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1 14 CFR 121.542 has commonly been referred to 

as the sterile cockpit rule. (46 FR 5500, January 19, 

1981) Throughout this NPRM, it will be referred as 

the sterile flight deck rule consistent with updated 

terminology. 

DEPARTMENT OF TRANSPORTATION 

Federal Aviation Administration 

14 CFR Parts 61, 91, 121, and 135 

[Docket No.: FAA–2014–0504; Notice No. 

16–06] 

RIN 2120–AJ87 

Pilot Professional Development 

AGENCY: Federal Aviation 

Administration (FAA), DOT. 

ACTION: Notice of proposed rulemaking 

(NPRM). 

SUMMARY: The Federal Aviation 

Administration proposes to modify the 

requirements primarily applicable to air 

carriers conducting domestic, flag and 

supplemental operations to enhance the 

professional development of pilots in 

those operations. The proposal would 

require air carriers conducting domestic, 

flag and supplemental operations to 

provide new-hire pilots with an 

opportunity to observe flight operations 

(operations familiarization) to become 

familiar with procedures before serving 

as a flightcrew member in operations; 

revise the upgrade curriculum; provide 

leadership and command and mentoring 

training for all pilots in command 

(PICs); and establish Pilot Professional 

Development Committees (PPDC). This 

proposal is responsive to a statutory 

requirement for the Federal Aviation 

Administration to convene an aviation 

rulemaking committee (ARC) to develop 

procedures for air carriers pertaining to 

pilot mentoring, professional 

development, and leadership and 

command training and to issue an 

NPRM and final rule based on these 

recommendations. The proposal also 

includes a number of additional 

conforming changes related to flight 

simulation training devices and second 

in command (SIC) pilot training and 

checking, and other miscellaneous 

changes. The FAA believes that this 

proposed rule would mitigate incidents 

of unprofessional pilot behavior which 

would reduce pilot errors that can lead 

to a catastrophic event. 

DATES: Send comments on or before 

January 5, 2017. 

ADDRESSES: Send comments identified 

by docket number FAA–2014–0504 

using any of the following methods: 

• Federal eRulemaking Portal: Go to 

http://www.regulations.gov and follow 

the online instructions for sending your 

comments electronically. 

• Mail: Send comments to Docket 

Operations, M–30; U.S. Department of 

Transportation (DOT), 1200 New Jersey 

Avenue SE., Room W12–140, West 

Building Ground Floor, Washington, DC 

20590–0001. 

• Hand Delivery or Courier: Take 

comments to Docket Operations in 

Room W12–140 of the West Building 

Ground Floor at 1200 New Jersey 

Avenue SE., Washington, DC, between 9 

a.m. and 5 p.m., Monday through 

Friday, except Federal holidays. 

• Fax: Fax comments to Docket 

Operations at (202) 493–2251. 

Privacy: In accordance with 5 U.S.C. 

553(c), DOT solicits comments from the 

public to better inform its rulemaking 

process. DOT posts these comments, 

without edit, including any personal 

information the commenter provides, to 

www.regulations.gov, as described in 

the system of records notice (DOT/ALL– 

14 FDMS), which can be reviewed at 

www.dot.gov/privacy. 

Docket: Background documents or 

comments received may be read at 

http://www.regulations.gov at any time. 

Follow the online instructions for 

accessing the docket or go to the Docket 

Operations in Room W12–140 of the 

West Building Ground Floor at 1200 

New Jersey Avenue SE., Washington, 

DC, between 9 a.m. and 5 p.m., Monday 

through Friday, except Federal holidays. 

FOR FURTHER INFORMATION CONTACT: For 

technical questions concerning this 

action, contact Sheri Pippin, Air 

Transportation Division (AFS–200), 

Flight Standards Service, Federal 

Aviation Administration, 800 

Independence Avenue SW., 

Washington, DC 20591; telephone: (202) 

267–8166; email: sheri.pippin@faa.gov. 

SUPPLEMENTARY INFORMATION: 

Authority for This Rulemaking 

The Federal Aviation 

Administration’s (FAA) authority to 

issue rules on aviation safety is found in 

Title 49 of the United States Code. 

Subtitle I, Section 106 describes the 

authority of the FAA Administrator. 

Subtitle VII, Aviation Programs, 

describes in more detail the scope of the 

FAA’s authority. 

This rulemaking is promulgated 

under the general authority described in 

49 U.S.C. 106(f) and 44701(a) and the 

specific authority found in section 206 

of Public Law 111–216, the Airline 

Safety and Federal Aviation 

Administration Extension Act of 2010 

(Aug. 1, 2010) (49 U.S.C. 44701 note), 

which directed the FAA to convene an 

ARC and conduct a rulemaking 

proceeding based on the ARC’s 

recommendations pertaining to 

mentoring, professional development, 

and leadership and command training 

for pilots serving in part 121 operations. 

Section 206 further required that the 

FAA include in leadership and 

command training instruction on 

compliance with flightcrew member 

duties under 14 CFR 121.542 (sterile 

flight deck rule).1

List of Abbreviations and Acronyms 

Frequently Used in This Document 

AC Advisory Circular 

ACSPT ARC Air Carrier Safety and Pilot 

Training Aviation Rulemaking Committee 

ARC Aviation Rulemaking Committee 

ATP Airline Transport Pilot 

ATP–CTP Airline Transport Pilot 

Certification Training Program 

CAMI FAA Civil Aerospace Medical 

Institute 

CFR Code of Federal Regulations 

CRM Crew Resource Management 

FFS Full Flight Simulator 

FSTD Flight Simulation Training Device 

InFO Information for Operators 

LOFT Line-Oriented Flight Training 

MLP ARC Flight Crewmember Mentoring, 

Leadership, and Professional Development 

Aviation Rulemaking Committee 

NPRM Notice of Proposed Rulemaking 

PIC Pilot in Command 

PDSC Professional Development Steering 

Committee 

PPDC Pilot Professional Development 

Committee 

PTS Practical Test Standards 

SAFO Safety Alert for Operators 

SIC Second in Command 

THRR ARC Flightcrew Member Training 

Hours Requirement Review Aviation 

Rulemaking Committee 

91K Part 91, subpart K 

Table of Contents 

I. Executive Summary 

A. Purpose of the Regulatory Action 

B. Summary of the Major Provisions of the 

Regulatory Action 

C. Costs and Benefits 

II. Background 

A. Statement of the Problem 

B. National Transportation Safety Board 

(NTSB) Recommendations 

C. Airline Safety and Federal Aviation 

Administration Extension Act of 2010 

(Pub. L. 111–216) 

D. Related FAA Actions 

E. Flight Crewmember Mentoring, 

Leadership and Professional 

Development Aviation Rulemaking 

Committee (MLP ARC) 

III. Discussion of the Proposal 

A. Applicability, Effective Date, and 

Compliance Date 

B. Operations Familiarization 

(§ 121.432(d)) 

C. PIC Leadership and Command Training 

D. PIC Mentoring Training 

E. SIC to PIC Upgrade (§§ 121.420 and 

121.426) 

F. Training for Pilots Currently Serving as 

PIC (§ 121.429) 

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G. Recurrent PIC Leadership and 

Command and Mentoring Training 

(§§ 121.409(b) and 121.427) 

H. Leadership and Command Training and 

Mentoring Training for SICs Serving in 

Operations That Require Three or More 

Pilots 

I. Pilot Professional Development 

Committee (§ 121.17) 

J. Pilot Recurrent Ground Training Content 

and Programmed Hours (§ 121.427) 

K. Part 135 Operators and Part 91 Subpart 

K Program Managers Complying With 

Part 121, Subparts N and O 

L. Flight Simulation Training Device 

(FSTD) Conforming Changes 

M. SIC Training and Checking Conforming 

Changes 

N. Other Conforming and Miscellaneous 

Changes 

IV. Regulatory Notices and Analyses 

A. Regulatory Evaluation 

B. Regulatory Flexibility Determination 

C. International Trade Impact Assessment 

D. Unfunded Mandates Assessment 

E. Paperwork Reduction Act 

F. International Compatibility and 

Cooperation 

G. Environmental Analysis 

V. Executive Order Determinations 

A. Executive Order 13132, Federalism 

B. Executive Order 13211, Regulations 

That Significantly Affect Energy Supply, 

Distribution, or Use 

C. Executive Order 13609, Promoting 

International Regulatory Cooperation 

VI. Additional Information 

A. Comments Invited 

B. Availability of Rulemaking Documents 

I. Executive Summary 

A. Purpose of the Regulatory Action 

Although the overall safety and 

reliability of the National Airspace 

System (NAS) demonstrates that most 

pilots conduct operations with a high 

degree of professionalism, a problem 

still exists in the aviation industry with 

some pilots acting unprofessionally and 

not adhering to standard operating 

procedures, including the sterile flight 

deck rule. The National Transportation 

Safety Board (NTSB) has continued to 

cite inadequate leadership in the flight 

deck, pilots’ unprofessional behavior, 

and pilots’ failure to comply with the 

sterile flight deck rule as factors in 

multiple accidents and incidents 

including Pinnacle Airlines flight 3701 

(October 14, 2004) and Colgan Air, Inc. 

flight 3407 (February 12, 2009). 

The Colgan Air accident focused 

public and Congressional attention on 

multiple aspects of air carrier training 

requirements, including issues 

pertaining to pilot leadership and 

command and mentoring. The accident 

also raised questions about pilot 

adherence to the sterile flight deck rule. 

The Airline Safety and Federal 

Aviation Administration Extension Act 

of 2010 (Public Law 111–216), was 

enacted following the Colgan Air 

accident. Section 206 of Public Law 

111–216 directed the FAA to convene 

an ARC to develop procedures for each 

part 121 air carrier pertaining to 

mentoring, professional development, 

and leadership and command training 

for pilots serving in part 121 operations 

and to issue an NPRM and final rule 

based on the ARC recommendations. 

Accordingly, this rulemaking is 

promulgated under the general authority 

described in 49 U.S.C. 106(f) and 

44701(a) and the specific authority 

found in section 206 of Public Law 111– 

216. 

B. Summary of the Major Provisions of 

the Regulatory Action 

This rulemaking proposes to modify 

requirements for air carriers and pilots 

operating under part 121 to enhance the 

professional development of part 121 

pilots. The proposed requirements 

would most affect air carrier training for 

pilots in command. The proposed 

requirements would also affect air 

carrier qualification for newly employed 

pilots. Additionally, this proposed rule 

would require air carriers to establish 

and maintain a pilot professional 

development committee to develop, 

administer, and oversee formal pilot 

mentoring programs. Table 1 provides 

additional detail regarding the proposed 

amendments. 

