Draft Guidelines for Commercial Suborbital 

Reusable Launch Vehicle Operations with 

Flight Crew 

Version 1.0 February 11, 2005

Federal Aviation Administration 

Office of Commercial Space Transportation 

800 Independence Avenue, Room 331 

Washington, DC 20591 

Draft Guidelines for Commercial Suborbital 

Reusable Launch Vehicle Operations with 

Flight Crew 

Version 1.0 

February 11, 2005 

Federal Aviation Administration 

Office of Commercial Space Transportation 

800 Independence Avenue, Room 331 

Washington, DC 20591 
NOTICE 

Use of trade names or names of manufacturers in this document does not constitute an official 

endorsement of such products or manufacturers, either expressed or implied, by the Federal 

Aviation Administration. 
 

TABLE OF CONTENTS 

1. Introduction................................................................................................................. 2 

2. Purpose........................................................................................................................ 2 

3. Scope........................................................................................................................... 3 

4. Applicability ............................................................................................................... 3 

5. Definitions................................................................................................................... 3 

6. RLV Flight Crew Training and Qualifications ........................................................... 4 

7. Informing Flight Crew Of The Risk ........................................................................... 6 

8. Crew Compliance........................................................................................................ 6 

9. Reciprocal Waiver of Claims...................................................................................... 6 

10. Environmental Control and Life Support Systems (ECLSS) ................................... 7 

11. Fire Detection and Suppression ................................................................................ 8 

12. Human Factors.......................................................................................................... 9 
 

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1. Introduction 

On December 23, 2004, President Bush signed into law the Commercial Space Launch 

Amendments Act of 2004 (CSLAA). The CSLAA promotes the development of the 

emerging commercial space flight industry and makes the Department of Transportation 

and the Federal Aviation Administration (DOT/FAA) responsible for regulating 

commercial human space flight under 49 U.S.C. Subtitle IX, Chapter 701 (Chapter 701). 

Prior to the enactment of the CSLAA, the DOT/FAA regarded flight crew as part of the 

flight safety system, when the flight crew has control over the safety of the vehicle and 

the capability of averting a potential hazard to the uninvolved public on the ground and in 

the air. The CSLAA does not change that authority, and these guidelines therefore 

include guidance on environmental control and life support systems, fire detection and 

suppression, and human factors, all of which may be necessary to ensure that the flight 

crew is able to protect the uninvolved public.1

In the near term, the CSLAA requires that the DOT/FAA: (1) issue guidelines or advisory 

circulars to guide the implementation of the CSLAA as soon as practical after the date of 

its enactment on December 23, 2004; (2) issue proposed regulations that include those 

relating to crew, space flight participants, and permits for launch or reentry of reusable 

suborbital rockets not later than December 23, 2005; and (3) issue final regulations not 

later than June 23, 2006. 

2. Purpose 

These guidelines fulfill the DOT/FAA’s requirement to issue guidance on the 

implementation of the CSLAA prior to the issuance of regulations related to flight crew. 

These guidelines address what the DOT/FAA may expect to review and evaluate in an 

application for a license or permit2

 for a launch that has flight crew on board a suborbital 

reusable launch vehicle (RLV). 

 

1 The CSLAA provides the DOT/FAA authority to issue regulations governing the design or operation of a 

launch vehicle to protect the health and safety of crew and space flight participants for launches in which a 

vehicle will be carrying a human being for compensation or hire. 49 U.S.C. § 70105(c). The DOT/FAA 

may issue such regulations only for practices that resulted in a serious or fatal injury or for practices that 

contributed to an unplanned event that posed a high risk of causing a serious or fatal injury to crew or space 

flight participants. 

2 Under the CSLAA, a person may apply for an experimental permit for reusable suborbital rockets only 

for purposes of research and development and to test new design concepts, equipment, or operating 

techniques. An RLV operator may also use an experimental permit to show compliance with regulatory 

requirements or to train crew before obtaining a license. The DOT/FAA must decide whether to issue a 

permit within 120 days after receipt of an application. In contrast, the agency has 180 days to make a 

licensing determination.
 

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3. Scope 

These guidelines address flight crew on a suborbital RLV. Guidelines concerning space 

flight participants are issued separately in “Guidelines For Commercial Suborbital 

Reusable Launch Vehicle Operations With Space Flight Participants,” dated February 11, 

2005. 

4. Applicability

These guidelines apply to any RLV operator licensed or permitted under Chapter 701 

who proposes to have flight crew on board a suborbital RLV. These guidelines also 

apply to flight crew on board a suborbital RLV. 

