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[Federal Register Volume 81, Number 100 (Tuesday, May 24, 2016)]
[Rules and Regulations]
[Pages 32636-32639]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-12221]

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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 93

[Docket No. FAA-2007-29320]

Operating Limitations at John F. Kennedy International Airport

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Extension to Order.

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SUMMARY: This action extends the Order Limiting Operations at John F. 
Kennedy International Airport (JFK) published on January 18, 2008, and 
most recently extended March 26, 2014. The Order remains effective 
until October 27, 2018.

DATES:  This action is effective on May 24, 2016.

ADDRESSES: Requests may be submitted by mail to Slot Administration 
Office,

[[Page 32637]]

AGC-240, Office of the Chief Counsel, 800 Independence Avenue SW., 
Washington, DC 20591, or by email to: 7-awa-slotadmin@faa.gov.

FOR FURTHER INFORMATION CONTACT: For questions concerning this Order 
contact: Susan Pfingstler, System Operations Services, Air Traffic 
Organization, Federal Aviation Administration, 600 Independence Avenue 
SW., Washington, DC 20591; telephone (202) 267-6462; email 
susan.pfingstler@faa.gov.

SUPPLEMENTARY INFORMATION: 

Availability of Rulemaking Documents

    You may obtain an electronic copy using the Internet by:
    (1) Searching the Federal eRulemaking Portal (http://www.regulations.gov);
    (2) Visiting the FAA's Regulations and Policies Web page at http://www.faa.gov/regulations_policies/; or
    (3) Accessing the Government Printing Office's Web page at http://www.gpoaccess.gov/fr/index.html.
    You also may obtain a copy by sending a request to the Federal 
Aviation Administration, Office of Rulemaking, ARM-1, 800 Independence 
Avenue SW., Washington, DC 20591, or by calling (202) 267-9680. Make 
sure to identify the amendment number or docket number of this 
rulemaking.

Background

    From 1968, the FAA limited the number of arrivals and departures at 
JFK during the peak afternoon demand period (corresponding to 
transatlantic arrival and departure banks) through the implementation 
of the High Density Rule (HDR).\1\ By statute enacted in April 2000, 
the HDR's applicability to JFK operations terminated as of January 1, 
2007.\2\ Using AIR-21 exemptions and the HDR phase-out, U.S. air 
carriers serving JFK significantly increased their domestic scheduled 
operations throughout the day. This increase in operations resulted in 
significant congestion and delays that negatively impacted the National 
Airspace System (NAS). In January 2008, the FAA placed temporary limits 
on scheduled operations at JFK to mitigate persistent congestion and 
delays at the airport.\3\ With a temporary schedule limit order in 
place, the FAA proposed a long-term rule that would limit the number of 
scheduled and unscheduled operations at JFK.\4\ On October 10, 2008, 
the FAA published the Congestion Management Rule for John F. Kennedy 
International Airport and Newark Liberty International Airport, which 
would have become effective on December 9, 2008.\5\ That rule was 
stayed by the U.S. Court of Appeals for the District of Columbia 
Circuit and subsequently rescinded by the FAA.\6\ The FAA extended the 
January 18, 2008, Order placing temporary limits on scheduled 
operations at JFK on October 7, 2009,\7\ on April 4, 2011,\8\ on May 
14, 2013,\9\ and on March 26, 2014.\10\
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    \1\ 33 FR 17896 (Dec. 3, 1968). The FAA codified the rules for 
operating at high density traffic airports in 14 CFR part 93, 
subpart K. The HDR required carriers to hold a reservation, which 
came to be known as a ``slot,'' for each takeoff or landing under 
instrument flight rules at the high density traffic airports.
    \2\ Aviation Investment and Reform Act for the 21st Century 
(AIR-21), Public Law 106-181 (Apr. 5, 2000), 49 U.S.C. 41715(a)(2).
    \3\ 73 FR 3510 (Jan. 18, 2008), as amended by 73 FR 8737 (Feb. 
14, 2008).
    \4\ 73 FR 29626 (May 21, 2008); Docket FAA-2008-0517.