TABLE 1—SUMMARY OF PROPOSED AMENDMENTS

Proposed provision Summary of proposed provision 

Operations familiarization for newhire pilots (§ 121.432(d)).• Operations familiarization must include a minimum of 2 operating cycles. A new-hire pilot completing operations familiarization must occupy the flight deck observer seat. 

Upgrade training curriculum requirements (§§ 121.420 and 

121.426).

• Upgrade ground and flight training requirements have been updated based on the qualification and experience that all upgrading pilots now have as a result of the Pilot Certification and Qualification Requirements for Air Carrier Operations rule requirements. 

• Leadership and command and mentoring training must be included in the upgrade curriculum. Leadership and command and mentoring training are required subjects for upgrade ground training. Leadership 

and command training must also be incorporated into flight training through scenario-based training. 

(Note: For those air carriers that use an initial curriculum to qualify pilots to serve as PICs, leadership 

and command and mentoring training must be provided as part of that initial curriculum (§§ 121.419 and 

121.424)). 

Leadership and command and 

mentoring ground training for pilots currently serving as PIC 

(§ 121.429).

• All pilots currently serving as PIC must complete ground training on leadership and command and mentoring. 

• The Administrator may credit previous training completed by the pilot at that air carrier. 

Recurrent PIC leadership and command and mentoring training 

(§§ 121.409(b) and 121.427).

• PICs must complete recurrent leadership and command and mentoring ground training every 36 months. 

• Recurrent Line-Oriented Flight Training (LOFT) must provide an opportunity for PICs to demonstrate 

leadership and command. 

Pilot professional development 

committee (PPDC) (§ 121.17).

• Air carriers must establish and maintain a PPDC to develop, administer, and oversee formal pilot mentoring programs. The PPDC must consist of at least one management representative and one pilot representative. The PPDC must meet on a regular basis. The frequency of such meetings would be determined by the air carrier, but must occur at least annually. 

Pilot recurrent ground training content and programmed hours 

(§ 121.427).

• Pilot recurrent ground training has been aligned with the pilot initial ground training requirements for pilots who have completed the Airline Transport Pilot Certification Training Program (ATP–CTP). As a result, the existing content and corresponding programmed hours for recurrent ground training have been 

reduced. 

Part 135 Operators and Part 91 

Subpart K Program Managers 

Complying with Part 121, Subparts N and O.

• Part 135 operators and part 91 subpart K (91K) program managers complying with part 121 subparts N 

and O would continue to use the existing upgrade curriculum requirements and the proposed leadership 

and command and mentoring training would only apply to PICs serving in operations that use two or 

more pilots. 

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2RIN 2120–AJ67. 

3See Crash of Pinnacle Airlines Flight 3701, 

Bombardier CL–600–2B19, N8396A, Jefferson City, 

Missouri, October 14, 2004, Aircraft Accident 

Report NTSB/AAR–07/01 (Washington, DC: NTSB, 

2007) (hereinafter ‘‘Aircraft Accident Report NTSB/ 

AAR–07/01’’). 

4See Loss of Control on Approach, Colgan Air, 

Inc., Operating as Continental Connection Flight 

3407, Bombardier DHC–8–400, N200WQ, Clarence 

Center, New York, February 12, 2009, Aircraft 

Accident Report NTSB/AAR–10/01 (Washington, 

DC: NTSB, 2010) (hereinafter ‘‘Aircraft Accident 

Report NTSB/AAR–10/01’’). 

5Some contributing factors to this accident were 

also mitigated by the following rules: Flightcrew 

Member Duty and Rest Requirements (77 FR 330, 

January 4, 2012, RIN 2120–AJ58) with a .5 effective 

mitigation, Qualification, Service, and Use of 

Crewmembers and Aircraft Dispatchers with a .2 

effective mitigation, the Pilot Certification Rule 

TABLE 1—SUMMARY OF PROPOSED AMENDMENTS—Continued 

Proposed provision Summary of proposed provision 

Flight Simulation Training Device 

(FSTD) Conforming Changes 

(Part 121, subparts N and O and 

appendices E, F, and H).

• Part 121, subparts N and O and appendices E, F, and H are updated as follows: 

(1) Reflect the terminology currently used to identify FSTDs approved for use in part 121 training programs; 

(2) Remove references to simulation technology that no longer exists; and 

(3) Remove requirement for FAA certification of training and remove pilot experience prerequisites for 

using a Level C full flight simulator (FFS) to reflect advances in current FSTD technology. 

SIC Training and Checking Conforming Changes (Part 121 appendices E and F).• Part 121 appendices E and F are updated to align with the current 14 CFR 61.71 requirements for SICs 

to obtain a type rating in a part 121 training program. Initial, conversion, and transition SIC training and 

checking must include the few training and checking maneuvers and procedures formerly designated in 

appendices E and F as PIC-only. 

Other Conforming and Miscellaneous Changes.• Pilot transition ground training has been aligned with the pilot initial ground training for pilots who have 

completed the ATP–CTP. 

• The term used to identify the training provided to flight engineers qualifying as SICs on the same airplane type has been changed from ‘‘upgrade’’ to ‘‘conversion.’’ 

• Conversion ground training for flight engineers who have completed the ATP–CTP has been aligned 

with the pilot initial ground training for pilots who have completed the ATP–CTP. 

• Part 121 appendices E and F and § 121.434 are amended to allow for pictorial means for the training 

and checking of preflight visual inspections of the exterior and interior of the airplane. 

C. Costs and Benefits 

The FAA believes the proposed rule 

would generate safety benefits and 

address both the statutory requirement 

for this rulemaking and the NTSB 

recommendations. Additionally, the 

proposed rule contains cost saving 

benefits to operators of $72 million over 

a 10-year period based on changes to 

ground training in this proposal that are 

possible due to changes already 

implemented in the Pilot Certification 

and Qualification Requirements for Air 

Carrier Operations final rule (the Pilot 

Certification rule) (78 FR 42324, July 15, 

2013).2 These changes would lead to a 

reduction in the time required to 

complete recurrent and upgrade training 

and would not compromise safety. 

When discounted using a 7 percent 

discount rate, the proposed rule would 

result in cost saving benefits of $46 

million over a 10-year period. 

The FAA estimates that the proposed 

rule would result in costs to operators 

of approximately $68 million over a 10- 

year period. When discounted using a 7 

percent discount rate, the proposed rule 

would result in costs of $47 million over 

a 10-year period. In undiscounted terms, 

benefits in future years outweigh costs; 

however, when discounting benefits 

using the 7% discount rate, future 

benefits do not outweigh upfront costs. 

The benefits and costs, by provision, 

of the proposed rule are seen in Table 

2 below. 

TABLE 2—NET BENEFITS BY PROVISION

[7% Present value, millions of 2013 dollars, 2015–2024] * 

Provision Cost saving benefits Compliance 

costs Net benefits 

Recurrent Ground Training (§ 121.427) ........................................................................... $34.424 ..................... $0 $34.424 

Upgrade Ground Training (§ 121.420) ............................................................................. $11.839 ..................... 0 11.839 

New-Hire SIC Operations Familiarization (§ 121.432(d)) ................................................ Not Quantified ........... 2.855 ¥2.855 

Upgrade Training (Mentoring, Leadership, and Command) (§§ 121.420 and 121.426) Not Quantified ........... 6.304 ¥6.304 

One-Time and Recurrent PIC Training (Mentoring, Leadership, and Command) 

(§§ 121.409(b), 121.427 and 121.429).

Not Quantified ........... 37.037 ¥37.037 

PPDC Annual Meeting (§ 121.17) ................................................................................... Not Quantified ........... 0.572 ¥0.572 

Recordkeeping ................................................................................................................. Not Quantified ........... 0.006 ¥0.006 

Total .......................................................................................................................... 46.263 ....................... 46.774 ¥0.511 

* Table values have been rounded. Totals may not add due to rounding. 

II. Background 

A. Statement of the Problem 

As recognized by the NTSB, the 

overall safety and reliability of the NAS 

demonstrates that most pilots conduct 

operations with a high degree of 

professionalism.3 Nevertheless, a 

problem still exists in the aviation 

industry with some pilots acting 

unprofessionally and not adhering to 

standard operating procedures, 

including the sterile flight deck rule.4

The NTSB has continued to cite 

inadequate leadership in the flight deck, 

pilots’ unprofessional behavior, and 

pilots’ failure to comply with the sterile 

flight deck rule as factors in multiple 

accidents and incidents, including 

Pinnacle Airlines flight 3701 and Colgan 

Air,5 Inc., flight 3407. 

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with a .2 effective mitigation, and Safety 

Management Systems for Domestic, Flag, and 

Supplemental Operations Certificate Holders with a 

.05 effective mitigation. 

6 In early 2010, the FAA published an advance 

notice of proposed rulemaking (ANPRM) entitled 

New Pilot Certification Requirements for Air Carrier 

Operations (75 FR 6164, February 8, 2010) asking 

for input on current part 121 pilot eligibility, 

training, and qualification requirements for SICs. In 

July 2010, as a result of the public response to the 

ANPRM, the FAA chartered the First Officer 

Qualification ARC (FOQ ARC). The FAA 

subsequently asked the FOQ ARC to consider the 

provisions in §§ 216 and 217 of Public Law 111– 

216 in developing its recommendations. The FOQ 

ARC submitted its recommendations to the FAA in 

September 2010. The FAA issued the Pilot 

Certification and Qualification Requirements for Air 

Carrier Operations NPRM on February 29, 2012 (77 

FR 12374). 

7RIN 2120–AJ00. 

8The FAA notes that section 206 of Public Law 

111–216 references both ‘‘flight crewmembers’’ and 

‘‘pilots.’’ Section 201 of Public Law 111–216 states, 

‘‘The term ‘flight crewmember’ has the meaning 

given the term ‘flightcrew member’ in part 1 of title 

14, Code of Federal Regulations.’’ Part 1 defines 

‘‘flightcrew member’’ as ‘‘a pilot, flight engineer, or 

flight navigator assigned to duty in an aircraft 

Continued 

On October 14, 2004, a Pinnacle 

Airlines Bombardier CL–600–2B19, 

operating as Northwest Airlink flight 

3701, crashed into a residential area 

about 2.5 miles from the Jefferson City 

Memorial Airport, Jefferson City, 

Missouri. During the flight, both engines 

flamed out after a pilot-induced 

aerodynamic stall and were unable to be 

restarted. Both pilots were killed and 

the airplane was destroyed. 

The NTSB determined the probable 

causes of this accident were (1) the 

pilots’ unprofessional behavior, 

deviation from standard operating 

procedures, and poor airmanship, 

which resulted in an in-flight 

emergency from which the pilots were 

unable to recover, in part because of 

their inadequate training; (2) the pilots’ 

failure to prepare for an emergency 

landing in a timely manner; and (3) the 

pilots’ improper management of the 

double engine failure checklist. 

