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

### )FPA"RMNTO F r^ANSPORTATIO

N •^KE TOPERATIONS /^lO :'n y ! o P3 : m

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 ) 

### J

APPLICATIO N O FVIRGI N AMERIC A INC . FO RA N EQUIVALEN T ALTERNATIV EDETERMINATIO N

Communication s withrespec t t o thi s documen t

shoul db e sen t

to : Joh n E . Gillic k 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 : iegillick(a),zsrlaw.co m dmendersbee(S),zsrlaw.co m Counse l for

Virgi n Americ aInc .

Novembe r

2 , 201 0BEFOR ETH E DEPARTMEN T O FTRANSPORTATIO 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 ) 

## J

APPLICATIO N O FVIRGI N AMERIC A INC . FO RA N EOUIVALEN T ALTERNATIV E DETERMINATIO N Virgi n Americ aInc . ("Virgi n America" ) respectfull y applies , pursuan t t o 1 4 C.F.R . § 382.10 , for

a n equivalen t

alternativ e determinatio n concernin g complianc e with1 4 C.F.R . § 382.6 7 (priorit y cabi n spac e for passenger' s foldin g wheelchair ) an d1 4 C.F.R . § 382.12 3 (requirement s for

stowag e o f

passenge r

wheelchair s an dothe r

assistiv e devices ) o f

th e Department' s regulations . Virgi n Americ aseek s thi s determinatio n for it s existin g fleet

o f aircraft , a s wel l a s ne w an drenovate daircraf t t o b e adde dt o it s fleet. I . Backgroun d Sectio n 382.6 7 o f

th e Department' s regulation s require s tha t U.S . carrier s ensur e tha t ne w aircraf t ordere dafter

Apri l 5 , 1990 , o r

whic hwer e delivere dafter Apri l 5 , 1992 , hav e apriorit y spac e for afoldin g wheelchai r

o r assistiv e device . Relate dSectio n 382.12 3 set s fort hth e rule s for th e us e o f

suc hpriorit y space .Virgi n Americ ai s i n th e proces s o f expandin g it s fleet

b y acquirin g ne w aircraf t an d substantiall y renovatin g use daircraft. ' Th e ne w aircraf t t o b e delivere dwil l requir e apriorit y spac e i n th e cabin . Th e use daircraf t o n orde r wil l b e extensivel y renovate dt o mee t Virgi n America' s standard s an dt o maintai n aconsisten t appearanc e withVirgi n America' s existin g aircraft. ^ Virgi n Americ apresentl y operate s afleet o f te n A319-10 0 an d2 2 A320-10 0 aircraft . Th e A31 9 an dA32 0 aircraf t ar e particularl y ill-suite dt o th e retrofi t o f priorit y space . See , e.g. . Applicatio n o f

JetBlu e Airway s Corporatio n for Equivalen t

Alternativ e Determinatio n WithRespec t

t o 1 4 CF R§ 382.123(c ) at 4 (removin g aro w o f

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

a n Equivalen t

Alternativ e Determinatio n Wit hRespec t t o 1 4 C.F.R . 382.123(c ) at 6 (removin g seat row s t o accommodat e priorit y space) ; Applicatio n o f Aerovia s de l Continent e American o S.A . at 2- 3 (removin g seat

ro w o r repitchin g t o accommodat e priorit y space) . Indeed , th e interio r dimension s o f

thes e aircraf

t als o mak e th e provisio n o f priorit y spac e unsuitabl e for bot hbrand ne w an drenovate daircraf t du e t o th e limite davailabilit y o f unuse dspace , a s wel l a s th e difficulty o f

modifyin g existin g cabi n components . Virgi n Americ aha s spen t considerabl e man-hour s an dresource s explorin g ways t o accommodat e apriorit y spac e i n it s Airbu s aircraft , includin g (amon g others ) extensiv e plarming .

' Se e http://www.virginamerica.com/press-release/2010/Virgin-America-Spreads-Its

