-Tc: ; BEFOR £ TH E DEPARTMEN T O F TRANSPORTATIO N

WASHINGTON , D.C .

Nondiscriminatio n o n th e Basi s o f Disabilit y i n Ai r

Travel ; Fina l Rul e Docke t OST-2008-027 3

APPLICATIO N O F AEROViA S DE L CONTINENT S AMERICAN O S A AVIANC A FO RA N EOUIVALEN T ALTERNATIV E DETERMINATIO N

Communication s wit

h respec t t o thi s documen t

shoul db e sen t

to : Richar dD . Mathia s Davi dM . Endersbe e ZUCKERT , SCOUT T & RASENBERGER , L.L.P . 88 8 17"'Street , N.W . Washington , D.C . 2003 6 Tel : 202-298-866 0 Fax : 202-342-068 3 Email : rdmathias@zsrlaw.co m dmendersbee@,zsrIaw.co m Counse l for

Aerovla s de l Continent e American o S A Avianc a Apri l 9 , 201 0

04^21/201 0

### BEFOR E TH E DEPARTMEN T O F TRANSPORTATIO N WASHINGTON , D.C .

Nondiscriminatio n o n tK e Basi s o f Disabilit y i n Ai r

Travel ; Fina l Rul e Docke t OST-2008-027 3

APPLICATIO N O F AEROViA S DE L CONTINENT E AMERICAN O S A AVIANC A FO RA N EOUIVALEN T ALTERNATIV E DETERMINATIO N Acrovia s del Continent e American o S A Avianc a("Avianca" ) respectfull y applies , pursuan t t o 1 4 C.F.R . § 382.10 , for an equivalen t

alternativ e determinatio n o f 1 4 C.F.R . § 382.6 7 (priorit y cabi n spac e fo

r passenger' s foldin g wheelchair ) an d1 4 C.F.R . § 382,12 3 (requirement s fo r stowag e o f

passenge r

wheelchair s an dothe r

assistiv e devices ) o f

th e Department' s regulations . Avianc aseek s thi s determinatio n fo r it s ne w A32 0 an dA31 9 aircraf t t o b e delivere d afte r May 13,2010 . I . Backgroun d Th e Department' s 200 8 Final Rul e adopte dsubstantia l revision s t o Par t 382. ' Sectio n 382.6 7 require s that

foreig n carrier s ensur e that ne w aircraf

t ordere dafte

r May 13 , 200 9 o r delivere dafter

May 13 , 2010 , hav e apriorit y spac e fo r afoldin g wheelchai r

o r assistiv e devic e

' Nondiscriminatio n o n th e Papi s o f Disabilit v i n Ai r

Travel : Fina

l Rule , 7 3 Fed . Reg . 2761 4 (May 13 , 2008) .

04/21/201 0Applicatio n o f Aerovia s de l Continent e American o S A Avianc a Fo r a n Equivalen t

Alternativ e Determinatio n Apri l 9 , 201 0 (collectivel y "wheelchair " fo r eas e o f reading , unles s th e contex t indicate s otherwise) . Relate d Sectio n 382.12 3 set s fort

h th e rule s fo

r th e us e o f

th e priority space . Avianc aha s anumbe r

o f ne w Airbu s aircraf

t o n order , whic h are presentl y bein g delivere dan dwil l continu e t o b e delivere dfo r som e time . Th e delivery schedul e i s attache da s Exhibi t AV-1 . Confidential treatmen t i s requeste dfo

r thi s exhibit . Th e order s fo

r thes e aircraf

t wer e place di n Februar

y an dApri l o f

2007 , mor e than ayea

r before th e Departmen t

issue dit s Fina

l Rule . Th e aircraf

t were configure dwithou t

priority spac e becaus e th e Departmen t

ha dno t ye t adopte dit s Fina l Rule . Additionally , i n it s Final Rul e th e Departmen t

reverse dit s Notic e o f

Propose dRulemaking ^ an dit s enforcemen t preceden t

i n "sunsetting " th e alternativ e sea t strappin g method . Th e A32 0 an dA31 9 aircraf t ar e particularl y ill-suite dt o th e retrofi t o f priority space . See , e.g. . Applicatio n o f

