Petition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

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### A. Name and Address of the Petitioner

Doug Lane, Director, Re gulatory Administration The Boeing Company

PO Box 3707 Seattle, Washington, 98124



### B. Section of the Code of Federal Re gulations (CFRs) that are Affected

As provided for in §11.61(b), per §11.81, Boeing hereby petitions for exemption from the following 14 CFR for the major model 787:

Regulation Amendment Requirement

14 CFR 25.785(h)(2) 25-88 (h) Each seat located in the passenger compartment and designated for use during takeoff and landing by a flight attendant required by the operating rules of this chapter must be: (2) To the extent possible, without compromising proximity to a required floor level emergency exit, located to provide a direct view of the cabin area for which the flight attendant is responsible.



### C. The Extent of Relief Being Sought

Regulation Requirement Why relief is necessary

14 CFR 25.785(h)(2)

at Amdt

25-88 Provide a

direct view of

the cabin area

for which the flight

attendant is responsible

. Operators are requesting Boei ng to install premium minisuite systems in a cabin of Boeing 787, similar to those installed by other manufactur ers and certified by other government agencies, without means to provide a direct view of the seated occupant s from a flight attendant seated and belted position

A typical mini-suite consists of a seat, an ottoman, and personal stowage units. To provide additional comfort, convenience and care for the passenger, every seat is surrounded by partial height partitions and doors.

Seat surrounds, being of great value to the occupants of such seat systems by providi ng the impression of privacy, are integral to th is configuration.

The proposed configurations will therefore not comply with guidance material pr ovided for 14 CFR 25.785(h)(2) (contained in AC 25.785-1B, various issue papers, and letters) which requires a di rect view of a specific percentage of seated occupa nts of these mini-suites.Petition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 2 of 10 Description of relief sought: Boeing respectfully requests that the FAA grant an exemption for direct view

in zones where mini-suites are installed.

If granted Boeing would apply this exemption to 787 aircraft configured with mini-suite interiors meeting the technical and procedural conditions set fo rth in paragraph D of this

document.



### D. Description of the Issue

14 CFR 25.785(h)(2) first and foremost considers the placement of flight attendant seats in proximity to floor level exits of prime importan ce. The placement of flight attendant seats to provide a direct view of th e cabin area for which the flight attendant is responsible is considered of secondary importance. Of th e comments submitted to the FAA during the NPRM comment period for 14 CFR 25.785(h)(2), tw o stated that, if galley service doors were used as emergency exits, the placement of a flight attendant seat near the exit precluded compliance with the requirement that the flight attendant be provided with direct

view of the cabin area. To cover this situa tion, it was suggested th at the requirement be conditioned to apply in so far as practicable and without compromising the proximity to required floor level exits. The FAA concurred and further stated in the preamble to the final

rules that “location of the flight attendant seats near the floor level exits in this case is more important than the requirement to have a direct view of the cabin.” The final rule was revised from the NPRM proposal to address this important comment.

AC 25.785-1B (Flight attendant s eat and torso restraint system installations) states the following definition of direct view: "direct view" means direct (lin e of sight) visual contact with cabin area/main aisle(s), which enables the flight attendant to be made aware of passenger needs relative to safe ty when the flight attendant is seated with torso restraint (safety belt and shoulder harness) fastened. Mirrors or other such devices are not acceptable equivalents to direct view, except in those cases where fli ght attendant proximity to the floor level emergency exit takes precedence over direct view. Video systems may be an acceptable means of direct view, if the level of c onspicuity is equivalent to that provided by line of sight visibility.’

Based on the FAA disposition of comments to draft AC 25.785-1B, Boeing understands that the primary intent of 14 CFR 25.785 (h)(2) is: “to make the flight atte ndant aware of issues

in the cabin”.

Boeing asserts that the guidan ce associated with 14 CFR 25.785( h)(2) is prescriptive in nature requiring visibility of specific percentages of seat ed occupants without giving adequate consideration to inhe rent capabilities of newer designed aircraft and airline operational procedures. For example:

 Premium cabins that reduce the number of occupants in a zone and airplane.

