR)

-   Small Airplane Directorate (ACE)

-   Aircraft Certification Office (ACO)

-   Office of Aviation Research (AAR)

-   FAA Regional Office Personnel

-   FAA Flight Standards District Office Personnel

-   Office of Aerospace Medicine (AAM)

-   Capstone Program

-   Free Flight Program

-   Aviation Safety Program

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-   GA CoE

-   Training providers

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-   Pilot schools

-   Training centers

-   Flight instructors

-   Designated examiners

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-   Aircraft Manufacturers

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-   Eclipse Aviation

-   Cirrus Design

-   Cessna

-   New Piper

-   Safire Aircraft

-   Diamond Aircraft

-   Adam Aircraft

-   Lancair

-   Raytheon

-   Pilatus Aircraft

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-   Avionics Manufacturers

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-   Garmin

-   Bendix/King

-   Avidyne

-   Goodrich

-   RNAV

-   UPS/AT

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-   Other Manufacturers

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-   S-TEC

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-   Insurance providers

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-   Universities

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-   Embry-Riddle Aeronautical University

-   University of North Dakota

-   Florida A&M

-   University of Alaska

-   Wichita State University

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-   Trade Associations

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-   National Business Aviation Association

-   National Air Transportation Association

-   Helicopter Association International

-   General Aviation Manufacturers Association

-   Small Aircraft Manufacturers Association

-   Aircraft Owners and Pilots Association

-   Experimental Aircraft Association

-   National Association of Flight Instructors

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-   Courseware Developers

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-   Jeppesen

-   Electronicflight Solutions

-   Gliem Publications

-   King

-   Aviation Supplies & Academics, Inc, (ASA)

-   University of North Dakota

-   Embry-Riddle Aeronautical University

-   StarMedia

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-   Training Centers

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-   Flight Safety

-   Simuflite

-   Simcom

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-   Others

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-   National Weather Service

-   Training Device Manufacturers

-   Personal Computer Aviation Training Device (PCATD) Manufacturers

-   NASA

-   State Aviation Administrations

::: Definition-Term
**6. FITS Oversight Committee and FITS Workgroup**
:::

> Within the FITS structure two organizations have been formed. These
> organizations are:

-   The FITS Oversight Committee. This committee has been established to
    provide industry oversight guidance to FAA and the FITS team on the
    FITS Program Plan, team goals and methodology, and schedule and
    tasking. The committee consists of representatives from the FAA,
    General Aviation Manufacturers Association, Small Aircraft
    Manufacturers Association, Aircraft Owners and Pilots
    Association-Air Safety Foundation, and National Air transportation
    Association.

-   FITS Workgroup. This FAA internal work group will evaluate the
    products FITS program is producing, and develop and recommend
    appropriate training programs and guidance for Aviation Safety
    Inspectors and Designated Pilot Examiners. The workgroup may also
    provide recommendations to AFS-800/500 on products developed and
    provide recommendations to support new FITS products to be
    developed. FITS Workgroup members include AFS-800, AFS-500, PASS,
    and field inspector subject matter specialist.

**7. PROMULGATION AND PUBLISHING**

A process for institutionalizing the FITS program needs to be developed
during the initial prototyping period. In fact, due to the rapid
development and expansion of high technology training aids (Flight
Training Devices, Personal Computer Flight Training Devices, advanced
training aids), institutionalizing and developing a FITS web presents
may be priority. Most of the prototyping will take place with the
"launch customers" (Eclipse Aviation and Cirrus/Elite Air Center). The
prototyping will take place largely during FY 2003. Institutionalizing
includes a convention for designing/issuing FITS standards and a scheme
for publishing and making the standards accessible to the aviation
community.

**8. FUNDING AND RESOURCES**

> The FITS program is a collaboration between the FAA and industry. OMB
> Circular states "Agencies should recognize the positive contribution
> of standards development and related activities. When properly
> conducted, standards development can increase productivity and
> efficiency in Government and industry, expand opportunities for
> international trade, conserve resources, improve health and safety,
> and protect the environment." Additionally, other collaborative
> efforts between the government and industry which the FAA has been
> involved in (i.e. Aviation Rulemaking Advisory Committee, and the
> Advanced General Aviation Transport Experiment) has demonstrated that
> these types of collaboration programs can develop effective products
> at a fraction of what it would cost if any one organization would try
> to develop that product alone.

The FITS program is part of the Safer Skies program and initially, will
get its funding from that program. The money will be leveraged by
working with the program partners through the GA CoE. It is expected
that the launch customers will match at least dollar for dollar the FY
2002 and FY 2003 funding provided by the FAA. The FY 2002 grant number
is 01-C-GA-ERAU-02, the FITS amendment number is 25.