    \5\ 73 FR 60544, amended by 73 FR 66516 (Nov. 10, 2008).
    \6\ 74 FR 52134 (Oct. 9, 2009).
    \7\ 74 FR 51650.
    \8\ 76 FR 18620.
    \9\ 78 FR 28276.
    \10\ 79FR 16854.
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    Under the Order, as amended, the FAA (1) maintains the current 
hourly limits on 81 scheduled operations at JFK during the peak period; 
(2) imposes an 80 percent minimum usage requirement for Operating 
Authorizations (OAs) with defined exceptions; (3) provides a mechanism 
for withdrawal of OAs for FAA operational reasons; (4) establishes 
procedures to allocate withdrawn, surrendered, or unallocated OAs; and 
(5) allows for trades and leases of OAs for consideration for the 
duration of the Order.
    The reasons for issuing the Order have not changed appreciably 
since it was implemented. Demand for access to JFK remains high and the 
average weekday hourly flights in the busiest morning, afternoon, and 
evening hours are generally consistent with the limits under this 
Order. The FAA has reviewed the on-time and other performance metrics 
in the peak May to August 2014 and 2015 months and found continuing 
improvements relative to the same period in 2007, even with runway 
construction at JFK in 2015.\11\ Without the operational limitations 
imposed by this Order, the FAA expects severe congestion-related delays 
would occur at JFK and at other airports throughout the NAS. The FAA 
will continue to monitor performance and runway capacity at JFK to 
determine if changes are warranted.
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    \11\ Docket No. FAA-2007-25320 includes a copy of the MITRE 
analysis completed for the FAA.
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    On January 8, 2015, the DOT and FAA published a notice of proposed 
rulemaking ``Slot Management and Transparency at LaGuardia Airport, 
John F. Kennedy International Airport, and Newark Liberty International 
Airport.'' \12\ The DOT and FAA proposed to replace the Orders limiting 
scheduled operations at JFK, limiting scheduled operations at Newark 
Liberty International Airport (EWR), and limiting scheduled and 
unscheduled operations at LaGuardia Airport (LGA) with a more permanent 
system for managing slots. The NPRM included certain proposed changes 
to how slots are currently managed in the New York City area in order 
to increase transparency and address issues considering anti-
competitive behavior. Since the FAA and DOT first initiated this 
rulemaking effort there have been significant changes in circumstances 
affecting New York City area airports, including changes in competitive 
effects from ongoing industry consolidation, slot utilization and 
transfer behavior, and actual operational performance at the three 
airports. Furthermore, the FAA recently announced that slot controls 
are no longer needed at EWR (81 FR 19861). In light of the changes in 
market conditions and operational performance at the New York City area 
airports, the Department is withdrawing the NPRM by Federal Register 
notice published May 16, 2016 (81 FR 30218), to allow for further 
evaluation of these changes. Accordingly, the FAA has concluded it is 
necessary to extend the expiration date of this Order until October 27, 
2018. This expiration date coincides with the extended expiration date 
for the Order limiting scheduled operations at LGA, as also extended by 
action published in today's Federal Register.\13\ No amendments other 
than the expiration date have been made to this Order.
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    \12\ 80 FR 1274.
    \13\ The FAA notes that the Order limiting scheduled operations 
at EWR will expire October 29, 2016; beginning on October 30, 2016, 
EWR is designated a Level 2 schedule-facilitated airport consistent 
with the FAA's action published in the Federal Register on April 6, 
2016. See id.
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    The FAA finds that notice and comment procedures under 5 U.S.C. 
553(b) are impracticable and contrary to the public interest. The FAA 
further finds that good cause exists to make this Order effective in 
less than 30 days.