 A reduced passenger concentration further reduc es the probability and risk associated with those safety related events intended to be covered by the dire ct view regulation.Petition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 3 of 10  To the extent practical, flight attendant seats are placed at floor level exits and facing the cabin thus maintaining the ability to s ee the exits, main aisles, and cabin areas.

 Flight attendants performing cabin inspec tion, in preparation for taxi, takeoff and landing, to ensure passengers’ need s relative to safety are met.

 Flight attendants ease of access to hands ets for communication from the flight attendant seated/belted positions.

Boeing submits that replacing conventional seats with mini-suites in a cabin will considerably reduce the number of occupants, which inherently improves the overall safety of the airplane. This has been acknowl edged by the FAA in 777 ELOS PS05-0272-C-1, as

“ Installation of mini-suites...reduces the occupancy in a given area by a factor of 6. All other things being equal, the reduction in the total number of occupants in a given part of the cabin is an enhancement to safety ”.

It is envisioned that a 787 premium cabin configuration with mini-suites will provide accommodation for a maximum of 12 passengers in a cabin zone where typical occupancy, based on standard configuration rules, is 36 pa ssengers. This represen ts a 66% reduction in the passenger count in that area. Historical methods of complia nce for direct view establish acceptable criteria to view only 50% of seats in a cabin zone. For the typical occupancy of these cabin zones, that criteri on accepts that 18 seated occupants may not be in direct view. Thus providing a cabin with ma ximum of 12 not in direct view, as defined by the guidance material, does not change the inherent safety of the airplane nor its occupants.

In recent years, Boeing has in creasingly received requests for premium cabin configurations that create the lower density, comfort and serv ice levels of executive airplanes. As such, Boeing has done in-depth research of the asso ciated regulatory material. The FAA, in granting exemption 9863 for an executive aircraft noted, “Flight attendant seats should be

located so that a direct view is provided for the cabin area whenever practical. For example, flight-attendant seats should not face aw ay from the cabin. In those areas of the airplane where traditional seating arrangements are used, the FAA believes that a direct view should be provided.” 787 Premium cabins are trendi ng toward areas typical of

executive aircrafts with limited number of occupants in a zone. Following the FAA considerations; 787 interior arra ngements have the majority of flight attendant seats facing into the cabin which allows flight attendants to monitor the cabin as well as the exits. In a typical 787 premium cabin layout, at least one flight attendant seat is facing into the premium cabin area. These typical arrangeme nts provide a sufficient view into these premium cabin areas including a view of the major ity of the aisles as well as the exits. Subsequent to the flight atte ndants’ cabin preparation for taxi, takeoff and landing, if a passenger leaves a mini-suite, they will be viewed in the aisle and told to return to their seat.

The remainder of the interior has flight attendant seats pos itioned to meet the existing method of compliance for direct view of the mo re traditional passenger seating arrangement.

Mini-suites currently in-service on 777’s have partial height partitions and doors. These designs incorporate systems and procedur es, as outlined in 777 ELOS PS05-0272-C-1 equivalent safety finding re lated to doors in the mini-su ites, which ensure that thePetition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 4 of 10 occupant’s safety is maintained. Similar mini-suite designs are proposed for the 787. Similar systems and procedures related to doors in the 787 mini-suites will be maintained in the designs as well as meet any conditions whic h are levied as a result of the petition for exemption (related to 14 CFR 25.813(e)) that is being processed under Docket number

FAA-2013-0015.

Flight attendants are also able to recogni ze and observe the mini-s uites when performing their duties. Passengers’ needs relative to safety include but are not limited to: seats are in the upright position, tray tables/loose items/vid eo monitors are stow ed, and passengers are seated, belted, not smoking, and not using ce ll phones. Operationa l requirements exist 1 for these passenger safety needs. Those operationa l requirements are typically met by the flight attendants performing cabin inspections in preparation for taxi, takeoff and landing, to ensure these safety needs are met. Other passenger needs relative to safety, such as preparation for evacuation and donning of oxygen masks, are managed by flight attendants through use of verbal commands regardless of ability to see the passengers as well as relying on other passenger s and crowd awareness.