Wings-Orders-60-New-Aircraft.htm l for detail s o f

Virgi n America' s ne w aircraf t order . Whil e Virgi n Americ aunderstand s tha t i t ma y continu e t o utiliz e th e seat strappin g method , consisten t

withOrde r

2010-6-20 , i t

ha s determine dtha t

th e equivalen t

alternativ e propose dherei n i s preferabl e t o th e continue dus e o f sea t strapping . ^ Althoug hnot

entirel y clear

i n th e Department' s regulation s whethe r Virgi n Americ ai s require dt o d o so . Virgi n Americ ai s renovatin g it s use daircraf t t o "new " aircraf

t accessibilit y standards .design , an dengineerin g o f astowag e are aunde r

th e galley." * Virgi n Americ awoul dsuffer substantial revenu e losse s i f i t wa s require dt o remov e athree-sea t ro w i n orde r

t o accommodat e aretrofi t in-cabi n priorit y space . 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 apriorit y spac e woul drequir e an expensiv e an dtime-consumin g recertificatio n o f th e aircraf

t interior , includin g th e engineerin g analysis , safety assessmen t report s an dtestin g require db y th e necessar y FA A Supplementa l Typ e Certificate . I n addition , i t woul dresul t

i n a n aestheticall y undesirabl e an dasymmetrica l pitc hdifferenc 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

i n anee d t o recertif y th e aircraf

t seat s use do n ne w aircraf t t o mee t FA A 16 Gseat

standard s an dHea d Impac t Criteri afo r

th e reduce dpitch . II . Propose dEquivalen t Alternativ e Virgi n Americ aha s develope dacomprehensiv e procedur e tha t provide s a n equivalen t metho do f

wheelchai r

storag e o n A319 ^ an dA320 ^ aircraf t i n Virgi n America' s fleet. I f approve db y th e Department , Virgi n Americ aplan s t o utiliz e thi s procedur e fleet-wide i n lie u o f seat strapping . I n additio n t o th e procedur e (outline dbelow ) an dth e draf t interna l polic y documentatio n alread y develope dt o implemen t thi s procedur e (se e Exhibi t VX-4) , Virgi n Americ aha s designe dprotectiv e bag s an dspecia l containmen t straps (se e Exhibit s VX-5-7 ) for

" * Specifically , Virgi n Americ aexplore damean s o f removin g four

galle y cart s fi-omunde r th e galley s installe di n it s fleet i n orde r t o sto w awheelchai r

horizontally . However , thi s prove d t o b e unworkabl e a s th e wheelchai r woul dexten dbeyon dth e galle y an dint o th e aisle . ^ Se e A31 9 LOF A at Exhibi t VX-1 . Thi s LOP A cover s A31 9 aircraf t presenfl y i n Virgi n America' s fleet

i n a8 first

clas s /11 1 seat

mai n cabi n configuration . [CONFIDENTIA L TREATMEN T REQUESTE D pursuan t t o Rul e 12 ] ^ Se e A32 0 LO PA s for existin g aircraf

t at Exhibi t VX-2 . Thes e LO PA s cove r A32 0 aircraf t presentl y i n Virgi n America' s fleet i n a8 first class/141 seat mai n cabi n configuration . A320 s o n orde r

wil l b e configure da s pe r Exhibi t VX- 3 i n a8 first

class/14 1 seat

mai n cabi n configurafion . [CONFIDENTIA LTREATMEN T REQUESTE D pursuan t t o Rul e 12 ]us e wit hthi s procedure . Th e strap s ar e webbe dnylo n o f th e sam e strength , materia l an d manufactur e a s th e carg o hol dwebbin g alread y use di n thes e aircraft . Th e bag s ar e constructe d o f heav y dut y viny l material . Th e Virgi n Americ aprocedur e woul daccommodat e u p t o tw o standar dsiz e non-motorize dwheelchair s o n afirst-come, first-serve basis . Additiona l wheelchair s woul db e stowe di n th e hol dconsisten t with1 4 C.F.R . § 382.125 . Virgi n Americ a woul dpubliciz e thi s procedur e i n th e Frequentl y Aske dQuestion s ("FAQs" ) portio n o f it s website . a . Pre-Fligh t Th e centra l foca

l point s o f

Virgi n America' s procedur e ar e gues t convenienc e an d protectio n o f

aguest' s wheelchair . Virgi n America' s procedur e provide s maximu mflexibility t o it s guests : agues t

wishin g t o transpor t

awheelchai r

ma y notif

y th e airlin e o f

hi s o r he r inten t at an y tim e followin g hi s o r he r arriva l at th e airport : eithe r

prio r t o check-in , at

check-in , at

th e gate , o r o n th e jetbridg e durin g pre-boarding . Thi s give s th e Virgi n Americ agues t th e freedo m t o determin e ho w lon g th e gues t woul dprefe r

th e wheelchai r

t o remai n i n hi s o r

he r possessio n an duse , an dwhen , an dat whic hlocation , h e o r

sh e ma y provid e th e wheelchai r t o Virgi n America . Virgi n Americ aGues t Servic e Tea m(airport ) member s ("GST" ) wil l b e trainedt o accep t an dproces s awheelchai r at an y o f th e four location s describe dabove . b . Acceptanc e Whe n informe dtha t