JetBlu e Airway s Corporatio n fo r Equivalen t

Alternativ e Determinatio n Wit h Respec t t o 1 4 CFR§ 382.123(c ) a t 4 (removin g aro w o f

seat s o r variation s o f asymmetricall y reducin g pitc h o n one-hal f th e aircraft) ; Applicatio n o f U S Airways , Inc . fo

r a n Equivalen t

Alternativ e Determinatio n Wit h Respec t t o 1 4 C.F.R . 382.123(c) , a t 6 (removin g seat row s t o accommodat e priority space) . Indeed , th e interio r dimension s o f

thes e aircraf

t als o make th e provisio n o f

priorit y spac e unsuitabl e for bran dne w aircraf

t du e t o th e limite davailability o f unuse dspace .

"Th e Departmen t

propose s t o continu e to mak e thi s complianc e optio n [i.e. , sea t strapping ] availabl e unde r th e propose drule. " 6 9 Fed . Reg . at 6437 1 (Nov . 4 , 2004) , Th e Fina l Rul e inexplicabl y sunsette dthi s practic e a s o f May 13 , 201 1 wit

h th e commen t

that "i t i s amor e awkwar dway o f

carryin g awheelchai r

an dbecaus e i t

can , o n agive n flight , reduc e seatin g capacity fo

r othe r passengers. " Fina

l Rul e a t 27627 .

04/21/201 0Applicatio n o f Aerovia s de l Continente American o S A Avianc a Fo r a n Equivalen t

Alternativ e Determinatio n Apri l 9,201 0 Avianc aha s spen t

innumerabl e man-hour s explorin g way s t o accommodat e apriority spac e i n it s 150-sea

t A32 0 an d120-sea

t A31 9 aircraft . Avianc awoul dsuffe r substantial revenu e losse s i f i t i s require dt o remov e asea t ro w i n orde r

t o accommodat e a

n in-cabi n priority space . Th e los s o f

thre e seat s woul db e particularl y burdensom e o n th e 120-sea t A319 . Re-pitchin g th e seat s o n on e sid e o f

th e aircraf

t i n orde r t o accommodat e apriority spac e woul dresul t i n a n undesirabl e an dasymmetrical pitc h differenc e betwee n th e row s a s wel l a s uncomfortabl y smal l legroo mo n th e re-pitche dsid e o f th e aircraft . I

t coul dals o resul t

in anee dt o recertif

y th e aircraf t seat s use do n ne w aircraf t t o mee t FAA 16 G seat standard s fo

r th e reduce dpitch . II . Propose dEquivalen t Alternativ e Avianc aha s develope dan equivalen t alternativ e metho do f

wheelchai r

an dassistiv e devic e stowag e tha t

Avianc abelieve s provide s similar accessibility t o a

n in-cabi n priority spac e requiremen t

for it s A32 0 an dA31 9 aircraft . Avianc apropose s t o utiliz e aportio n o f th e carg o hol da s adesignate dspac e fo r th e stowag e o f

u p t o tw o wheelchair s i n lieu o f apriorit y space , Avianc awoul dalso :

• utiliz e aprotectiv e cove r for wheelchair s stowe di n th e carg o hold ;

• secur e th e wheelchai r

t o tie-down s i n th e carg o hold , a s appropriate ;

• leav e passenger s wit

h th e flexibility the y presentl y enjo y t o chec k th e wheelchai r whereve r the y prefer

an dt o receiv e i t

bac k whereve r the y prefer ;

• offe r th e flexibilit

y t o receiv e th e wheelchai r a t th e doo r o f th e aircraf

t upo n landing ; an d

• implemen t

check s i n existin g post-landin g procedure s t o ensur e tha t apassenger' s wheelchai r

i s remove dft-omth e aircraft .