The NTSB noted that at the time of 

the accident, Pinnacle Airlines provided 

2 hours of leadership training during 

SIC to PIC upgrade training with topics 

covering leadership authority, 

responsibility, and leadership styles. 

The NTSB also noted that after the 

accident and as a result of a high initial 

failure rate for pilots upgrading to PIC 

(22% failure rate in July 2004), Pinnacle 

revised the leadership training to 8 

hours with modules on leadership, 

authority, and responsibility; briefing 

and debriefing scenarios; decisionmaking processes, including those 

during an emergency; dry run lineoriented flight training scenarios; and 

risk management and resource 

utilization. In October 2006, Pinnacle 

reported to the NTSB that the pass rate 

for pilots upgrading to PIC had 

improved to 92% first attempt and 95% 

overall. 

On the evening of February 12, 2009, 

a Colgan Air, Inc., Bombardier DHC–8– 

400, operating as Continental 

Connection flight 3407, was on 

approach to Buffalo-Niagara 

International Airport, Buffalo, New 

York, when it crashed into a residence 

in Clarence Center, New York, about 5 

nautical miles northeast of the airport. 

The 2 pilots, 2 flight attendants, all 45 

passengers aboard the airplane, and 1 

person on the ground were killed, and 

the airplane was destroyed by impact 

forces and a post-crash fire. The NTSB 

determined that the probable cause of 

this accident was the PIC’s 

inappropriate response to the stall 

warning which eventually led to a stall 

from which the airplane did not recover. 

Contributing to the accident were (1) the 

pilots’ failure to monitor airspeed; (2) 

the pilots’ failure to adhere to sterile 

flight deck procedures; (3) the PIC’s 

failure to effectively manage the flight; 

and (4) Colgan Air’s inadequate 

procedures for airspeed selection and 

management during approaches in icing 

conditions. 

The NTSB noted that at the time of 

the accident, although the Colgan Air 

crew resource management (CRM) 

training was consistent with Advisory 

Circular (AC) 120–51E, Crew Resource 

Management Training, it only included 

5 slides that addressed command, 

leadership, and leadership styles. The 

NTSB also noted that the Colgan Air SIC 

to PIC upgrade training included a one 

day course on leadership; however, the 

training focused on the administrative 

duties associated with becoming a PIC 

and did not contain significant content 

applicable to developing leadership 

skills, management oversight, and 

command authority. The NTSB 

concluded that specific leadership 

training for pilots upgrading to PIC 

would help standardize and reinforce 

the critical command authority skills 

needed by a PIC during air carrier 

operations. 

The Colgan Air accident focused 

public and Congressional attention on 

multiple aspects of air carrier training 

requirements, including (1) whether air 

carriers were providing PICs with the 

appropriate training to successfully 

execute the required PIC responsibilities 

while exhibiting effective leadership to 

promote professionalism and adherence 

to standard operating procedures, (2) 

whether pilots have access to 

individuals, such as more experienced 

pilots, who could serve as mentors, and 

(3) pilot adherence to the sterile flight 

deck rule. 

The Airline Safety and Federal 

Aviation Administration Extension Act 

of 2010 (Public Law 111–216), enacted 

August 1, 2010, included a number of 

requirements to convene advisory 

groups and conduct rulemakings related 

to the results of the NTSB investigation 

of the Colgan Air accident. Section 206 

directed the FAA to convene an ARC to 

develop procedures for each part 121 air 

carrier pertaining to mentoring, 

professional development, and 

leadership and command training for 

pilots serving in part 121 operations and 

to issue a NPRM and final rule based on 

the ARC recommendations. 

In accordance with sections 204, 206, 

and 209 of Public Law 111–216, the 

FAA chartered the Air Carrier Safety 

and Pilot Training (ACSPT) ARC, the 

Flight Crewmember Mentoring, 

Leadership, and Professional 

Development (MLP) ARC and the 

Flightcrew Member Training Hours 

Requirement Review (THRR) ARC, 

respectively, in September 2010. The 

MLP ARC completed its work and 

provided recommendations in 

November 2010. At the same time as the 

MLP ARC worked to develop its 

recommendations, a number of related 

rulemakings required by Public Law 

111–216 were already underway, 

including the Pilot Certification and 

Qualification Requirements for Air 

Carrier Operations rulemaking 6 and the 

Qualification, Service, and Use of 

Crewmembers and Aircraft Dispatchers 

rulemaking. 

This proposal is the culmination of 

the FAA’s analysis of (1) the rulemaking 

requirements of section 206 of Public 

Law 111–216; (2) the recommendations 

provided by the MLP ARC, the THRR 

ARC, and the ACSPT ARC; (3) the part 

121 pilot qualification and experience 

requirements provided in the Pilot 

Certification rule; (4) the Qualification, 

Service, and Use of Crewmembers and 

Aircraft Dispatchers final rule (78 FR 

67800, November 12, 2013),7 and (5) the 

current part 121 PIC role and 

responsibilities. This comprehensive 

analysis resulted in this proposal that 

furthers the FAA’s safety mission, 

satisfies the requirement for rulemaking 

in section 206 of Public Law 111–216 

and accounts for the recent changes to 

pilot certification and qualifications to 

serve as a PIC in part 121 operations. 

The FAA believes that this proposed 

rule can be effectively implemented by 

air carriers and would mitigate 

unprofessional pilot behavior which 

would reduce pilot errors that can lead 

to a catastrophic event.8

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during flight time.’’ However, because section 206 

uses the terms ‘‘flight crewmember’’ and ‘‘pilot’’ 

interchangeably, the FAA assumes that Congress 

intended the rulemaking requirements of this 

section to apply to pilots only. Further, because no 

accidents have been attributed to flight engineer 

performance and the FAA has not identified any 

issues related to flight engineer training or 

professionalism, this NPRM applies to pilots only. 

9 ‘‘Captain’’ is an industry term that refers to the 

PIC. 

10This recommendation supersedes NTSB Safety 

Recommendation A–07–8: Work with pilot 

associations to develop a specific program of 

education for air carrier pilots that addresses 

professional standards and their role in ensuring 

safety of flight. The program should include 

associated guidance information and references to 

recent accidents involving pilots acting 

unprofessionally or not following standard 

operating procedures. 

11Existing § 121.405 provides the process by 

which a certificate holder must seek approval of its 

training program. Therefore, the streamlining of the 

review process would take place under the 

framework of this provision and be managed by the 

principal operations inspector (POI) responsible for 

approval of an air carrier’s training program. The 

FAA will provide guidance to POIs on this process 

upon publication of the final rule. 

12RIN 2120–AJ86. 

13RIN 2120–AK08. 

14The ATP–CTP provides foundational 

knowledge and competencies to prepare a pilot to 

enter an air carrier training program. It is designed 

to bridge the gap between a pilot who holds a 

commercial pilot certificate and a pilot eligible to 

operate in an air carrier environment. The ATP– 

CTP provides academic and simulator training in 

essential subject areas, such as aerodynamics, 

B. National Transportation Safety Board 

(NTSB) Recommendations 

This proposed rule addresses the 

following NTSB recommendations from 

Aircraft Accident Report NTSB/AAR– 

07/01 and Aircraft Accident Report 

NTSB/AAR–10/01 for air carriers 

operating under part 121: 

• A–07–6: Require regional air 

carriers operating under 14 CFR part 

121 to provide specific guidance on 

expectations for professional conduct to 

pilots who operate nonrevenue flights. 

• A–10–13: Issue an advisory circular 

with guidance on leadership training for 

upgrading captains at 14 CFR part 121, 

135, and 91K operators, including 

methods and techniques for effective 

leadership; professional standards of 

conduct; strategies for briefing and 

debriefing; reinforcement and correction 

skills; and other knowledge, skills, and 

abilities that are critical for air carrier 

operations.9

• A–10–14: Require all 14 CFR part 

121, 135, and 91K operators to provide 

a specific course on leadership training 

to their upgrading captains that is 

consistent with the advisory circular 

requested in Safety Recommendation 

A–10–13. 

• A–10–15: Develop and distribute to 

all pilots, multimedia guidance 

materials on professionalism in aircraft 

operations that contain standards of 

performance for professionalism; best 

practices for sterile cockpit adherence; 

techniques for assessing and correcting 

pilot deviations; examples and 

scenarios; and a detailed review of 

accidents involving breakdowns in 

sterile cockpit and other procedures, 

including the Colgan Air, Inc. flight 

3407 accident. Obtain the input of 

operators and air carrier and general 

aviation pilot groups in the 

development and distribution of these 

guidance materials.10

C. Airline Safety and Federal Aviation 

Administration Extension Act of 2010 

(Public Law 111–216) 

Paragraph (a)(1) of section 206 of 

Public Law 111–216 directed the FAA 

to convene an ARC to develop 

procedures for each part 121 air carrier 

to take the following actions: 

(A) Establish flight crewmember mentoring 

programs under which the air carrier will 

pair highly experienced flight crewmembers 

who will serve as mentor pilots and be paired 

with newly employed flight crewmembers. 

Mentor pilots should be provided, at a 

minimum, specific instruction on techniques 

for instilling and reinforcing the highest 

standards of technical performance, 

airmanship, and professionalism in newly 

employed flight crewmembers. 

(B) Establish flight crewmember 

professional development committees made 

up of air carrier management and labor union 

or professional association representatives to 

develop, administer, and oversee formal 

mentoring programs of the carrier to assist 

flight crewmembers to reach their maximum 

potential as safe, seasoned, and proficient 

flight crewmembers. 

(C) Establish or modify training programs 

to accommodate substantially different levels 

and types of flight experience by newly 

employed flight crewmembers. 

(D) Establish or modify training programs 

for second-in-command flight crewmembers 

attempting to qualify as pilot-in-command 

flight crewmembers for the first time in a 

specific aircraft type and ensure that such 

programs include leadership and command 

training. 

(E) Ensure that recurrent training for pilots 

in command includes leadership and 

command training. 

(F) Such other actions as the aviation 

rulemaking committee determines 

appropriate to enhance flight crewmember 

professional development. 

Accordingly, as directed by section 

206, the FAA convened the MLP ARC 

to address procedures in these areas. 

Section 206 of Public Law 111–216 

also requires the FAA to issue an NPRM 

and final rule based on the ARC 

recommendations. It further specifies 

that leadership and command training 

must include instruction on compliance 

with flightcrew member duties under 

§ 121.542, the sterile flight deck rule. 

Finally, section 206 of Public Law 

111–216 requires the FAA to establish a 

streamlined review process for part 121 

air carriers that had, in effect on August 

1, 2010, the programs described above. 