14 CFR 25.1423(g) requires: “ For each required floor-level passenger emergency exit which has an adjacent flight attendant seat, have a microphone which is readily accessible to the seated flight attendant, except that one microphone may serve more than one exit, provided the proximity of the exits allows unassisted verbal communi cation between seated flight attendants.” As such, these handsets are availabl e to flight attendants to address passengers when the flight attendants must remain seated and belted.

Conditions, related to direct view, as p re-requisite for installing mini-suites

The mini-suite features related to direct view include the following:

1. Each mini-suite provides accommodation fo r one single occupant for taxi, takeoff and landing.

2. Mini-suite door(s) will be open dur ing taxi, takeoff and landing.

3. The hold-open retention mechanism for th e mini-suite doors will hold the doors open under 14 CFR 25.561(b) emergency landing conditions.

4. There will be a secondary, backup hold-open retention mechanism for the mini-suite

doors that can be used to “lock” the doors in the open position if th ere is an electrical or mechanical failure of the primary rete ntion mechanism. The secondary retention mechanism will hold the doors open unde r 14 CFR 25.561(b) emergency landing conditions. The secondary retention mechan ism control will be positioned such that a seated and belted occupant is not able to operate it.

5. Each mini-suite will have appropriate placa rds, or other equivalent means provided

to ensure the mini-suite doors are in th e open position for taxi, takeoff and landing

6. No mechanism will be provided to latch the doors together in closed position.

7. Mini-suite doors will be openable from inside or outside with 25 lbs of force or less regardless of power failure conditions.

1 14 CFR 121. 311(b)(e); 121.317(b)(c)(d)(f); 121.417(c )(1)(iii); 121.571(a)(1 )(i)(iii); 121.577(b) (d); 121.589(c)Petition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 5 of 10 8. If mini-suite doors are powered, the doors w ill remain “locked” in the open position after power loss to the mini-suite.

9. Each mini-suite door will have a discrete hold-open mechanism that cannot be easily misused by a seated, belted occupant of the mini-suite. These hold open mechanisms will be engaged for taxi, takeoff and landing.

a. For powered door, this could be a de activation switch for the door-closing

mechanisms

b. For manually operated doors, this could be a latching mechanism that cannot be easily activated by a seated, belte d occupant of the mini-suite..

The cabin configuration related to the mini-su ites and direct view sh all meet the following

conditions:

1. A maximum of 12 mini-suites will be instal led in a 787 cabin in terior arrangement.

2. At least one flight attendant seat will face into the mini-suite cabin zone, with more as necessary, to provide a view of the main aisles adjacent to the mini-suites 2 . Aisle viewing will use the following criteria:

a. The aisle is considered to extend from th e forward edge of the first mini-suite entrance to the aft edge of th e last mini-suite entrance.

b. An aisle is considered to be viewed if 50% (or greater) of the provided aisle width is within view using a 5 foot pole or 5 th percentile female

c. A 2.5 th percentile female flight attendant is used for the assessment

d. Head movement of the fli ght attendant is limited to remain on the headrest with peripheral vision of 180 degr ees as per SAE standard J985.

3. Alternatively, if the aisle view cannot be met using the criteria above, it is considered equivalent if 80% of the mini-s uite module entrance ar eas are visible. An entrance area is considered visible, if a pe rson standing in the main aisle, directly at the seat module entrance is observable. A body depth of 12 inches 3 is assumed from

the mini-suite door/entra nce into the aisle.

4. The flight attendant seat(s) used to provide the necessary views into the mini-suite zone will be placarded to be occupied during taxi, takeoff and landing.