04/21/201 0Applicatio n o f Aerovia s de l Continente American o S A Avianc a Fo r a n Equivalen t

Alternativ e Determinatio n Apri l 9 , 201 0 Avianc awoul dutiliz e th e af t portio n o f

th e hol dt o sto w wheelchairs . Se e Exhibi t AV 2 . I n th e A320 , Avianc awoul dutiliz e aportio n o f bul k carg o hol djus t

forwar do f th e bul k carg o hol ddoor . Thi s portio n o f th e hol dcoul db e accesse deithe r vi ath e bulk

carg o hol ddoo r

o r vi a th e af t carg o compartmen t

door . Se e Exhibi t

AV-3 . I n th e A31 9 th e hol di s accesse dthroug h th e af t carg o compartmen t

door . Se e Exhibi t

AV-4 . I n bot h th e A31 9 an dA320 , thi s spac e i s separate dfromth e mai n carg o hol db y adivide r whic h i s affixe dt o th e floor, sides , an droo f o f th e hold . Se e Exhibi t

AV-5 . Th e hol dha s carg o tie-down s integrate di n th e floor a s wel l a s tie dow n rings affixe dt o th e webbin g i n th e hold . Se e Exhibi t AV-6 . Whe n wheelchair s ar e stowe d unde r thi s procedure , Avianc awil l us e thes e dedicate darea s o f th e hol dexclusivel y fo

r wheelchai r

stowage , an dwil l no t

sto w passenge r

bag s o r othe r carg o o r equipmen t

i n th e same area . Avianc apropose s t o orde r protectiv e storag e bag s fo r foldin g wheelchair s (an d accessibilit y device s whic h wil l fit int o suc h bags ) for

us e o n eac h aircraft , similar t o th e bag s presentl y use dto stor e th e aisl e wheelchai r o n boardth e aircraft . Thes e bag s wil l provid e a n additional measur e o f

protectio n fo

r wheelchairs . Avianc awoul dchec k th e foldin g wheelchair , sto w i t i n it s protectiv e bag , an di n turn securel y sto w th e wheelchai r i n th e hol db y fastenin g i t dow n t o th e built-i n tie-downs . Avianc ai s explorin g way s t o utiliz e protectiv e blanket s for assistiv e device s tha

t ma y no t fit int o th e ba g designe dfo

r foldin g wheelchairs . Unde r Avianca' s proposal , apassenge r woul dbrin g he r

wheelchai r

a s fa r a s sh e preferre d (i.e. , eithe r

t o th e doo r

o f th e aircraft , o r

th e gate) . A t

that point , a n Avianc aemploye e woul d manuall y chec k

th e wheelchair . Th e passenge r woul db e give n a"manual " ba g chec k receip t usin g aform , wher e th e Avianc aemploye e hand-write s th e followin g details : passenger' s name , flight number , destination , an dth e locatio n wher e th e ite mwil l b e re-delivere dt o th e passenger . 4 04/21/201 0Applicatio n o f Aerovia s de l Continent e American o S A Avianc a Fo r a n Equivalent

Alternativ e Determinatio n Apri l 9 , 201 0 Th e baggag e ta g use do n th e passenger' s checke dite mi s marke dwith awheelchai r symbo l t o indicat e that

i t i s th e property o f

aperso n wit

h disabilitie s (Avianc ause s thi s markin g syste m now) . Th e sam e Avianc aemploye e wh o provide s th e passenge r wit h th e receip t

fo r th e checke d ite mi s personall y responsibl e for assurin g th e wheelchai r

i s place din th e hold . Afte r providin g th e passenge r

wit h areceipt , th e sam e Avianc aemploye e woul dfol do r break-dow n th e wheelchai r

i n accordanc e with instruction s (i f provided) , pac k

th e ite min th e protectiv e bag , an d loa dit int o th e hold . Th e Avianc aemploye e woul dsubsequentl y infor mth e groun dhandlin g fliglit leade r (th e "Leader" ) tha t