Under the streamlined review process, 

the FAA must expedite approval of 

programs that it determines meet the 

requirements in the final rule.11

In addition to the requirements in 

section 206, Public Law 111–216 also 

contains a number of related 

requirements for rulemaking, which 

have resulted in the following 

rulemaking initiatives: Pilot 

Certification and Qualification 

Requirements for Air Carrier Operations 

(secs. 216 and 217); Qualification, 

Service, and Use of Crewmembers and 

Aircraft Dispatchers (secs. 208 and 209); 

Safety Management Systems for 

Domestic, Flag, and Supplemental 

Operations Certificate Holders (sec. 

215); and Pilot Records Database (sec. 

203). The FAA also determined that 

amendments to FSTD qualification and 

evaluation standards in part 60 were 

necessary to support the provisions in 

the Qualification, Service, and Use of 

Crewmembers and Aircraft Dispatchers 

final rule and initiated a rulemaking to 

address this issue. 

In 2013, the FAA issued the Pilot 

Certification and Qualification 

Requirements for Air Carrier Operations 

final rule and the Qualification, Service, 

and Use of Crewmembers and Aircraft 

Dispatchers final rule. In 2015, the FAA 

issued the Safety Management Systems 

for Domestic, Flag, and Supplemental 

Operations Certificate Holders final rule 

(80 FR 1308, January 8, 2015).12 In 2016, 

the FAA issued the Flight Simulation 

Training Device Qualification Standards 

for Extended Envelope and Adverse 

Weather Event Training Tasks final rule 

(81 FR 18178, March 30, 2016).13 The 

Pilot Records Database rulemaking 

initiative is in development. 

The Pilot Certification rule includes a 

number of changes that increase the 

knowledge, qualification, and 

experience of pilots serving in part 121 

operations. Notably, the Pilot 

Certification rule requires all pilots 

serving in part 121 operations to hold an 

airline transport pilot (ATP) certificate 

with a type rating and requires pilots to 

complete a minimum of 1,000 hours of 

relevant operational experience prior to 

serving as a PIC in part 121 operations. 

Additionally, the Pilot Certification rule 

requires pilots, who will serve in part 

121 operations, to complete the ATP– 

CTP prior to ATP certification.14

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automation, adverse weather conditions, air carrier 

operations, transport airplane performance, 

professionalism, and leadership and development. 

15RIN 2120–AJ17. 

16See §§ 121.415(a), 121.419(c) and (d), and 

121.427(b). 

17NTSB Safety Recommendation A–06–7: Direct 

the principal operations inspectors of all 14 CFR 

part 121 and 135 operators to reemphasize the 

importance of strict compliance with the sterile 

flight deck rule. This recommendation was issued 

after Corporate Air flight 5966 struck trees on final 

approach and crashed short of the runway at the 

Kirksville Regional Airport, Kirksville, Missouri, 

fatally injuring the PIC, SIC, and 11 of the 13 

passengers on October 19, 2004. The airplane was 

destroyed by impact and a post-impact fire. The 

NTSB determined that the pilots’ failure to make 

standard callouts contributed to the accident, and 

the pilots’ unprofessional behavior during the flight 

and their fatigue likely contributed to the pilots’ 

downgraded performance. The NTSB issued several 

safety recommendations in response to this 

accident, including A–06–7. 

18Positioning flights include nonrevenue flights, 

flights to pick up passengers, and ferry flights for 

maintenance. 19RIN 2120–AC79. 

Public Law 111–216 also required the 

FAA to establish a task force and 

multidisciplinary expert panels, in 

addition to the MLP ARC, to further 

examine existing training program 

requirements and develop 

recommendations for improvements. 

Therefore, the FAA established the 

following ARCs: 

• Stick Pusher and Adverse Weather 

Event Training ARC (sec. 208 of Pub. L. 

111–216) to study and submit to the 

Administrator a report on methods to 

increase the familiarity and improve the 

response of flightcrew members on stick 

pusher systems, icing conditions, and 

microburst and windshear weather 

events. 

• Flightcrew Member Training Hours 

Requirement Review ARC (THRR ARC) 

(sec. 209 of Pub. L. 111–216) to assess 

and make recommendations to the 

Administrator on the best methods and 

optimal time needed for flightcrew 

member training in part 121 and 135 air 

carrier operations; the best methods for 

flightcrew member evaluation; best 

methods to allow specific academic 

training courses to be credited toward 

the total flight hours required to receive 

an Airline Transport Pilot certificate; 

and crew leadership training. 

• Air Carrier Safety and Pilot 

Training ARC (ACSPT ARC) (sec. 204 of 

Pub. L. 111–216) to evaluate best 

practices in the air carrier industry and 

provide recommendations on air carrier 

management responsibilities for 

flightcrew member education and 

support, flightcrew member professional 

standards, flightcrew member training 

standards and performance, and 

mentoring and information sharing 

between air carriers. 

D. Related FAA Actions 

To promote pilot professionalism and 

standardization, the FAA has taken a 

number of actions through rulemakings 

and guidance. The FAA first issued the 

sterile flight deck rule (§ 121.542) to 

prohibit the performance of 

nonessential duties by flightcrew 

members during critical phases of flight, 

including all ground operations 

involving taxi, take-off and landing and 

other flight operations conducted below 

10,000 feet, except cruise flight (46 FR 

5500, January 19, 1981). The FAA 

recently amended the sterile flight deck 

rule to prohibit flightcrew members 

from using a personal wireless 

communications device or laptop 

computer for personal use while at their 

duty station while the aircraft is being 

operated. This rule is intended to ensure 

that certain non-essential activities do 

not contribute to the challenge of task 

management on the flight deck or a loss 

of situational awareness due to attention 

to non-essential tasks. (Prohibition on 

Personal Use of Electronic Devices on 

the Flight Deck final rule, 79 FR 8257, 

February 12, 2014) 15 (The FAA 

monitors compliance with this rule 

during the conduct of enroute 

inspections.) Training on § 121.542 is 

currently required during initial and 

recurrent ground training for all 

flightcrew members.16

On February 27, 2003, the FAA issued 

Advisory Circular (AC) 120–71A, 

Standard Operating Procedures for 

Flight Deck Crewmembers. This AC 

stressed that safety in commercial 

operations depends on good crew 

performance founded on clear, 

comprehensive, and readily available 

standard operating procedures. 

In response to NTSB Safety 

Recommendation A–06–7, the FAA 

issued Safety Alert for Operators 

(SAFO) 06004 on April 28, 2006, to 

emphasize the importance of sterile 

flight deck discipline and fatigue 

countermeasures, especially during 

approach and landing.17

On July 3, 2007, the FAA issued 

Safety Alert for Operators (SAFO) 

07006, to address procedural intentional 

non-compliance (PINC) because 

multiple accidents revealed pilots not 

adhering to established procedures and 

airplane limitations when conducting 

positioning flights.18 Accordingly, the 

FAA recommended that certificate 

holders consider training for 

management personnel and 

crewmembers on the hazards associated 

with positioning flights and PINC 

principals. 

On April 26, 2010, the FAA issued 

Information for Operators (InFO) 10003, 

to address flight deck distractions 

because recent incidents and accidents 

revealed pilots using laptop computers 

and mobile telephones for personal 

activities unrelated to the duties and 

responsibilities required for conduct of 

a safe flight. Accordingly, the FAA 

recommended to Directors of Safety and 

Directors of Operations that specific 

policies and training be provided to 

ensure that distractions in the flight 

deck are minimized. 

To address the significance of human 

performance factors such as 

communication, decision-making, and 

leadership, the FAA issued the Air 

Carrier and Commercial Operator 

Training Programs final rule requiring 

crew resource management (CRM) 

training for flightcrew members and 

flight attendants and dispatcher 

resource management (DRM) training 

for aircraft dispatchers. (60 FR 65940 

December 20, 1995) 19 In this final rule, 

the FAA stated that the objective of 

CRM and DRM training was to teach 

flightcrew members, flight attendants, 

and aircraft dispatchers to effectively 

use all available resources (e.g. 

hardware, software, and human 

resources) to achieve safe and efficient 

flight operations. Coincident to the final 

rule, the FAA published AC 120–51B 

Crew Resource Management Training 

and AC 121–32 Dispatch Resource 

Management Training to provide 

guidance on establishing CRM and DRM 

training under the broad requirement 

established by the final rule. The 

current version, AC 120–51E, stresses 

that CRM training should focus on the 

functioning of crewmembers as teams 

and should include all operational 

personnel. During the time since 

publication of the CRM final rule, the 

agency has revised AC 120–51 three 

times to address evolving research and 

concepts of CRM. 

The FAA recognizes the need to 

continue to review air carrier training 

and qualification regulations, policies, 

and guidance to ensure they are current 

and relevant and addresses new 

technology and research. Therefore, in 

January 2014, the FAA chartered the Air 

Carrier Training ARC to provide a forum 

for the U.S. aviation community to 

continue to discuss, prioritize, and 

provide recommendations to the FAA 

concerning air carrier training. 

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69914 Federal Register / Vol. 81, No. 195 / Friday, October 7, 2016 / Proposed Rules 

E. Flight Crewmember Mentoring, 

Leadership, and Professional 

Development Aviation Rulemaking 

Committee (MLP ARC) 

1. Background 

On September 15, 2010, the FAA 

established the MLP ARC as required by 

Public Law 111–216. The MLP ARC 

membership consisted of 

representatives from the Air Line Pilots 

Association (ALPA), Air Transport 

Association (ATA) (now known as 

Airlines for America), Coalition of 

Airline Pilots Associations (CAPA), 

National Air Carrier Association 

(NACA), National Association of Flight 

Instructors (NAFI), Regional Airline 

Association (RAA), and the University 

Aviation Association (UAA). 

The Administrator tasked the MLP 

ARC with developing recommendations 

to submit to the FAA for rulemaking 

consideration. Specifically the MLP 

ARC considered and addressed the 

topics as required by section 206(a)(1) of 

Public Law 111–216 and as specified in 

the ARC charter. The MLP ARC 

presented its report and 

recommendations to the FAA on 

November 2, 2010 (‘‘Report from the 

MLP ARC’’). 

NACA filed a dissenting report to the 

MLP ARC recommendations, asserting 

that the recommendations were too 

prescriptive and did not provide 

sufficient scalability for smaller airlines. 

A copy of the Report from the MLP 

ARC, including NACA’s dissenting 

report, has been placed in the docket for 

this rulemaking. 

2. Summary of Recommendations and 

Dissenting Views 

a. Mentoring Programs 

Based on section 206(a)(1)(A) of 

Public Law 111–216, the FAA asked the 

MLP ARC to consider and address 

flightcrew member mentoring programs. 

In response to this tasking, the MLP 

ARC recommended the creation of two 

mentoring programs: Long-term career 

mentoring and flightcrew mentoring. 