The Amended Order

    The Order, as amended, is recited below in its entirety.
    1. This Order assigns operating authority to conduct an arrival or 
a departure at JFK during the affected hours to the U.S. air carrier or 
foreign air carrier identified in the appendix to this Order. The FAA 
will not assign

[[Page 32638]]

operating authority under this Order to any person or entity other than 
a certificated U.S. or foreign air carrier with appropriate economic 
authority and FAA operating authority under 14 CFR part 121, 129, or 
135. This Order applies to the following:
    a. All U.S. air carriers and foreign air carriers conducting 
scheduled operations at JFK as of the date of this Order, any U.S. air 
carrier or foreign air carrier that operates under the same designator 
code as such a carrier, and any air carrier or foreign-flag carrier 
that has or enters into a codeshare agreement with such a carrier.
    b. All U.S. air carriers or foreign air carriers initiating 
scheduled or regularly conducted commercial service to JFK while this 
Order is in effect.
    c. The Chief Counsel of the FAA, in consultation with the Vice 
President, System Operations Services, is the final decisionmaker for 
determinations under this Order.
    2. This Order governs scheduled arrivals and departures at JFK from 
6 a.m. through 10:59 p.m., Eastern Time, Sunday through Saturday.
    3. This Order takes effect on March 30, 2008, and will expire when 
the final Rule on Slot Management and Transparency for LaGuardia 
Airport, John F. Kennedy International Airport, and Newark Liberty 
International Airport becomes effective but not later than October 29, 
2016.
    4. Under the authority provided to the Secretary of Transportation 
and the FAA Administrator by 49 U.S.C. 40101, 40103 and 40113, we 
hereby order that:
    a. No U.S. air carrier or foreign air carrier initiating or 
conducting scheduled or regularly conducted commercial service at JFK 
may conduct such operations without an Operating Authorization assigned 
by the FAA.
    b. Except as provided in the appendix to this Order, scheduled U.S. 
air carrier and foreign air carrier arrivals and departures will not 
exceed 81 per hour from 6 a.m. through 10:59 p.m., Eastern Time.
    c. The Administrator may change the limits if he determines that 
capacity exists to accommodate additional operations without a 
significant increase in delays.
    5. For administrative tracking purposes only, the FAA will assign 
an identification number to each Operating Authorization.
    6. A carrier holding an Operating Authorization may request the 
Administrator's approval to move any arrival or departure scheduled 
from 6 a.m. through 10:59 p.m. to another half hour within that period. 
Except as provided in paragraph seven, the carrier must receive the 
written approval of the Administrator, or his delegate, prior to 
conducting any scheduled arrival or departure that is not listed in the 
appendix to this Order. All requests to move an allocated Operating 
Authorization must be submitted to the FAA Slot Administration Office, 
facsimile (202) 267-7277 or email 7-AWA-Slotadmin@faa.gov, and must 
come from a designated representative of the carrier. If the FAA cannot 
approve a carrier's request to move a scheduled arrival or departure, 
the carrier may then apply for a trade in accordance with paragraph 
seven.
    7. For the duration of this Order, a carrier may enter into a lease 
or trade of an Operating Authorization to another carrier for any 
consideration. Notice of a trade or lease under this paragraph must be 
submitted in writing to the FAA Slot Administration Office, facsimile 
(202) 267-7277 or email 7-AWASlotadmin@faa.gov, and must come from a 
designated representative of each carrier. The FAA must confirm and 
approve these transactions in writing prior to the effective date of 
the transaction. The FAA will approve transfers between carriers under 
the same marketing control up to five business days after the actual 
operation, but only to accommodate operational disruptions that occur 
on the same day of the scheduled operation. The FAA's approval of a 
trade or lease does not constitute a commitment by the FAA to grant the 
associated historical rights to any operator in the event that slot 
controls continue at JFK after this order expires.
    8. A carrier may not buy, sell, trade, or transfer an Operating 
Authorization, except as described in paragraph seven.
    9. Historical rights to Operating Authorizations and withdrawal of 
those rights due to insufficient usage will be determined on a seasonal 
basis and in accordance with the schedule approved by the FAA prior to 
the commencement of the applicable season.
    a. For each day of the week that the FAA has approved an operating 
schedule, any Operating Authorization not used at least 80% of the time 
over the time-frame authorized by the FAA under this paragraph will be 
withdrawn by the FAA for the next applicable season except:
    i. The FAA will treat as used any Operating Authorization held by a 
carrier on Thanksgiving Day, the Friday following Thanksgiving Day, and 
the period from December 24 through the first Saturday in January.
    ii. The Administrator of the FAA may waive the 80% usage 
requirement in the event of a highly unusual and unpredictable 
condition which is beyond the control of the carrier and which affects 
carrier operations for a period of five consecutive days or more.
    b. Each carrier holding an Operating Authorization must forward in 
writing to the FAA Slot Administration Office a list of all Operating 
Authorizations held by the carrier along with a listing of the 
Operating Authorizations and:
    i. The dates within each applicable season it intends to commence 
and complete operations.
    A. For each winter scheduling season, the report must be received 
by the FAA no later than August 15 during the preceding summer.
    B. For each summer scheduling season, the report must be received 
by the FAA no later than January 15 during the preceding winter.
    ii. The completed operations for each day of the applicable 
scheduling season:
    A. No later than September 1 for the summer scheduling season.
    B. No later than January 15 for the winter scheduling season.
    iii. The completed operations for each day of the scheduling season 
within 30 days after the last day of the applicable scheduling season.
    10. In the event that a carrier surrenders to the FAA any Operating 
Authorization assigned to it under this Order or if there are 
unallocated Operating Authorizations, the FAA will determine whether 
the Operating Authorizations should be reallocated. The FAA may 
temporarily allocate an Operating Authorization at its discretion. Such 
temporary allocations will not be entitled to historical status for the 
next applicable scheduling season under paragraph 9.
    11. If the FAA determines that an involuntary reduction in the 
number of allocated Operating Authorizations is required to meet 
operational needs, such as reduced airport capacity, the FAA will 
conduct a weighted lottery to withdraw Operating Authorizations to meet 
a reduced hourly or half-hourly limit for scheduled operations. The FAA 
will provide at least 45 days' notice unless otherwise required by 
operational needs. Any Operating Authorization that is withdrawn or 
temporarily suspended will, if reallocated, be reallocated to the 
carrier from which it was taken, provided that the carrier continues to 
operate scheduled service at JFK.
    12. The FAA will enforce this Order through an enforcement action 
seeking a civil penalty under 49 U.S.C. 46301(a). A carrier that is not 
a small business as defined in the Small Business Act, 15 U.S.C. 632, 
will be liable for a civil penalty of up to $25,000 for every day

[[Page 32639]]

that it violates the limits set forth in this Order. A carrier that is 
a small business as defined in the Small Business Act will be liable 
for a civil penalty of up to $10,000 for every day that it violates the 
limits set forth in this Order. The FAA also could file a civil action 
in U.S. District Court, under 49 U.S.C. 46106, 46107, seeking to enjoin 
any air carrier from violating the terms of this Order.
    13. The FAA may modify or withdraw any provision in this Order on 
its own or on application by any carrier for good cause shown.

    Issued in Washington, DC on May 18, 2016.
Daniel E. Smiley,
Vice President, System Operations Services.
[FR Doc. 2016-12221 Filed 5-23-16; 8:45 am]
 BILLING CODE 4910-13-P
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