agues t withawheelchai r

desire s t o preboar do r

t o sto w he r wheelchai r

i n th e cabin , aVirgi n Americ aGS T wil l mee t th e gues t an d(i f applicable ) as k

i f th e gues t ha s an y specia l instruction s for th e disassembly/assembl y o f th e wheelchair , i n accordanc e with1 4 C.F.R . § 382.129 . Th e GS T wil l provid e th e gues t withaWheelchai rDisassembly/Assembl y Form . Se e Exhibi t VX-8 . Onc e completed , th e for mwil l b e physicall y attache dt o th e wheelchai r usin g cli p ties . c . Transfe r

an dDisassembl y A t th e guest' s request , aGS T wil l transfe r th e gues t t o awheelchai r

(o r boardin g wheelchair , i f

necessary ) unti l boarding . I f th e guest' s wheelchai r

i s accepte dat

th e je t bridge , th e gues t wil l b e transferre dt o aboardin g wheelchair , i f necessary . Th e GS T wil l then , i f

necessary , disassembl e th e wheelchai r for stowage . A t

th e guest' s request , th e GS T wil l d o s o i n th e guest' s presence . Th e gues t wil l b e provide dwit hareceipt . d . Protectio n an dStowag e Onc e disassembled , th e wheelchai r wil l b e stowe di n th e protectiv e ba g designe db y Virgi n America . Eac hVirgi n Americ astatio n wil l b e equippe dwithtw o suc hprotectiv e bags , marke dwithth e statio n name . Onc e utilized , th e bag s wil l b e returne dt o th e station . Th e bagge dwheelchai r

wil l b e stowe dverticall y b y Virgi n Americ apersonne l i n Bin 1- 1 o f th e A319/A32 0 carg o hold s (divide dfi-omBi n 1 b y netting ) usin g th e strap s Virgi n Americ a ha s designe dspecificall y for tha t purpose . Se e Exhibi t

VX-7 . Thes e straps wil l b e labele dt o identif y the ma s equipmen t

t o remai n i n Bi n 1- 1 o f

th e hold . Th e straps wil l b e connecte dt o built-i n tie-dow n point s i n th e floor o f th e Bi n 1-1 . If

tw o wheelchair s ar e presente dfo r stowag e unde r thi s procedure , the y wil l bot hb e secure dt o th e floor an dadjacen t

t o on e another . Virgi n America' s Gues t

Service s Manua l wil l includ e instruction s o n th e us e o f thes e straps t o secur e wheelchairs , an dVirgi n Americ aGST s an dappropriat e thir dpart y ram p personne l wil l b e trainedi n thei r

use . Unde r thi s procedure . Virgi n Americ awil l designat e Bin 1- 1 o n afleet-wide basi s a s exclusiv e stowag e spac e for wheelchair s an dstrollers . I n th e even t tha t spac e i n Bi n 1- 1become s an issue , wheelchair s wil l tak e priorit y ove r strollers , whic hwoul dthe n b e place dwith baggag e i n th e mai n carg o bin . e . Transpor t Onc e th e wheelchai r

i s stowed , th e GS T wil l notif y th e Infligh t

Tea mLeade r

(lea dflight attendant ) ("ITL" ) tha t

th e ite mha s bee n stowe di n th e front o f th e hol dan dwil l b e delivere do n apriorit y basi s t o th e je t

bridg e (o r

othe r location , suc ha s th e baggag e area , at th e guest' s request ) upo n arriva l at

th e guest' s destination , an dth e IT Lwil l notif y th e guest . Th e GS T wil l als o ente r anotatio n i n Virgi n America' s reservation s syste mo r contac t th e destinatio n airport Virgi n Americ aoperation s personne l directl y s o tha t th e statio n at

th e guest' s destinatio n i s awar e tha t

ther e i s awheelchai r

i n th e hold . Thi s notificatio n wil l als o includ e th e specifi c locatio n at

whic hth e gues t

ha s requeste dth e wheelchai r b e returne dt o th e gues t

upo n landing . f . Retur n Whe n th e aircraf

t arrive s at

it s destination . Virgi n Americ astatio n personne l wil l arrang e for th e wheelchai r

t o b e remove dfromth e hol do n apriorit y basi s a s th e first item(s ) remove d fromth e hold , an dpromptl y delivere dt o th e locatio n requested . Thes e task s wil l b e assigne dt o th e GS T o r