 

5. Definitions 

Crew Any employee of a licensee or transferee, or of a contractor 

or subcontractor of a licensee or transferee, who performs 

activities in the course of that employment directly relating 

to the launch, reentry, or other operation of or in a launch 

vehicle or reentry vehicle that carries human beings. 49 

U.S.C. § 70102(2). 

Flight crew Any employee of a licensee or transferee, or of a contractor 

or subcontractor of a licensee or transferee, who is on board 

a launch or reentry vehicle and performs activities in the 

course of that employment directly relating to the launch, 

reentry, or other operation of the launch vehicle or reentry 

vehicle.3

RLV pilot A designated member of the RLV flight crew who has the 

ability to exercise flight control authority over a launch or 

reentry vehicle. 

Space flight participant An individual, who is not crew, carried within a launch 

vehicle or reentry vehicle. 49 U.S.C. § 70102(17). 

Suborbital rocket A vehicle, rocket-propelled in whole or in part, intended for 

flight on a suborbital trajectory, and the thrust of which is 

greater than its lift for the majority of the rocket-powered 

portion of its ascent. 49 U.S.C. § 70102(19). 

 

3 Because the CSLAA’s definition of “crew” does not distinguish between ground crew and crew on board 

a vehicle, the DOT/FAA guidelines use the term “flight crew” to identify the crew on board a vehicle. The 

DOT/FAA does not seek to duplicate the Occupational Safety and Health Administration’s (OSHA’s) role 

in regulating worker safety, particularly for ground crew. Most worker safety issues related to preparation 

of a launch vehicle for flight are under the jurisdiction of OSHA. 
 

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Suborbital trajectory The intentional flight path of a launch vehicle, reentry 

vehicle, or any portion thereof, whose vacuum 

instantaneous impact point does not leave the surface of the 

Earth. 49 U.S.C. § 70102(20). 

 

6. RLV Flight Crew Training and Qualifications 

The CSLAA requires that each crew member receive training and satisfy medical or other 

standards as specified in a license or permit. 49 U.S.C. § 70105(b)(4)(A). 

a. The pilot of an RLV that will operate in the National Airspace System (NAS) should 

possess an FAA pilot certificate, and should hold ratings to operate one or more 

aircraft with similar characteristics for as many phases of the mission as practicable.

Rationale: The requirement to hold a pilot certificate and to hold ratings to operate 

aircraft with similar characteristics ensures that the pilot will have received training 

and experience in similar aircraft and will have demonstrated the airmanship skills 

necessary for safe operations in the NAS. 

b. The RLV flight crew should possess a valid FAA 2nd-class medical certificate.

Rationale: The safe operation of an RLV with flight crew can be affected by the 

health or medical condition of the flight crew. One aspect of a flight crew’s ability to 

perform safety-related functions is the physical and mental state of the individual. 

The FAA’s Office of Aerospace Medicine (AAM), which includes the Civil 

Aerospace Medical Institute (CAMI), the medical certification, research, and 

education wing of the AAM, considers the medical qualification standards for 2ndclass airman certification to be adequate standards for RLV flight crew on a 

suborbital launch due to its inherently short duration. Class 1 medical certificates are 

required for pilots of scheduled airliners. Class 2 medical certificates are for 

commercial, non-airline duties. Class 3 medical certificates are for private pilot 

duties only. 14 CFR part 67, which provides medical qualification standards for 1st

-

class, 2nd-class, and 3rd-class airman certifications, addresses standards for eye; ear, 

nose, throat, and equilibrium; mental, neurological, cardiovascular performance and 

the general medical condition for the purposes of pilot certification.

c. Each member of an RLV flight crew should be trained to operate the vehicle so that it 

will not harm the public. 

Rationale: Crew who complete a training program in order to know how the vehicle 

operates will understand how to respond to both planned and anomalous events. 

d. The RLV operator should develop a mission- and configuration-specific training 

program for flight crew and define standards in accordance with paragraph c for 

successful completion. The RLV operator’s training program should include: 
 

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(1) Prior to each mission, the RLV flight crew should receive vehicle and missionspecific training to cover all phases of flight by using one or more of the 

following: i) a method of simulation (operational and/or procedural), ii) an aircraft 

with similar characteristics for each phase of the mission where the similarity 

applies, iii) incremental expansion of the mission envelope, or iv) an equivalent 

method of training as approved by the FAA through the licensing and permitting 

process. 

Rationale: In order to ensure an adequate level of safety for the mission, the 

flight crew should be trained in the operations that they must perform during the 

mission, including procedures for operating in the NAS and at a launch site. 

Crew should be familiar with the flight behavior of the vehicle. Training in the 

above manner will prepare the flight crew and provide the flight crew the 

necessary information. 

 (2) The RLV operator should verify through test, analysis, inspection, or 

demonstration that any flight crew-training device used to meet the training 

program requirements realistically represents the vehicle’s configuration and 

mission. 