The long-term career mentoring would 

be accomplished by a relationship 

between a prote ́ge ́ pilot and a highly 

experienced senior pilot. Flightcrew 

mentoring would be facilitated by the 

short-term relationship between every 

PIC and SIC prote ́ge ́ that occurs 

naturally with each crew pairing. The 

MLP ARC also recommended that career 

mentors be paired with prote ́ge ́ pilots at 

the following career milestones: (1) 

New-hire pilots during their first year 

following initial hire, (2) operational 

transitions, and (3) PICs during their 

first year following upgrade to PIC. 

Additionally, the MLP ARC 

recommended that flightcrew mentors 

submit a prote ́ge ́ report to the career 

mentor for every crew pairing with a 

new-hire pilot during the new-hire 

pilot’s first year. 

To support FAA analysis of the MLP 

ARC recommendations related to 

mentoring, the FAA Civil Aerospace 

Medical Institute (CAMI), Human 

Factors Research Laboratory, reviewed 

mentoring research literature to (1) 

assess the benefits of mentoring as it 

was related to improving pilot 

airmanship, aeronautical decisionmaking, and professionalism, (2) assess 

effectiveness of mentoring programs 

across a range of occupations, and (3) 

make recommendations regarding the 

development of mentoring programs, 

the selection and training of mentors, 

and the expected benefits to mentors 

and prote ́ge ́s. CAMI developed a report 

of the research review and 

recommendations in a document titled 

‘‘Determining the Feasibility and 

Effectiveness of Aircraft Pilot Mentoring 

Programs May 2015’’ (Report from 

CAMI). The FAA notes that although the 

report identifies some limitations in the 

mentoring research, the report does 

provide several mentoring program 

recommendations based on the available 

literature. The FAA has provided a copy 

of this report in the docket for this 

rulemaking. 

The FAA agrees with certain elements 

of the MLP ARC recommendations 

pertaining to flightcrew member 

mentoring programs and is proposing 

PIC mentoring training. However, the 

FAA does not agree with the MLP ARC 

recommendation for career mentors and 

the associated recommendation for PICs 

to submit a report to the career mentor 

after every crew pairing with a new-hire 

pilot. These recommendations do not 

allow for the many air carrier-specific 

factors that must be considered in the 

development, administration, and 

oversight of a formal pilot mentoring 

program. Further, the Report from CAMI 

identified factors such as air carrier 

culture, goals and objectives as 

important to the development of a 

mentoring program. See Report from 

CAMI at p. 20, 21, 30 and 46. The FAA 

agrees with NACA’s recommendation 

that flexibility must be allowed in the 

development of a formal pilot mentoring 

program. The FAA’s proposals regarding 

PIC mentoring training and a formal 

pilot mentoring program are addressed 

in further detail in the portion of the 

document titled ‘‘III. Discussion of the 

Proposal, D. PIC Mentoring Training’’ 

and ‘‘III. Discussion of the Proposal, I. 

Pilot Professional Development 

Committee (§ 121.17).’’ 

b. Professional Development 

Based on section 206(a)(1)(B) of 

Public Law 111–216, the FAA tasked 

the MLP ARC to consider and address 

procedures to ‘‘Establish flight 

crewmember professional development 

committees made up of air carrier 

management and labor union or 

professional association representatives 

to develop, administer, and oversee 

formal mentoring programs of the 

carrier to assist flight crewmembers to 

reach their maximum potential as safe, 

seasoned, and proficient flight 

crewmembers.’’ In response to this 

tasking, the MLP ARC recommended the 

creation of a Professional Development 

Steering Committee (PDSC) at each air 

carrier to meet at least quarterly. The 

MLP ARC stated that ‘‘[h]aving in place 

positive programs that continually 

develop and cultivate professionalism 

will, in the ARC‘s view, have a 

profound impact on safety, 

standardization, professional ethics, and 

integrity.’’ To this end, the MLP ARC 

further stated that ‘‘the 14 CFR should 

provide specific guidance on the 

responsibility of each air carrier’s 

professional development programs’’ 

and outlined objectives for all 

stakeholders (i.e., the air carrier, the 

pilots and the industry). See Report 

from the MLP ARC at p. 7. 

The MLP ARC recommended that the 

PDSC’s responsibilities include areas 

such as professional development, pilot 

mentoring, and certain pilot training 

subjects. A number of additional areas 

of PDSC responsibility contemplated by 

the MLP ARC fall within the purview of 

air carrier management (e.g., the hiring 

process and development of the training 

program) or are outside of the scope of 

the tasking (e.g., share de-identified data 

with industry and academia). 

In connection with the tasking to 

consider flightcrew member 

professional development committees, 

the MLP ARC also recommended the 

creation of a full-time part 119 

professional development position 

dedicated solely to the professional 

development program at the air carrier. 

Further the MLP ARC recommended 

that the individual who holds this 

position meet the following 

qualifications: (1) Hold an ATP 

certificate; (2) have at least 3 years of 

experience as a part 121 pilot; (3) hold 

a bachelor’s degree; and, (4) be qualified 

through training, experience and 

expertise. The MLP ARC also 

recommended that the PDSC consist of 

leaders of flight operations management 

and pilot representatives, such as from 

the pilots’ union, and focus on career 

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20See FAA Order 8900.1 Volume 3, Chapter 34, 

Section 1 for guidance to inspectors regarding 

mergers and acquisitions. 

professional development programs 

specific to the air carrier. 

NACA dissented from the 

recommendation to require a part 119 

management official to head the PDSC 

although it concurred that a professional 

development position is important. 

NACA explained that new and smaller 

airlines commonly employ personnel 

who fulfill multiple management 

responsibilities (e.g. a small airline’s 

director of safety may also serve as 

director of security). Further, NACA 

noted that the qualifications for the part 

119 management official recommended 

by the MLP ARC do not relate to 

professional development, mentoring, or 

leadership qualifications. 

The FAA agrees with certain elements 

of the MLP ARC recommendations 

pertaining to the creation of a 

professional development steering 

committee to develop, administer and 

oversee a formal pilot mentoring 

program. Consistent with the MLP ARC 

recommendations, the FAA recognizes 

the importance of both management and 

pilot participation in a committee 

focused on pilot professional 

development. However, regarding 

management qualifications, the FAA’s 

proposal balances the MLP ARC 

recommendations with NACA’s dissent. 

The FAA proposes to require the 

management representative who serves 

on such a committee to have certain 

qualifications to capture relevant 

operational experience, but is not 

required to be a part 119 management 

official. This component of the FAA’s 

proposal is addressed in further detail 

in the portion of the document titled 

‘‘III. Discussion of the Proposal, I. Pilot 

Professional Development Committee 

(§ 121.17).’’ 

c. Establish or Modify Training 

Programs To Accommodate 

Substantially Different Levels and Types 

of Experience 

Based on section 206(a)(1)(C) of 

Public Law 111–216, the FAA asked the 

MLP ARC to consider and address 

‘‘Methods to establish or modify 

training programs to accommodate 

substantially different levels and types 

of experience.’’ The MLP ARC 

recommended amendments to the part 

121 training content requirements for 

indoctrination training as the most 

appropriate means by which to address 

this tasking. 

The MLP ARC recommended that 

indoctrination training address three 

broad subject areas: (1) An overview of 

air carrier management and the pilot 

union (as applicable); (2) flight 

operations; and, (3) professional 

development. The MLP ARC provided a 

summary of content for each of the three 

subject areas, noting some degree of 

overlap with current training content 

requirements in part 121. The MLP ARC 

further recommended that part 121 

indoctrination training should allow the 

training to be tailored to each air 

carrier’s equipment and operational 

environment. 

NACA provided a dissenting view 

with respect to the MLP ARC’s 

indoctrination training 

recommendations. NACA does not 

believe the MLP ARC recommendations 

fulfill the intent of the tasking because 

the MLP ARC recommended increasing 

indoctrination training to cover a wider 

range of topics but did not allow for 

training to be adjusted for specific pilot 

groups and assumed all pilot 

indoctrination training classes are 

conducted in a similar fashion. 

The FAA agrees with the intent of the 

recommendations to strengthen pilot 

indoctrination training but has not 

included amendments to basic 

indoctrination training in this proposal. 

The FAA does not believe that the 

recommended approach to 

accommodate different levels and types 

of experience is necessary because of 

the recent changes to part 121 air carrier 

pilot certification requirements and the 

redundancy with other existing training 

requirements. 

The Pilot Certification final rule, 

issued after the MLP ARC developed its 

recommendations, requires all pilots in 

part 121 operations to hold an ATP 

certificate and a type rating. Further, 

recognizing pilots come from various 

backgrounds, the rule requires ATP 

applicants to complete an ATP–CTP 

that addresses the potential knowledge 

gap between a commercial pilot 

certificate and an ATP certificate. This 

prerequisite eligibility requirement for 

an ATP certificate (the ATP–CTP) 

provides foundational knowledge in 

many subject areas, including air carrier 

operations, leadership and command, 

professional development and crew 

resource management (CRM). Thus, the 

Pilot Certification rule requirements 

raise the baseline knowledge and 

experience level for pilots prior to 

serving at an air carrier. 

Additionally, as acknowledged by the 

MLP ARC, much of the content 

suggested for indoctrination training is 

currently required by part 121 (e.g., 

hazardous materials training (subpart 

Z), icing subjects (§ 121.629), weight 

and balance (§ 121.419)). In addition, 

some of the recommended content, such 

as security training, is required by other 

federal agency regulations (e.g., aircraft 

operator’s security program training 

required by the Transportation Security 

Administration (49 CFR 1544.233)). 

The FAA also agrees with the MLP 

ARC recommendation that 

indoctrination training should be 

tailored to the air carrier’s unique 

operational environment. Currently, 

§ 121.415(a)(1)(iii)–(iv) requires 

indoctrination training to include 

contents of the air carrier’s certificate 

and operations specifications, and 

appropriate portions of the air carrier’s 

operating manual. Therefore, the FAA 

expects that individual air carrier’s 

indoctrination training curriculum is 

already tailored to its environment in 

accordance with the existing regulatory 

requirement in § 121.415(a)(1). 

Further, the MLP ARC recommended 

the inclusion of industry best practices 

in an Advisory Circular (AC) or a 

standard training template pertaining to 

indoctrination training. Since this 

proposal does not include amendments 

to basic indoctrination, the FAA has not 

developed an AC specific to basic 

indoctrination. However, on March 16, 

2010, the FAA published InFO 10002 

Industry Best Practices Reference List 

which provides a comprehensive list of 

resources available for use in the 

development of training curriculums. 

The MLP ARC also recommended that 

the PDSC should develop special 

indoctrination training for all pilots 

when special events occur in the life of 

the air carrier, such as mergers or 

acquisitions, to ensure that all pilots 

operate from a standard operating 

procedure. The FAA does not agree with 

the recommendation to require the 

PDSC to develop special indoctrination 

training for special events because 

current regulations already require air 

carriers to provide training for special 

events. Section 121.415(g) requires air 

carrier training programs to include 

ground and flight training, instruction, 

and practice, as necessary to ensure 

pilots qualify in new equipment, 

facilities, procedures, and techniques. 