GST s assigne dt o deplan e th e aircraf t prio r t o th e aircraft' s arrival , an ddesignateda s highes t priority . Upo n delivery , th e wheelchai r wil l b e remove dfromth e protectiv e ba g an dre assemble d(i f

necessary ) utilizin g th e guest' s instruction s previousl y attached . g . Damag e In th e unlikel y even t

tha t awheelchai r

i s damage dwhil e i n Virgi n America' s care , Virgi n Americ awil l reimburs e th e gues t for th e reasonabl e cos t

o f repai r an dfo r th e reasonabl e cos t

o f arenta l replacemen t

o f lik e kin dan dqualit y durin g th e tim e require dfo r repai r o f th e guest' s wheelchair . Eac hVirgi n Americ astatio n wil l als o maintai n contact s o f loca l wheelchai r

renta lfacilities , an dVirgi n Americ awil l arrang e for atemporar y replacemen t for th e guest , or , at

th e guest' s preference , reimbursemen t i f th e gues t choose s t o mak e hi s o r

he r ow n arrangements . Pursuan t t o 1 4 C.F.R . § 382.13 1 an dVirgi n America' s Contrac t o f Carriage , Virgi n Americ ai s alread y obligate dt o reimburs e apassenge r for loss , damage , o r

destructio n o f

awheelchai r

u p t o th e origina l purchas e pric e o f th e device . HI . Justificatio n Virgi n America' s proposa l clearl y meet s th e Department' s standard s fo r gran t o f an equivalen t

alternativ e determinatio n a s Virgi n America' s propose dalternativ e wil l "provid e substantiall y equivalen t

accessibilit y t o passenger s withdisabilitie s tha n complianc e witha provisio n o f

th e rule. " 7 3 Fed . Reg . 27614 , 2764 7 (May 13 , 2008) . 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 Part 12 1 for tw o mai n reasons : first, for

th e passengers ' convenience , i n 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 withth e "bulk " o f genera l passenge r

checke dbaggage . Id . at 27626 . Unde r

Virgi n America' s propose dmethod , apassenge r

would , i n fact , b e abl e t o ge t a s clos e t o th e aircraf

t a s sh e desire di n he r

ow n wheelchai r

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

r bette r protecte dfro mdamage , bein g place di n aprotectiv e ba g an dsecure di n adedicate dare ao f th e carg o hold . T o b e clear , onl y wheelchair s an dstroller s wil l b e stowe di n thi s portio n o f th e hold . Virgi n America' s proposa l als o exceed s th e treatmen t no w require dt o b e give n t o wheelchair s tha t

mus t b e checked . Sectio n 382.125(c ) require s th e "timel y return " o f suc hitem s t o apassenger , whil e Sectio n 382.125(d ) require s tha t wheelchair s an dassistiv e device s b e "amon g th e first

item s retrieve dfro mth e baggag e compartment. " Virgi n America' s propose dmetho dwoul densur e tha t th e wheelchai r

i s th e first

ite mremove 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 , Virgi n America' s propose daccommodatio n meet s th e criteri ase t fort hi n th e Department' s final rul e an d"provide s substantiall y equivalen t accessibility " t o Virgi n America' s passengers . Sectio n 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 accessibilit y t o passenger s withdisabilitie s tha n complianc e withaprovisio n o f th e rule. " Final Rul e at

2764 7 (discussin g Sectio n 382.10) . Second , gran t o f thi s applicatio n wil l entai l asignifican t cos t saving s t o Virgi n America . Whil e th e Departmen t ha s indicate dtha t

i t woul dnot

enforc e Sectio n 382.123(c ) pendin g th e outcom e o f

arulemakin g o n th e subjec t o f seat strapping , th e outcom e o f tha t yet-to be-issue drulemakin g i s bothuncertai n an dlikel y fa r i n th e fiature . Third , Virgi n Americ awil l not b e force dt o reconfigur e it s aircraf t cabin s b y removin g aro w o f seats , o r performin g an expensiv e an dunwield y retrofi t i f th e outcom e o f

th e Department' s seat

strappin g rulemakin g i s t o prohibi t

seat strapping. ^ Virgi n Americ 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 .

' Th e Departmen t

ha s state dtha t

i t expect s carrier s t o retrofi t covere daircraf

t i n suc ha contingency . Orde r

2010-6-2 0 at

2-3 .WHEREFORE , Virgi n Americ aInc . respectfull 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 h1 4 C.F.R . § § 382.6 7 an d382.12 3 a s mor e fully discusse dabove . Respectfull y submitted ,



# Pl^i P Joh n E . Gillic k 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 : iegillick@zsrlaw.co m dmendersbee(a),zsrlaw.co m Counse l for

Virgi n Americ aInc .