Rationale: The RLV operator should ensure that a crew training device 

adequately represents the vehicle’s configuration and mission so that it provides 

realistic training to the RLV flight crew. 

 (3) RLV flight crew training should include nominal and non-nominal flight 

conditions. The non-nominal situations should include i) abort scenarios, ii) 

emergency operations, and iii) procedures that direct the vehicle away from the 

public in the event of a flight crew egress during flight. 

Rationale: Training to respond to planned and unplanned events allows an RLV 

flight crew trainee to be better able to respond to emergencies. They will obtain a 

competent understanding of vehicle systems, vehicle characteristics, and vehicle 

capabilities, as well as operational, malfunction, and contingency procedures. 

Thus, when the flight crew faces any of these situations during flight, they will be 

better able to respond to them. 

 (4) If a vehicle relies on multiple control and/or propulsion modes, the training 

program should include training in each mode, including the transition between 

modes, so that the crew is able to retain vehicle control. 

Rationale: The flight crew needs to train to be capable of maintaining vehicle 

control as the transition from aerodynamic control surfaces to a reaction control 

system (RCS) occurs. Furthermore, the flight crew needs to train to be capable of 

maintaining vehicle control during the transition from one propulsion mode to 

another mode. 
 

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 e. The training program should be continually updated to ensure that training accounts 

for lessons-learned from training and operational missions. This should be 

accomplished with a documented system to track revisions and updates. 

Rationale: The training program should capture, in writing, lessons-learned as 

experience is gained. Experience will uncover additional events to which the crew 

should be able to respond. The RLV flight crew should be prepared for events and 

anomalies discovered during training and mission operations. 

f. The RLV operator should document the training completed by each member of the 

flight crew and maintain the documentation for each active member of the flight 

crew. The training should be recorded in terms of mission cycles and phases of 

mission cycles. 

 

Rationale: Gathering and maintaining accurate documentation are vital for tracking 

and ensuring that flight crew are up-to-date with their training requirements. 

Recording training in terms of hours is not necessarily germane to RLVs because 

RLVs are rarely in a condition of steady, level flight. 

g. The RLV operator should ensure that all RLV flight crew qualifications are current 

before undertaking RLV flight crew responsibilities. 

Rationale: This ensures that all flight crew are qualified and have received the 

necessary training at the time of RLV operation. 

7. Informing Flight Crew Of The Risk

The CSLAA requires that an RLV operator inform any individual serving as crew in 

writing, prior to executing any contract or other arrangement to employ that individual 

(or, in the case of an individual already employed as of the date of enactment of the 

CSLAA, as early as possible, but in any event prior to any launch in which the individual 

will participate as crew), that the United States Government has not certified the launch 

vehicle as safe for carrying flight crew or space flight participants. 49 U.S.C. § 

70105(b)(4)(B). 

8. Crew Compliance

 

The CSLAA requires crew to comply with all requirements of the laws of the United 

States that apply to crew. 49 U.S.C. § 70105(b)(4)(C). 

9. Reciprocal Waiver of Claims 

The CSLAA requires that flight crew execute a reciprocal waiver of claims with the 

DOT/FAA. 49 U.S.C. § 70112(b)(2). 
 

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10. Environmental Control and Life Support Systems (ECLSS)

 

a. The RLV operator should provide adequate atmospheric conditions to sustain life and 

consciousness for all inhabited areas within the vehicle. The RLV flight crew may 

perform the functions necessary to achieve this. The following may be necessary in 

order to sustain life and consciousness: 

(1) The RLV operator should monitor and control the composition and revitalization 

of the atmosphere to maintain safe levels for normal respiration for the flight 

crew. 

Rationale: The atmosphere in inhabited areas should have safe levels of oxygen 

and carbon dioxide to allow normal respiration. Because of normal human 

metabolic effluent, it is natural for carbon dioxide to accumulate and necessary 

for it to be removed. The proper functioning of the crew is necessary to ensure 

protection of the uninvolved public. 

(2) The RLV operator should monitor and control the pressure of the atmosphere to 

maintain safe levels for flight crew respiration. 

Rationale: An essential aspect of the body’s ability to absorb oxygen from the air 

is the atmospheric pressure, specifically the partial pressure of oxygen (pO2). For 

normal breathing, the pO2 within the cabin should be kept between 19.5 kPa to 

23.1 kPa to avoid the effects of hypoxia. Total pressure and the partial pressure 

of carbon dioxide should also be monitored and kept at levels sufficient to ensure 

consciousness and thus proper functioning of the crew. 

(3) The RLV operator should control contamination and particulate concentrations 

for the RLV flight crew to prevent interference with the crew’s ability to operate 

the vehicle. 