awheelchai r

o r assistiv e devic e ha s bee n stowe di n th e hold . Th e Leade r

i s responsibl e fo r

filling ou t

an dfaxin g adetaile dchecklis t (numbe r o f passenger s o n board , locatio n an ddestinatio n o f checke dbags , etc. ) t o Avianca' s statio n a t th e flight's destination . Thi s checklis t i s submitte dt o th e destinatio n statio n afte r th e aircraf

t i s loade dan d th e door s ar e closed . Avianc apersonne l at

th e flight's destinatio n are therefor e informe dan dawar e that ther e i s awheelchai r

o r assistiv e devic e i n th e hol dprio r t o th e aircraft' s arrival . Onc e th e aircraf t arrive s a t th e gat e an dgroun dhandlin g personne l are permitte dt o approac h an dservic e th e aircraft , th e first

ite mremove dfi-omth e aircraf t wil l b e th e passenger' s wheelchai r o r assistiv e device . It wil l b e delivere dt o th e passenge r a t th e locatio n th e passenge r indicate dt o Avianc a whe n checke d(i.e. , th e doo r o f th e aircraf

t o n th e jetway , o r

a t th e baggag e claim) . Th e Leade r a t th e destinatio n statio n wil l revie w th e flight detai l checklis t

faxe dfromth e flight's origin , whic h wil l serv e a s a

n additiona l chec k

t o ensur e that

th e ite mi s no t

overlooke din th e hold . Avianc awil l publiciz e th e availability o f thes e procedure s for

passenger s wit

h disabilities o n it s web site . Avianc awil l als o provid e trainin g t o th e personne l involve di n thi s procedur e t o 5 04/21/201 0Applicatio n o f Aerovia s del Continent e American o S A Avianc a Fo r a n Equivalen t

Alternativ e Determinatio n Apri l 9 , 201 0 ensur e tha t

i t i s correctl y followe dan dtha t wheelchair s an dassistiv e device s are properl y protecte dan dstowed . Avianc awoul dprovid e thi s alternativ e fo r u p t o tw o wheelchair s o r

assistiv e devices , o n afirst-come, first-servedbasis . Additional wheelchair s o r assistiv e device s woul db e checke d an dstowe di n th e carg o hol di n accordanc e wit

h curren t practic e and1 4 C.F.R . § 382.125 . Avianc ai s willin g t o waiv e applicabl e liability limit s for assistiv e device s transporte db y mean s o f thi s equivalen t

procedure , u p t o an dno t

t o excee dth e original purchas e pric e o f th e device , a s i f Sectio n 382.1 3 wa s applicable . A s afurthe r protectio n for

it s passengers , i n th e even t o f damag e t o awheelchai r

stowe dunder

thes e procedures , Avianc awil l arrang e t o provid e a n acceptabl e temporary replacemen t o f lik e kin dan dquality t o th e customer' s wheelchai r or , a t th e passenger' s preference , Avianc awil l provid e reimbursemen t for th e cos t o f arental wheelchair . III . Justificatio n Avianca' s proposa l clearl y meet s th e Department' s standard s fo r gran t o f a n equivalen t alternativ e determinatio n a s Avianca' s propose dalternativ e wil l "provid e substantiall y equivalen t

accessibilit y t o passenger s wit h disabilitie s than complianc e with aprovisio n o f th e rule. " Fina

l Rul e at 27647 . Th e Departmen t

adopte dth e priorit y spac e requiremen t a s initiall y applie dt o carrier s operatin g unde r Par t 12 1 fo r tw o mai n reasons : first, fo r th e passengers ' convenience , in orde r

t o hav e th e wheelchai r

clos e b y whe n deplanin g an dt o b e abl e t o ge t a s clos e t o th e aircraf

t a s possibl e i n one' s ow n wheelchai r befor e enplaning ; an dsecond , t o hel p preven t damag e to , o r

los s of , wheelchair s alon g wit

h th e "bulk " o f

general passenge r

checke d baggage . Final Rul e a t

27626 , Unde r

Avianca' s propose dmethod , apassenge r would , i n fact ,

04/21/201 0Applicatio n o f Aerovia s de l Continent e American o S A Avianc a Fo r a n Equivalen t