5. Flight attendant handsets will be inst alled in accordance with 14 CFR 25.1423(g) and primarily located at the seats placarde d to be occupied for taxi, takeoff and landing. In some cases, handset may be at an adjacent flight attendant seat if proximity allows unassisted verbal communi cation between seated flight attendants.

The procedures related to mi ni-suites and direct view: The 777 ELOS PS05-0272-C-1 and 747-8 Exemp tion 10781 for mini-suite installations requires an additional flight attendant, a bove the minimum required by the applicable operating rules, whose principle duty during taxi , takeoff and landing is to ensure that the mini-suite doors are properly latched in the open position. It is expected that upon

2 View of the main aisles or alternatively view of the mini-suite module entrance areas is based on the EASA special conditions for mini-suite installations on Airbus airplanes as documented in A380 CRI D-41. The text proposed herein is revised for clarity but meets the same in tent as the EASA CRI language and is offered to ensure a level competitive market.

3 Based on AC 25-17A section 419 paragraph (b )(8), assist space dimension for 14 CFR 25.813(b).Petition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 6 of 10 completion of the 787 petition for exempti on (related to 14 CFR 25.813(e)) under Docket number FAA-2013-0015, similar requireme nts will be levied for the 787.

As such, the operator will assign a duty to the additional attendant (above the minimum required by the applicable operating rules) to perform a cabin inspection in the mini-suite zone in preparation for taxi, takeoff and la nding, to ensure the mi ni-suite occupant’s needs relative to safety are met. This dut y will be captured as an AFM limitation for each airplane with mini-suites installed.



### E. Statement of Public Interest

Sale of Boeing commercial airplanes greatly c ontribute to the balanc e-of-trade, the gross domestic product and economic health of the Un ited States. The 787 is forecasted to be 54% of the “small twin” fleet by 2032.

As with most other wide-body aircraft, the 787 is to be used primarily on long-haul routes. On flights lasting upwards of 14 hours, operators desire to pr ovide the traveling public with a very high level of comfort, care, and the impr ession of privacy. The ability to install minisuites without means to view the seated occupa nts is an integral part of that goal.

At this time 76% of 787s are sold to foreign operators, of which at least 20% are operators offering premium cabins. In some countries there are privacy laws that do not allow photographs or videos of people without their kno wledge and consent. The ability to install and certify mini-suites, without means to view the seated occupants, in 787 premium cabins significantly improves its marketability, thus le ading to increased sales supporting a positive balance-of-trade and gross domestic product.

The petition for exemption is in essence an alternative method of achieving an appropriate level of safety, while at the same time providi ng features attractive to the operators. Minisuites installed on commercial aircraft are being requested by an increasing number of aircraft operators. Many 787 operators that are requesting mini-suites also operate fleets of other airplane models, certified by other gove rnment agencies, with premium cabins configured with mini-suites without means to vi ew the seated occupants of the mini-suites.

These customers want a consistent cabin operation and passenger experience across their fleet, and will continue to require that new aircraft to their flee t include consistent designs. If they cannot obtain mini-suites with consistent designs on 787 they will order aircraft from foreign manufacturers. This results in:

 lost opportunity to sell Boeing aircraft t hus reducing the balan ce-of-trade, the gross domestic product and economic health of the United States,

 creating an unfair competitive advantage to foreign aircraft manu facturers in this

market.

Further, the public will benefit from the lower cost of travel when the operators increase

their revenue and reduce th eir operating costs.Petition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 7 of 10 A majority of the flying public will see bene fit from lower ticket prices. Very often, premium class passengers will pay for a very high level of comfort, care, and the impression of privacy on long-haul flights. Accordingly, aircraft operators strongly prefer to configure their cabins in such a way that the special n eeds of these premium cl ass passengers can be met. One of the most popular configurations re quested by a wide array of operators is minisuites. The ability to offer mini-suites, without means to view the seated occupants, as part of the passenger experience allows the operators to generate additional revenue beyond that

which would be available with more conventiona l seat solutions, allowi ng the opportunity to further reduce the cost of economy class trav el. [Premium cabin seats account for 40-60% of an operator’s revenue compared with 15-27% of total number of seats per flight. Source: NY Times 11/20/2011]

Allowing installation of mini-suites on 787s w ill result in the operators choosing the 787 over other similarly-sized aircra ft thus allowing operators to take advantage of operating efficiencies and reduced fuel consumption of 787. The cost savings achieved will in turn be passed on to the passengers in decreasing or maintaining operator ticket price levels.