Rationale: The atmosphere should be free from harmful or hazardous 

concentrations of gases, vapors, and particulates that can be inhaled. Particulate 

and contaminant control may also be needed to protect sensitive equipment from 

damage. 

 

(4) The RLV operator should monitor and control the temperature of the atmosphere 

to maintain safe levels for the flight crew. 

Rationale: Although humans can survive in a relatively wide range of 

temperatures, it is essential to regulate the temperature within a cabin or suit. 

Providing proper temperature controls ensures the flight crew maintains a degree 

of situational awareness sufficient to enable the flight crew to perform its 

activities. In addition, temperature control is needed to ensure that equipment is 

being kept within its normal operational environments. 
 

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(5) The RLV operator should monitor and control the humidity of the cabin 

atmosphere to maintain safe levels for the flight crew. 

Rationale: If the flight crew depends on visual information through a window, 

humidity control is necessary to avoid windows fogging and condensation that 

can hinder the RLV pilot’s vision. Humidity control ensures that equipment is 

kept within its normal operating environment. 

(6) The RLV operator should monitor and control the ventilation and circulation of 

the cabin atmosphere to maintain safe levels for the flight crew. 

Rationale: Providing proper ventilation ensures the flight crew maintains a high 

degree of situational awareness by reducing stagnant air, which may contain a 

build-up of carbon dioxide. Good circulation also cools equipment. 

(7) The RLV operator should provide an adequate redundant or back-up oxygen 

supply for the flight crew. 

Rationale: In the event of a failure of the primary atmospheric control system, 

the redundant or back-up system will supply oxygen for the flight crew. 

b. The RLV operator should make provisions for stowage of all objects in the cabin, to 

avoid interference with the flight crew’s operation of the vehicle during flight. 

Rationale: This preserves the ability of the flight crew to perform their activities 

without being negatively affected by moving objects. 

c. The RLV operator should design the flight crew environment to mitigate the effects 

of vehicle decompression. 

Rationale: If decompression should occur, it could have serious physiological effects 

on the flight crew, including hypoxia, decompression sickness, hypothermia, and 

vaporization of tissue fluids. 

Guidance on environmental control and life support systems may be found in 

“Designing For Human Presence in Space: An Introduction to Environmental Control 

and Life Support Systems” (NASA RP-1324) and “Man-Systems Integration 

Standards” (NASA-STD-3000). 

11. Fire Detection and Suppression

Any launch vehicle with flight crew should have the ability to detect and suppress a fire 

to prevent incapacitation of the flight crew, which may result in risk to the public. 
 

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Rationale: Smoke from a fire can rapidly incapacitate an RLV pilot or obscure the 

pilot’s vision so that the vehicle cannot be flown safely. The pilot should be able to 

respond to a vehicle fire so that the vehicle does not pose additional risk to the public. 

12. Human Factors

Human factors should be considered in the design of human-machine interfaces 

associated with RLV missions and operations so that the flight crew can perform its 

safety-critical functions. 

(1) Human factors engineering should be applied to the design of human-machine 

interfaces (e.g., displays and controls) and mission design (e.g., allocating 

functions between human and machine). 

Rationale: Human factors engineering is a discipline that applies knowledge of 

human capabilities and limitations to the design of systems, machines, work 

environment, and operations. Human–related factors account for the majority of 

fatal aircraft accidents while aircraft system malfunctions are involved in a 

relatively small fraction of aircraft incidents and accidents. Some human factorsrelated lessons learned from aviation may be applicable to suborbital RLVs with a 

flight crew within the vehicle. Human factors considerations draw on multiple 

disciplines such as psychology, physiology, engineering, ergonomics, and 

medicine. The design and layout of displays and controls and the amount of crew 

workload can have an effect on the ability of the flight crew to perform safetycritical functions. Using mockups, simulators, and training, and conducting 

human factors analyses such as functional and task analyses are examples of 

human factors-related applications to assess human-machine interfaces or humanin-the loop functions and performance. “DOD Design Criteria Standard – 

Human Engineering” (MIL-STD-1472), “Flying Qualities of Piloted Aircraft” 

(MIL-HDBK-1797), and “Man-Systems Integration Standards” (NASA-STD3000) may provide guidance on applying human factors engineering. 

(2) RLVs should be operated in a manner so that the flight crew can withstand 

physical stress factors such as acceleration, vibration, and noise. 

Rationale: Depending on the magnitude, duration, and direction, excessive 

acceleration could cause flight crew to lose consciousness. Loss of flight crew 

consciousness could place the public at risk from the vehicle. Excessive noise 

could interfere with voice communication. “Man-Systems Integration Standards” 

(NASA-STD-3000) provides guidance on some of the physical stress factor 

limits.