Alternativ e Determinatio n Apri l 9 , 201 0 b e abl e to get

a s clos e t o th e aircraf

t a s sh e desire din he r

ow n wheelchai r

befor e checkin g it, ^ an di t woul db e fa

r bette r protecte dfromdamage , bein g place din aprotectiv e ba g an dsecure di n adedicate dare ao f

th e carg o hold . T o b e clear , n o othe r carg o o r item s wil l b e stowe din thi s are ao f th e hold.' ' Avianca' s proposa l als o exceed s th e treatmen t no w require dt o b e give n t o wheelchair s that mus t b e checked . Sectio n 382.125(c ) require s th e "timel y return " o f suc h item s t o a passenger , whil e Sectio n 382.125(d ) require s that wheelchair s an dassistiv e device s b e "amon g th e first item s retrieve dfromth e baggag e compartment. " Avianca' s propose dmetho dwoul d ensur e tha t th e wheelchai r

i s th e first

itemremove dfromth e carg o hol do f th e aircraft , an dtha

t i t i s availabl e t o th e passenge r a s soo n a s sh e deplanes . Gran t o f thi s equivalen t

alternativ e applicatio n wil l serv e th e publi c interest . First , Avianca' s propose daccommodatio n meet s th e criteri ase t fort h i n th e Department' s final rul e an d"provide s substantiall y equivalen t accessibility " t o Avianca' s passengers . 1 4 C.F.R . § 382.3 . "[I] n orde r

t o b e viewe da s a

n equivalen t

alternative , apolicy , practice , accommodation , o r piec e o f equipmen t

mus t reall y provid e substantiall y equivalen t accessibility t o passenger s wit h disabilitie s than complianc e wit h aprovisio n o f

th e rule. " Fina

l Rul e a t 2764 7 (discussin g 1 4 C.F.R . § 382.10) . Second , gran t o f thi s applicatio n wil l entai l asignifican t cos t saving s t o Avianca . A s note dabove , Avianca' s aircraf t wer e ordere dwel l i n advanc e o f th e publicatio n o f th e Department' s Final Rule , an dAvianc aface s significan t expens e an dpractica l challenge s i n

' In Avianca' s experience , mos t passenger s reques t

tha t th e transfe r

b e accomplishe d outsid e th e jetwa y are aat th e gat e counte r

fo r th e sak e o f

convenience . ^ Avianc agenerall y onl y utilize s thi s portio n o f th e hol dwhe n i t

position s compan y material an dspare s durin g ferr y and/o r charte r flights. N o suc h item s wil l b e place di n th e hol d whe n awheelchai r

i s stowe dthere .

04/21/201 0Applicatio n o f Aerovia s del Continent e American o S A Avianc a Fo r a n Equivalen t

Alternativ e Determinatio n Apri l 9 , 201 0 changin g it s long-standin g aircraf t order s t o compl y wit

h arequiremen t

no t i n effect a t th e tim e Avianc aplace dit s orders . Third , Avianc awil l no t b e force dt o reconfigur e it s aircraf t cabins , eithe r b y removin g aro w o f

seats , o r b y reducin g th e pitc h o f

hal f o f th e seat s i n econom

y class , recertifyin g thos e seat s t o th e 16 g standar da t th e ne w pitch , an dcreatin g afleet o f aircraf t wit h undesirabl e asymmetrical seatin g layouts . Avianc awil l provid e additiona l dat aan dinformatio n t o th e Departmen t upo n request , an drespectfiill y request s th e Department' s promp t consideratio n o f

thi s application . WHEREFORE , Aerovia s de l Continent e American o S.A . Avianc arespectfijil y request s that th e Departmen t

promptl y gran t

i t a n equivalen t

alternativ e determinatio n concernin g complianc e wit

h 1 4 C.F.R . § § 382.6 7 an d382.12 3 a s mor e ftilly discusse dabove . Respectfiill y submitted .