Thus, an air carrier involved in a merger 

or acquisition is already required to 

provide training, as necessary, to ensure 

all pilots are operating from a standard 

operating procedure.20

Although the FAA has not included 

the MLP ARC recommendations for 

amendments to indoctrination training 

in this proposal, the FAA has proposed 

a requirement for operations 

familiarization. This component of the 

FAA’s proposal is addressed in the 

portion of the document titled, ‘‘III. 

Discussion of the Proposal, B. 

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Operations Familiarization 

(§ 121.432(d)).’’ 

d. Enhancements To Upgrade Training 

To Include Leadership and Command 

Training 

Based on section 206(a)(1)(D) of 

Public Law 111–216, the FAA asked the 

MLP ARC to consider and address 

enhancements to upgrade training to 

include leadership and command. In 

response to this tasking, the MLP ARC 

discovered there is wide variation 

among part 121 air carriers regarding 

leadership and command training for 

new PICs. The MLP ARC stated that 

current part 121 training requirements 

are ‘‘not written in such a manner to 

ensure that new captains will receive a 

comprehensive education on subjects 

which are foundational to command, 

leadership, and professionalism.’’ See 

Report from the MLP ARC at p. 22. The 

MLP ARC recommended that part 121 

air carriers should develop and 

implement a leadership and command 

course for all SICs attempting to qualify 

as PIC for the first time in a specific 

aircraft type. 

The MLP ARC recommended that this 

leadership and command course be 

developed as a training event separate 

from the normal upgrade syllabus. 

Additionally, the MLP ARC 

recommended that the course consist of 

a minimum of 32 hours of in-person 

facilitated class discussion separated 

into two segments; the first segment to 

be completed prior to upgrade training 

and the second segment to be completed 

between 6 and 18 months after the 

completion of PIC operating experience. 

NACA opposed the prescribed 32 

hours of in-person, facilitated training. 

NACA did not oppose leadership and 

command training, but stated 32 hours 

of training for one topic was extreme 

and costly. NACA also stated that each 

air carrier should be allowed to develop 

a leadership and command course that 

best suits that air carrier’s needs. 

In addition to the MLP ARC, two 

other ARCs subsequently considered 

leadership and command training. The 

ACSPTARC determined that leadership 

and command courses varied among air 

carriers and recommended rulemaking 

and associated guidance to implement 

leadership and command training for 

new PICs. The THRR ARC also 

considered leadership training for all 

PICs, including the MLP ARC 

recommendations in this area. The 

THRR ARC stated that current upgrade 

training ‘‘does not necessarily provide 

education to the new PIC on his or her 

leadership role.’’ The THRR ARC also 

stated that ‘‘Crew Resource Management 

training, required for all air carriers, 

contains some elements of the desired 

leadership training, but is not designed 

to aid the PIC in assuming a leadership 

role in the aircraft and the air carrier as 

the training envisioned by this ARC 

would.’’ See Report from the THRR ARC 

at p. 17. The THRR ARC agreed with the 

MLP ARC to require leadership and 

command training for SICs attempting 

to qualify as PIC for the first time in a 

specific aircraft type. The THRR ARC 

also agreed with the MLP ARC that this 

course should be separate from current 

upgrade training requirements and 

consist of two segments. However, the 

THRR ARC disagreed with the MLP 

ARC recommendation for a minimum of 

32 hours of training. The THRR ARC 

recommended using an instructional 

system design (ISD) process which 

would allow each air carrier to 

determine the training time. The THRR 

ARC was also concerned that a 

prescribed minimum training time 

would not address scalability concerns 

of small air carriers. 

Additionally, the THRR ARC 

concurred with the MLP ARC that a 

facilitated discussion was a key 

component of a leadership and 

command course. However, the THRR 

ARC stated that additional items in a 

leadership and command course may be 

suitable for distance learning. 

The FAA agrees with the MLP ARC 

and THRR ARC recommendations to 

require leadership and command 

training for all SICs attempting to 

qualify as PIC for the first time in a 

specific aircraft type but does not agree 

with the recommendation that 

leadership and command training 

should be separate from the upgrade 

syllabus. Further, the FAA believes that 

the MLP ARC recommendations for a 

specific minimum number of training 

hours and in-person training are 

unnecessarily prescriptive. The FAA 

agrees with the THRR ARC and NACA 

positions pertaining to the necessity of 

flexibility in the development of 

leadership and command training. 

Accordingly, the FAA is proposing a 

comprehensive revision to the SIC to 

PIC upgrade training requirements to 

include leadership and command 

training in a performance based 

curriculum. The FAA’s proposals 

regarding PIC leadership and command 

training and upgrade training are 

addressed in further detail in the 

portion of the document titled ‘‘III. 

Discussion of the Proposal, C. PIC 

Leadership and Command Training’’ 

and ‘‘III. Discussion of the Proposal, E. 

SIC to PIC Upgrade (§§ 121.420 and 

121.426).’’ 

e. Enhancements to Recurrent Training 

To Include Leadership and Command 

Training 

Based on section 206(a)(1)(E) of 

Public Law 111–216, the FAA asked the 

MLP ARC to consider and address 

enhancements to recurrent training to 

include leadership and command. In 

response to this tasking, the MLP ARC 

determined that there is no current 

regulatory requirement for leadership 

and command training in recurrent 

training. The MLP ARC recommended 

that part 121 air carriers enhance 

recurrent training by integrating 

leadership and command components 

into the various forms of recurrent 

training (e.g. distance instruction, 

classroom, FSTD briefing, and FSTD 

training). The MLP ARC recommended 

that the leadership and command 

components that an air carrier 

incorporates into annual recurrent 

training as emphasis items be 

determined by the PDSC, with all 

components being included in recurrent 

training at least once during a 4-year 

cycle. Further, the MLP ARC 

recommended that special emphasis be 

given to sterile flight deck procedures. 

The FAA agrees with the MLP ARC 

recommendation to include leadership 

and command in recurrent training and 

also agrees that the delivery of recurrent 

leadership and command training may 

be accomplished through a range of 

methods. However, the FAA does not 

agree with the MLP ARC 

recommendation regarding the 

frequency for recurrent leadership and 

command training. Since leadership and 

command skills are used regularly, 

during every flight, and therefore are 

less susceptible to degradation, the FAA 

does not believe it is necessary to 

require leadership and command 

training annually. Further, the FAA 

does not agree with the MLP ARC 

recommendation that the PDSC should 

determine the content of the training. 

Development of training curriculums is 

the responsibility of air carrier 

management. This component of the 

FAA’s proposal is addressed in further 

detail in the portion of the document 

titled ‘‘III. Discussion of the Proposal, G. 

Recurrent Leadership and Command 

Training and Mentoring Training 

(§§ 121.409(b) and 121.427).’’ 

f. Other Actions That May Enhance 

Professional Development 

Based on section 206(a)(1)(F) of 

Public Law 111–216, the FAA asked the 

MLP ARC to consider and address 

‘‘Other actions that may enhance 

crewmember professional 

development.’’ The MLP ARC made 

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21The 2012 Pilot Source Study is available in the 

docket for this rulemaking. 

22 In accordance with 14 CFR 135.3, a certificate 

holder that conducts commuter operations under 

part 135 with airplanes in which two pilots are 

required by the type certification rules must comply 

with subparts N and O of part 121 instead of the 

requirements of subparts E, G, and H of part 135. 

three recommendations in this area: (1) 

Enhancements to knowledge tests and 

practical test standards (PTS); (2) 

bachelor’s degree for pilots in part 121 

operations; and (3) leadership and 

command training for pilots currently 

employed. 

Enhancements to Knowledge Tests and 

PTS 

The MLP ARC stated ‘‘that in order to 

ensure that an ATP pilot applicant at 

any part 121 air carrier has a 

foundational knowledge of the concepts 

of professional development, 

leadership, and command; the PTS 

requirements for the Commercial, Flight 

Instructor, and ATP certificates should 

incorporate these elements into the 

written, practical, and/or oral portions 

of pilot certification.’’ See Report from 

the MLP ARC at p. 29. 

The FAA agrees with the intent of the 

recommendation to ensure ATP 

applicants at a part 121 air carrier have 

the foundational knowledge of 

professional development, leadership 

and command. However, the FAA does 

not agree with the recommended 

approach of amending the PTS because 

the FAA believes the Pilot Certification 

rule addressed this recommendation. 

As previously discussed, the Pilot 

Certification rule, issued after the MLP 

ARC developed its recommendations, 

requires all pilots in part 121 operations 

to hold an ATP certificate and a type 

rating. Further, the Pilot Certification 

rule requires ATP applicants to 

complete an ATP–CTP that provides 

foundational knowledge in leadership 

and command, professional 

development, and CRM. Additionally, 

as stated in the Pilot Certification rule, 

the ATP–CTP course topics will be 

incorporated into the ATP knowledge 

test. See 78 FR at 42368. 

Bachelor’s Degree for Pilots in Part 121 

Operations 

The MLP ARC recommended that 

pilots hired by part 121 air carriers be 

required to have a minimum of a 

bachelor‘s degree or equivalent military 

flight training. NACA provided a 

dissenting view that many highly 

qualified and experienced applicants 

may be eliminated due to this 

requirement. NACA believes each 

carrier should be able to set its own 

hiring qualifications. 

As indicated in the 2012 Pilot Source 

Study, there was no difference in the 

completion rate of a part 121 air 

carrier’s training program between 

pilots with a bachelor’s degree and 

pilots without a bachelor’s degree.21

Although the Pilot Source Study did 

indicate pilots with at least an associate 

degree in aviation had a higher 

completion rate of part 121 air carrier 

training programs, the FAA believes 

each air carrier should have the 

flexibility to set its own hiring 

requirements for higher education. 

Therefore, this proposal does not 

include a requirement for part 121 pilots 

to have a bachelor’s degree. 

Leadership and Command Training for 

Pilots Currently Employed 

The MLP ARC recommended that 

each air carrier‘s PDSC develop a 

process or training program to ensure 

that all PICs are qualified in the 

principles of the entire leadership and 

command program. In addition, the 

MLP ARC recommended that each air 

carrier’s PDSC develop a process or 

training program that ensures all pilots 

at an air carrier understand the entire 

professional development and 

mentoring programs. 

The FAA agrees with the intent of the 

recommendation to ensure all PICs have 

completed the air carrier’s training in 

leadership and command and is 

proposing a requirement for all current 

PICs to complete leadership and 

command training equivalent to the 

leadership and command training in the 

air carrier’s upgrade ground training. 