Novembe r

2 , 201 0Virgi n Americ aInc . Inde x o f Exhibit s

Exhibi t 1 Exhibi t 2 Exhibi t 3 Exhibi t 4 Exhibi t 5 Exhibi t 6 Exhibi t 7 Exhibi t 8 A31 9 LOPA

A32 0 LO PA s A32 0 LOP A (fiiture layout ) Virgi n Americ aPolic y Prototyp e Storag e Ba g (Photo ) Prototyp e Storag e Ba g (Diagram ) Wheelchai r

Restrain t Assembl y Wheelchai r

Ta gExhibi t VX- 1

A31 9 LOP A

[CONFIDENTIA LTREATMEN T REQUESTE D pursuan t t o Rul e 12 ]Exhibi t VX- 2

A32 0 LO PA s

[CONFIDENTIA LTREATMEN T REQUESTE D pursuan t t o Rul e 12 ]Exhibi t VX- 3

A32 0 LOPA (fiittire layout )

[CONFIDENTIA LTREATMEN T REQUESTE D pursuan t t o Rul e 12 ]Exhibi t VX- 4 Virgi n Americ aPolic y01.07.01.0 4 (Collapsible ) Persona l Wheelchai rStowag e Procedur e (I f Applicable )

I . Som e wlieelchair s ar e collapsibl e o rma yb e dismantle d an d ca n b e stowe d i n a n overhea d bin . Awheelchai rtha t canno t fi t i n th e overhea d ca n b e stowe d i n Bi n 1 o f th e aircraft , usin g th e followin g priorit ystowag e procedure :

• Agues t ma yas k

tha t a persona l wheelchai rb e stowe d i n a priorit yare a o f th e aircraf t a t an ytim e prio rt o check-in , a t check-in , o ro n th e jetbridg e durin g th e preboar d process . • Th e GS T wil l as k

th e gues t i f ther e ar e an yspecia l instruction s fo rth e assembl yo r disassembl yo f th e wheelchair , an d as k th e gues t t o complet e a Wheelchai r Assembly/Disassembl yForm , whic h wil l b e attache d t o th e wheelchai ronc e complete d usin g clip ties . • A t th e jetbridge , th e GS T wil l transfe rth e gues t t o a n aisl e chai ro ra cabi n wheelchai rfo rtranspor t onboar d th e aircraft . • T o th e exten t necessary , th e GS T wil l disassembl e th e guest' s wheelchai ro n th e jetbridge . Upo n request , th e GS T wil l disassembl e th e wheelchai ri n th e presenc e o f th e guest . • Onc e disassembled , th e wheelchai rwil l b e place d i n a protectiv e ba g use d exclusivel yfo rwheelchair s an d tagge d fo rhandlin g a s a fragil e item . Th e bagge d wheelchai rwil l b e tagge d usin g a pin k gat e chec k

ta g an d stowe d lyin g dow n securel ystrappe d i n Bi n 1 o f th e aircraft . Th e wheelchai rbag s wil l b e kep t i n stoc k a t eac h Virgi n Americ a statio n location . • Durin g th e disassembl yan d gues t transfe rprocess , th e GS Twil l notif yth e gues t an d th e IT L tha t th e wheelchai rha s bee n stowe d i n th e forwar d bi n o f th e aircraft , an d tha t i t wil l b e delivere d priorit yt o th e jetbridg e upo n th e aircraft' s arriva l a t it s destination . • Th e GS Twil l not e th e presenc e o f th e wheelchai ri n th e reservatio n syste m t o ensur e th e uplin e statio n i s awar e o f it s presence . • Upo n th e aircraft' s arriva l a t it s destination , th e GS Ta t th e uplin e statio n wil l ensur e th e wheelchai ri s brough t t o th e jetbridg e immediatel yupo n arrival . Th e protectiv e cove rwil l b e remove d o n th e jetbridg e an d th e GS Twil l chec k th e instruction s shee t fo ran yspecia l instruction s fo rre-assembly . Th e GS Twil l re-assembl e th e wheelchai ran d mak e i t availabl e t o th e gues t upo n deplaning .Exhibi t VX- 5 Prototyp e Storag e Ba g (Photo )Exhibi t VX- 6 Prototyp e Storag e Ba g (Diagram )< I " I < ^ ' fl I m * " - I « a ' g r 

## n i n 

# i p 

# 1

n 1 1 

## i l

### ^^hibi t VX-7 "^^'''^-He.,.,,,, , Assembl yExhibi t VX-8

Wheelchai r

Ta g