In addition, the airlines w ill be able to keep operating costs down by having common training and operating procedures within their fleet. Many 787 operators that are requesting mini-suites also operate fleets of other airplane models which include mini-suites. The most cost-effective manner of operati ng their fleet is to have c onsistent designs and flight attendant training and procedures with respect to mini-suite direct view. Enabling common operating procedures across a fleet not only k eeps operating cost down, as noted above, but avoids the potential for human error that may be introduced when procedures vary substantially for similar products. The ability to offer mini-suites on the 787 coupled with the efficiency gains, makes the 787 the airplane of choice for its market segment. For the reasons noted above, it is the peti tioner’s opinion that the overa ll level of safety is improved, which is in the public’s best interest.

Further, operating costs are kept down when we ight is reduced and designs are simplified. Compliance with direct view in the mini-suites would require design ch anges such as the installation of camera(s) and monitor(s), or providing viewing windows into the mini-suites. Cameras/monitors and viewing windows add we ight, complexity, cost and violate the occupant’s perception of privacy. Added weight results in increased fuel burn and thus additional cost. Complexity of design increases the initial cost of the airplane as well as operation and maintenance cost. Cost increases are typically passed on to the flying public which is not in the public intere st. It is, however, in the publi c interest to have the flight attendant focused on each passenger in the mini-s uite during the cabin preparation for taxi, take-off and landing, rather than changing th e position of viewing windows or ensuring cameras and monitors are functioning properly.

The most cost-effective way to ensure safety of the passenger, as it relates to direct view, is to ensure the cabin preparation for taxi, ta keoff and landing is sufficiently performed. Duplicate requirements as set forth in 14 CFR 25.785(h)(2) and guidance AC 25.785-1B forcing complex designs to faci litate viewing specific percen tages of seated occupants,Petition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 8 of 10 when already viewed during the typical cabin pr eparation for taxi, take-off and landing, is not in the public interest.

Grant of exemption as requested in this petition is in the best interest of the travelling public through introduction of this new pr oduct, which has an advanced certification basis, into the marketplace.

In summary, allowing mini-suites to be instal led in 787s without means to view the seated occupants will level the competitive field, and op en a larger and more profitable market to The Boeing Company and its customers. Gran ting the Exemption expands Boeing’s sales, which benefits balance-of-trade, the gross domestic product and economic health of the United States. This serves the public interest by serving economic interests of the United States in general and welfar e of residents, employment and improved tax revenues of Washington State in particular. In addition, 787s with mini-s uites without means to view the seated occupants improves operators’ econo mic health, which ultimately benefits the flying public, with no compromise to their safety.



### F. Statement of No Adverse Effect on Safety

Boeing strives to provide acceptable safety condi tions so that its 787 operators can safely operate their airplane with interior configurations, cabin preparation and evacuation procedures consistent with their current fleets.

A grant of Exemption will allow consistent procedures across an operator’s fleet thus maintaining safety. Many 787 operators that are requesting mini-suites al so operate fleets of other airplane models, certified by other government agencies, with premium cabins configured with mini-suites without means to view the seated occupants of the mini-suites from the attendant seated and belted positions. By maintaining consistent cabin configuration approaches, flight attendant training and proce dures across their fleet, each operator ensures safety of all occupants.