However, the regulatory framework for 

part 121 training program designates the 

development of an approved pilot 

training curriculum as the exclusive 

responsibility of air carrier management, 

not a committee such as the PDSC. This 

component of the FAA’s proposal is 

addressed in the portion of the 

document titled, ‘‘III. Discussion of the 

Proposal, F. Training for Pilots 

Currently Serving as PIC (§ 121.429).’’ 

Finally, the FAA agrees with the 

intent of the recommendation to ensure 

all pilots at an air carrier understand the 

professional development and 

mentoring programs. However, the FAA 

believes this recommendation is the 

responsibility of each air carrier’s Pilot 

Professional Development Committee 

(PPDC) in developing, administering, 

and overseeing a formal pilot mentoring 

program. Therefore, this proposal does 

not include a separate requirement to 

address this recommendation. 

III. Discussion of the Proposal 

A. Applicability, Effective Date, and 

Compliance Date 

This proposal affects operators that 

train and qualify pilots in accordance 

with part 121 and therefore primarily 

affects certificate holders conducting 

part 121 operations. Certificate holders 

that conduct operations under part 121 

may train and qualify pilots in 

accordance with the provisions of 

current subparts N and O or under an 

Advanced Qualification Program (AQP) 

in accordance with subpart Y of part 

121. AQP allows for an alternative 

method for training and evaluating 

pilots based on instructional systems 

design, advanced simulation equipment, 

and comprehensive data analysis to 

continuously validate curriculums. 

Requirements of subparts N and O that 

are not specifically addressed in the 

certificate holder’s AQP continue to 

apply to the certificate holder and to the 

individuals being trained and qualified 

by the certificate holder. See 

§ 121.903(b). Although the proposed 

rule does not make any changes to 

subpart Y, after the new subparts N and 

O training requirements become 

effective (60 days after publication of a 

final rule in the Federal Register), 

certificate holders that use AQP would 

have to review their training 

curriculums to make sure they address 

the new subparts N and O requirements 

before the proposed compliance date (24 

months after the effective date). 

Additionally, the proposal affects 

some certificate holders conducting part 

135 commuter operations.22 Further, 

operators conducting operations under 

91K or under part 135 authorized to 

voluntarily comply with subparts N and 

O of part 121 may also be affected. 

For all of the proposals in this NPRM, 

the FAA is proposing an effective date 

of 60 days after publication of a final 

rule in the Federal Register. However, 

the FAA is proposing a delayed 

compliance date of 24 months after the 

effective date for the proposals 

pertaining to operations familiarization, 

leadership and command training, 

mentoring training, the revised upgrade 

curriculum, and the Pilot Professional 

Development Committee, as indicated 

in the regulatory text. Under this 

proposal, all PICs would have to 

complete leadership and command and 

mentoring training no later than the 

compliance date. The FAA expects that 

the delayed compliance date would 

allow sufficient time for air carriers to 

revise training curriculums, receive 

FAA approval of those curriculums, 

train the instructors who would conduct 

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23The FAA clarifies that a person completing 

conversion training after serving as a flight engineer 

for the air carrier is not a ‘‘newly employed pilot.’’ 

This person is completing training to serve in a new 

flightcrew member duty position but is not ‘‘newly 

employed’’ by the air carrier. 

24Section 121.431(b) defines operating cycle as 

‘‘a complete flight segment consisting of a takeoff, 

climb, enroute portion, descent, and a landing.’’ 

the training, and provide this training to 

all PICs. 

In addition, although compliance 

with the revised upgrade curriculum 

requirements would not be required 

until 24 months after the effective date, 

the FAA proposes to provide flexibility 

by allowing those air carriers that 

choose to comply earlier to do so. The 

proposed revisions to §§ 121.419 and 

121.424 would allow an air carrier to 

include in its approved training 

program either the existing upgrade 

curriculum or the revised upgrade 

curriculum until the compliance date. 

B. Operations Familiarization 

(§ 121.432) 

Currently, a pilot newly employed by 

an air carrier may serve as a pilot in part 

121 operations without first observing 

actual operations conducted by the air 

carrier. The MLP ARC, however, 

recommended that all pilots complete 

one or more observation flights before 

beginning service with a part 121 

operator as one of a number of revisions 

to air carrier indoctrination training. 

The MLP ARC identified observation 

flights as providing a valuable 

introduction for new-hire pilots to an air 

carrier’s operations and company 

procedures. The MLP ARC explained 

that, ‘‘[t]hese flights should be used as 

an integral part of the indoctrination 

training process helping to reinforce 

information learned during training and 

ease the transition to line operations.’’ 

See Report from the MLP ARC at p. 17. 

The FAA is aware that some air 

carriers already recognize the benefit of 

these flights and currently require 

operations familiarization flights for 

newly employed pilots. Additionally, 

the ACSPT ARC also identified 

observations flights as a best practice in 

use at several air carriers. The ACSPT 

ARC indicated that observation flights 

allow a new-hire pilot to be better 

prepared to serve in line operations 

because the pilot would have gained 

familiarity with typical line operations 

‘‘without becoming task saturated in the 

control seat of a new, unfamiliar 

environment.’’ See Report from the 

ACSPT ARC at p. 37. 

The FAA agrees with the MLP ARC 

recommendation for observation flights 

and proposes to add a requirement for 

newly employed pilots to complete 

operations familiarization before 

beginning operating experience and 

serving as a pilot in part 121 operations 

for the air carrier.23 See § 121.434. The 

operations familiarization must include 

at least two operating cycles 24 during 

part 121 operations conducted by the air 

carrier. During the operating cycles, the 

newly employed pilot must occupy the 

flight deck observer seat and use a 

headset that allows the newly employed 

pilot to listen to the communications 

between the required flightcrew 

members and air traffic control. The 

proposed operations familiarization may 

occur in any airplane type operated by 

the air carrier in part 121 operations 

because the FAA believes that each air 

carrier’s processes are similar among 

airplane types. Operations 

familiarization during or soon after the 

completion of basic indoctrination 

training would provide newly employed 

pilots with an opportunity to observe 

from the flight deck in a real world 

environment, the unique characteristics 

of the air carrier’s operations and the 

specialized processes learned during 

basic indoctrination training. 

In order to achieve the operations 

familiarization goals, the FAA believes 

that a minimum of two operating cycles 

are necessary to provide the newly 

employed pilot with sufficient exposure 

to an air carrier’s operations and 

processes. During each flight, the newly 

employed pilot may observe different 

operational events, processes and 

briefings (e.g., types of departures and 

arrivals, airports, ramp operations, 

checklist sequences, varying weather, 

and navigation methods). In addition, 

two operating cycles may allow the 

newly employed pilot to observe two 

different flight crews, as well as a 

complete round trip. 

The FAA expects each pilot 

completing operations familiarization to 

remain on the flight deck and in the 

observer seat for takeoff and landing as 

well as during the en route portion of 

the flight. These pilots may, however, 

leave the flight deck to attend to 

physiological needs, and during long 

haul operations, for reasonable rest 

breaks. 

Finally, the FAA recognizes that 

certain airplanes used in part 121 

operations do not have an observer seat 

in the flight deck. Therefore, the 

proposed rule provides a process for an 

air carrier to request a deviation from 

the operations familiarization 

requirements to meet the learning 

objectives through another means. 

C. PIC Leadership and Command 

Training 

1. General Description and Objectives 

Although the MLP ARC and the 

ACSPT ARC reported that some air 

carriers provided leadership and 

command training, the current part 121 

training requirements do not 

specifically require air carrier training 

programs to include leadership and 

command instruction. The purpose of 

leadership and command training is to 

provide PICs with the leadership and 

command skills necessary to manage the 

crew (including flight attendants, if 

applicable), communications, workload, 

and decision-making in a manner that 

promotes professionalism and 

adherence to standard operating 

procedures. Accordingly, an air carrier’s 

leadership and command training 

should include subjects such as 

leadership characteristics, types of 

leaders, leadership strategies, roles of a 

leader, leadership styles, command 

responsibility and authority, sound 

decisions and awareness. 

Consistent with the MLP ARC 

recommendation to ensure all PICs are 

qualified in the principles of leadership 

and command, the FAA is proposing to 

require all PICs serving in part 121 

operations to complete leadership and 

command training. Specifically, the 

FAA is proposing that this training be 

included during ground and flight 

training in the PIC upgrade curriculum 

(or the initial curriculum for the limited 

circumstance of a new-hire PIC), as well 

as the PIC recurrent curriculum. The 

FAA is also proposing that all pilots 

qualified to serve as PIC prior to the 

compliance date must complete the PIC 

upgrade ground training on leadership 

and command. 

The FAA has drafted an AC 

containing guidelines for the 

development of leadership and 

command training and provided a copy 

of this document in the docket for this 

rulemaking. The FAA seeks comment 

on this draft AC. 

2. Distance Instruction 

Although the MLP ARC 

recommended facilitated in-person 

training for leadership and command, 

this proposal does not place restrictions 

on distance instruction as long as the 

leadership and command training 

objectives can be satisfied. The FAA 

believes that the MLP ARC and THRR 

ARC recommendations for a facilitated 

discussion during leadership and 

command training can be accomplished 

either in-person or with existing 

technology. Moreover, the proposal for 

leadership and command training is not 

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25Section 121.436(a)(3) requires a pilot in 

command serving in part 121 operations to have 

1,000 hours as second in command in part 121 

operations, pilot in command in operations under 

§ 91.1053(a)(2)(i), pilot in command in operations 

under § 135.243(a)(1), or any combination thereof. 

limited to ground training. The FAA has 

proposed that leadership and command 

must be demonstrated during the flight 

training portion of the upgrade 

curriculum and during recurrent LOFT. 

The FAA seeks comment, however, on 

whether restrictions on distance 

instruction are necessary to ensure the 

effectiveness of the leadership and 

command components of PIC training. 

The FAA asks commenters to specify 

whether the curriculum in which 

leadership and command training is 

required (e.g., PIC initial, upgrade, 

recurrent) constitutes a basis for 

differentiating any restrictions on 

distance instruction. 

D. PIC Mentoring Training 

The FAA proposes to require training 

on mentoring skills for all PICs serving 

in part 121 operations to establish the 

mentoring environment recommended 

by the MLP ARC. The mentoring 

research literature indicates that mentor 

training is one of the most important 

and agreed upon elements for effective 

mentoring. See Report from CAMI p. 22 

and 23. The proposed mentoring 

training would include techniques for 

instilling and reinforcing the highest 

standards of technical performance, 

airmanship, and professionalism in 

newly employed pilots. By providing 

mentoring training to all PICs serving in 

part 121 operations, the opportunity 

exists for a PIC to mentor an SIC during 

each duty day. Accordingly, the benefits 

of SIC mentoring would be maximized 

by requiring all PICs to complete 

mentoring training. 