RichardD . Mathia s Davi dM . Endersbe e 

### ZUCKERT , SCOUT T & RASENBERGER , L.LP . 88 8 17' " Street , N.W . Washington , D.C . 2003 6 Tel : 202-298-866 0 Fax : 202-342-068 3 Email : rdinathias@zsrlaw.co m dmendersbee(S).zsr

l aw.co m Counse l fo

r Aerovia s de l Continent e American o S A Avianc a Apri l 9 , 201 0

04/21/201 0 1 0Exhibi t AV- 1 Aircraf t Deliver y Schedul e

Confidential Treatmen t

Requeste dUnder

§302.1 2

04/21/201 0 1 1Exhibi t AV- 2 Carg o Hold s Avianca' s A31 9 an dA32 0 aircraf t ar e eac h equippe dwit

h tw o lower

hold s - a forwardhol dan da

n af t hold . Thes e hold s ar

e divide dint o subcompartments . Th e forwardhol di s designate da s forwar dcarg o compartmen t

No . 1 . Th e af

t hol di s divide d int o af t carg o compartments , designate daf t carg o compartment s Nos . 3 an d4 , an d(i n th e A320 ) bul k

carg o compartmen t

No . 5 . Compartmen t

No . 5 i s divide dfromcompartmen t No . 4 b y adivide r

net . Al l compartment s hav e ti e down/attachmen t point s fo r th e net s an dstrap s utilize dt o hol dth e carg o i n place . In th e A319 , th e hol di s reache dvi ath e af t carg o compartmen t

door , whil e i n th e A32 0 th e hol dma y b e reache dvi ath e af t carg o compartmen t

doo r o r vi ath e bul k

carg o hol ddoor .

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04/21/201 0 1 2

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:r . f.^ i ^ pftauv |

c-..cc ' ' C '- • tiittv" !

Vie w o f A31 9 af t carg o compartmen t

door .

04/21/201 0 1 3Exhibi t AV- 3 A32 0 Hol d A32 0 witlTBui k

Carg o DooKTh e storag e are a fo ra passenger's^wheeJetTairT s locate d t o th e righ t o f th e doo ri n th e are a represente d b

y th e outline d rectangle .



# Avianc a Co n t o d o gust o

04/21/201 0 1 4A32 0 withf:gujk^Cargo^bo§r . Th e priority are a fo rth e storag e of th e passenge rwft^elchai ri s locate d forwar d o f th e doo ri n th e diagram . 

# ^^vianc a Contodoguit o

. jjwv g

CMtf. f £i>j j



# ' > a ^ -uy^- - A ( / f j > 

### \

I

04/21/201 0 1 5Exhibi t AV- 4 A31 9 Hol d A319 , withou t a'&il k

Carg o Poof i Th e priority are a fo rth e storag e of passenge rwfcfeeichair s i s tocated t o th e righ t sid e o f th e af t carg o doo ri n tt] e are a represente d b y th e outline d rectangle, . /

04/21/201 0 1 6A31 9 withou t Bul k Carg o Door . Th e prbrit y are a fo rth e storag e o f th e passenge rwheelchai ri s locate d forwar d o f th e af t carg o door . 

# ^=Avlanc a Con tod c gtiit o

04/21/201 0 1 7Exhibi t AV-S Carg o hol ddivider s EJ5i g

1.0. 1 •

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04/21/201 0 1 8.££ 3

04/21/201 0 1 9i O 04/21/201 0 2 01 1 04/21/201 0 2 1Exhibi t AV- 6 Tie-Dow n Point s

1 2 04/21/201 0 2 2