Further, additional systems, procedures, and personnel employed for mini-suite configurations described in section D above will ensure the occupants’ safety. These systems ensure that the mini-suites and their inst allation in the airplane facilitate the flight attendants’ cabin preparation for taxi, ta keoff, and landing where the passenger needs relative to safety are primar ily addressed. The additional flight attendant, above the minimum required by the applicable operating rules, will have the additional (AFM limitation) responsibility to perform a cabin insp ection in the mini-suite zone in preparation for taxi, takeoff and landing, to ensure the mini-s uite occupant’s needs relative to safety are met. This additional flight attendant can continue to monitor the mini-suite zone during standard duties throughout the flight. Thes e additional systems, pr ocedures and personnel will maintain the level of safety.

Providing a direct view of seated occupants in the mini-suites fr om a flight attendant seated and belted position does not inhe rently increase safety as the flight attendant in most casesPetition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 9 of 10 cannot get up to help the passenger. Relyi ng on the cabin procedures and handsets for communication if, for example, a passenger has m oved from their mini-suite to the aisle, maintains the level of safety. A review of the worldwide Commercial Transport Airplane History from 1968-1993 (up to the time frame wh en the ARAC direct view criteria was developed), shows that there were no reported claims in fatal accidents where the lack of direct cabin viewing was a factor contributing to accident survival rate, and no reasonable expectation that direct view would ha ve increased the number of survivors.

The number of passengers occupying mini-suites is 5%, or less, of a typical 787 passenger capacity. Therefore providing a di rect view of the seated occu pants in the mini-suites does not affect safety since the premium cabin area is a relatively small area with a low number of passengers. The flight attendan t seats at Door 1 are typically located within about 30 feet of the passengers in the mini-suites. For this relatively small area, if there is a passenger safety need subsequent to the cabin prepar ation for taxi, takeoff and landing, it could be communicated by voice due to the close proximi ty. Since the petition for exemption is requested to apply to the mini-suite zones only, there is no difference in the level of safety when comparing the entire product and the en tire product excluding the mini-suites when consideration is give n to the existing methods of co mpliance that do not require 100% visibility of seat ed occupants.

An acceptable level of safety is provided for the airplane considering familiarity of the flight attendants with the specific airplane and its interior conf iguration, and the wording of 14 CFR 25.785(h)(2) that places the emphasis for safety on the proximity of the flight attendant seat to the exit over the ability of the flight attendant to view the cabin area. The flight attendants will have a view of the majority of the aisles adjacent to the mini-suites and direct view compliance is shown for the remainder of the traditional seating arrangement. As such, there is no degradation in the passenger safety as a result of this requested exemption.



### G. Conclusion

In response to customer requests, Boeing Co mmercial Airplanes requests exemption from 14 CFR 25.785(h)(2) Amendment 25-88 direct view in zones where mini-suites are installed. This request supports the installation of mini-suite seating systems, without means to view the seated occupants, in premium cabin zone of 787 airplanes.

The design and configuration of the mini-suites and the installation in the airplane will be governed such that the safety of each occ upant shall not be compromised in any way.



### H. Privileges of this Exemption Outside the United States

Per § 11.81(h), Boeing requests that the privileges of this Exemption be extended outside of the United States. This extension of privileg es is necessary for ope rations based within foreign countries having bilateral agreements with the United States accepting FAA 14 CFR

Part 25 as their airworthiness standards for tr ansport category aircraft. The 787 is intended for the global market place.Petition for Exemption to 14 CFR 25.785(h)(2)

November 1, 2013

Page | 10 of 10 

### I. Summary to be Published in the Federal Register

PETITIONER : Boeing Commercial Airplanes

SECTION OF 14 CFR AFFECTED : 14 CFR 25.785(h)(2) Amendment 88

DESCRIPTION OF RELIEF SOUGHT : To permit Boeing to install mini-suites in premium cabin zones without means for cab in attendants to vi ew the seated minisuite occupants. The design and configura tion of the mini-suites and the installation in the airplane will be governed such that the safety of each occupant shall not be compromised in any way.