This training would be included in 

the PIC upgrade curriculum (or the 

initial curriculum for the limited 

circumstance of a new-hire PIC) and PIC 

recurrent ground training. The FAA has 

included mentoring skills in upgrade 

ground training because it complements 

the other related PIC ‘‘soft skills’’ (i.e., 

leadership and command and CRM). 

The FAA believes that collectively these 

‘‘soft skills’’ would enhance pilot 

professionalism. Further, all current 

PICs would also be required to complete 

the PIC upgrade ground training on 

mentoring skills to create a 

comprehensive and consistent 

mentoring environment. 

The FAA has developed a draft AC 

that provides guidelines for developing 

and implementing mentoring training 

for PICs and provided a copy of this 

document in the docket for this 

rulemaking. The FAA seeks comment 

on this draft AC. 

In addition, this proposal leverages 

the experience requirements required by 

the Pilot Certification rule for all PICs 

serving in part 121 operations. The Pilot 

Certification rule raised the experience 

requirements for all PICs serving in part 

121 operations by requiring at least 

1,000 hours of air carrier experience.25

Therefore, the FAA believes the 

increased experience requirements of 

the Pilot Certification rule together with 

this proposal would ensure every newly 

employed pilot is paired, on every 

flight, with an experienced pilot who 

can serve as a mentor. 

E. SIC to PIC Upgrade (§§ 121.420 and 

121.426) 

Currently, subpart N and appendix E 

of part 121 allow pilots who have 

previously qualified as SIC on an 

airplane type to complete upgrade 

training to qualify as PIC on that same 

airplane type. See §§ 121.400(c)(3), 

121.415, and 121.433(a)(2). The upgrade 

training requirements in subpart N and 

appendix E of part 121 presuppose that 

upon entering the upgrade curriculum, 

the pilot holds only a commercial pilot 

certificate with a multi-engine land 

class rating and no type rating on that 

airplane. As a result of this 

presupposition, the upgrade training 

requirements are focused on developing 

the technical knowledge and skills 

necessary to hold an ATP certificate and 

type rating for that airplane. However, 

the current role served by an SIC in part 

121 operations as well as the current 

SIC qualification requirements no longer 

support this foundation for upgrade 

training requirements. 

The historic division of 

responsibilities between the PIC and SIC 

has advanced over time from a flight 

deck environment where the PIC 

typically served as the pilot flying and 

the SIC typically served exclusively as 

the pilot monitoring. As this progression 

occurred, throughout various 

rulemakings, the FAA has amended the 

training, qualification, and experience 

requirements of SICs to recognize this 

advancement in SIC responsibilities. In 

the current air carrier environment, both 

the PIC and SIC share pilot flying and 

pilot monitoring responsibilities. Thus, 

in the Pilot Certification rule the FAA 

determined that it was appropriate to 

require an SIC to train to the same level 

of airplane handling and proficiency as 

the PIC by obtaining an airplane type 

rating. See 78 FR at 42354. As a result, 

with the Pilot Certification rule, the 

FAA elevated the qualifications of all 

SICs. 

With the changes put in place by the 

Pilot Certification rule, all SICs serving 

in part 121 operations must now hold 

an ATP certificate and type rating for 

the airplane in which they serve. 

Additionally, a pilot must have a 

minimum of 1,000 hours of air carrier 

experience to serve as a PIC. This means 

that SICs will have already 

demonstrated technical mastery of the 

airplane at the ATP certificate level 

when they begin upgrade training. 

Therefore, the FAA is proposing revised 

upgrade training requirements to 

account for this evolution in SIC 

qualification and experience 

requirements. The following proposed 

upgrade training would ensure technical 

knowledge and skills while focusing on 

the decision-making and leadership 

skills required of a PIC serving in part 

121 operations. 

1. Performance-Based Curriculum 

The FAA is proposing a performancebased upgrade curriculum. The proposal 

removes the requirement to include all 

existing upgrade ground training 

subjects required by § 121.419(a) and 

the § 121.424 requirement to include all 

appendix E maneuvers and procedures 

during upgrade flight training. Instead, 

the proposal refocuses upgrade ground 

and flight training to include subjects, 

maneuvers, and procedures specific to 

the duties and responsibilities the pilot 

will have as PIC at that air carrier. 

However, consistent with existing 

upgrade curriculum requirements, the 

proposed upgrade flight training 

continues to include rare, but high-risk 

scenarios. The FAA believes this 

approach would continue to allow air 

carriers to develop a robust upgrade 

curriculum specific to their operations 

and airplane types, and provides the 

opportunity for air carriers to more 

effectively target PIC-specific 

responsibilities and duties. 

Consistent with existing upgrade 

curriculum requirements, the proposal 

does not specify a minimum number of 

training hours. However, because the 

FAA has removed the requirement to 

train the entire range of § 121.419 

subjects and appendix E tasks in 

upgrade training, the FAA believes that 

the revised upgrade ground training can 

be completed in less time than the 

programmed hours currently identified 

in each air carrier’s approved training 

program and the upgrade flight training 

can be completed within the same or 

less time than currently identified in 

each air carrier’s approved training 

program. 

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26Typically, the PIC is assigned to and operates 

the airplane from the left seat and the SIC is 

assigned to and operates the airplane from the right 

seat. 

27ASAP, FOQA, and LOSA are voluntary 

programs implemented by many air carriers. 

Analysis of the data provided by these voluntary 

programs has contributed to increased safety 

including improvements to training and operational 

procedures. 

28Operations specification C078, IFR Lower Than 

Standard Takeoff Minim, 14 CFR part 121 Airplane 

Operations—All Airports 

2. Revised Upgrade Curriculum 

Requirements 

a. Seat Dependent and Duty Position 

Maneuvers and Procedures 

The proposed upgrade ground and 

flight training must include seat 

dependent maneuvers and procedures 

as well as duty position maneuvers and 

procedures. Seat dependent maneuvers 

and procedures include the use of 

systems with controls that are not 

centrally located, or are accessible or 

operable from only the left or from only 

the right pilot seat as identified by the 

airplane manufacturer, air carrier, or the 

Administrator as seat dependent tasks. 

For example, in some airplane types, the 

tiller used to steer the airplane while 

taxiing on the ground is only accessible 

from the left seat. In these airplane 

types, upgrade training must include the 

maneuvers and procedures for taxiing 

from the seat in which the operator 

expects the PIC to serve.26 The number 

of seat dependent maneuvers and 

procedures would vary among air 

carriers due to variations in the design 

of airplane types; some airplane types 

may not have any seat dependent 

maneuvers and procedures while other 

airplane types may have several. 

Duty position maneuvers and 

procedures include tasks specified by 

the airplane manufacturer, air carrier, or 

the Administrator, as PIC or SIC only 

tasks. For example, some air carrier 

procedures specify that only the PIC 

may perform a circling approach. In this 

instance, upgrade training must include 

the maneuvers and procedures for 

circling approaches. Additionally, 

certain maneuvers and procedures 

require coordinated action between the 

PIC and SIC to accomplish the 

maneuver or procedure. For these 

maneuvers and procedures, the air 

carrier’s standard operating procedures 

will specify who (SIC or PIC) performs 

each step of the maneuver or procedure. 

For example, during engine start, the 

PIC may perform the communication 

and coordination with the ramp 

personnel while the SIC physically 

turns the switch to engage the engine 

starter. In this instance, upgrade training 

must include engine start to train the 

pilot on the PIC required actions. The 

duty position procedures and 

maneuvers would vary by airplane type 

and air carrier. However, it is expected 

that all air carriers would have some 

duty position procedures, such as 

completion of weight and balance or 

variations of pre-flight, engine start, taxi 

and post-flight duties. 

b. Leadership and Command and CRM 

Under this proposal, upgrade ground 

training must include leadership and 

command, as well as CRM. CRM 

training includes decision making, 

authority and responsibility, and 

conflict resolution. The proposed 

upgrade flight training must include 

scenario-based training structured to 

incorporate CRM and leadership and 

command. The purpose of this scenariobased training is to provide the pilot 

with an opportunity to use these ‘‘soft 

skills’’ learned in ground training in a 

realistic flight environment. 

Scenario-based training should 

address specific training objectives 

based on technical and soft skills. As 

such, the scenario-based training may 

consist of full or partial flight segments 

and would necessarily vary, depending 

on the training objectives. Examples of 

scenarios include, but are not limited to, 

mechanical malfunctions, passenger 

medical events, changing weather, or 

security concerns. An effective scenario 

would provide an opportunity for the 

PIC to identify available resources, 

obtain information from those resources, 

analyze that information, apply 

decision-making techniques, and 

communicate and coordinate with ATC, 

the aircraft dispatcher, and other 

crewmembers, as appropriate. The FAA 

believes this scenario-based training 

would ensure the effective integration of 

these ‘‘soft skills’’ with technical skills. 

c. Mentoring 

The proposed upgrade ground 

training must include mentoring, to 

include techniques for instilling and 

reinforcing the highest standards of 

technical performance, airmanship, and 

professionalism in newly employed 

pilots. 

d. Low-Altitude Windshear and 

Extended Envelope Flight Training 

The proposed upgrade flight training 

must continue to include training in the 

rare, but high risk scenarios specified in 

§ 121.423 as well as the carrier’s 

approved low-altitude windshear flight 

training program. 

e. Additional Flight Training 

The proposed upgrade curriculum 

also must include sufficient flight 

training to ensure the pilot has attained 

the knowledge and skills to proficiently 

operate the airplane as a PIC. Under the 

proposed upgrade curriculum, the air 

carrier must determine the specific 

maneuvers and procedures for each 

airplane type considering its operational 

factors and authorizations, risks 

identified through its safety 

management system (SMS), and other 

risks identified through programs such 

as an Aviation Safety Action Program 

(ASAP), Flight Operational Quality 

Assurance (FOQA), and Line Operations 

Safety Audit (LOSA).27 For example, an 

air carrier may be authorized by FAA to 

conduct operations using lower than 

standard takeoff minima. As a condition 

of this authorization, each PIC must 

have completed training in the duty 

position for the applicable takeoff 

minima authorized for the air carrier.28

Therefore, in this instance, upgrade 

training must include takeoff maneuvers 

using the lower standard minima 

authorized for the air carrier. 

Additionally, the training must ensure 

the pilot has developed the visual and 

psychomotor acuity necessary to operate 

the airplane from the seat position to be 

occupied while serving as PIC, typically 

the left pilot seat. For example, a carrier 

authorized to conduct circling 

approaches may determine that the 

circling approach maneuver is required 

during upgrade flight training due to the 

altered visual references available to the 

pilot from the left pilot seat. 

3. Upgrade Proficiency Check 

Requirements 

To ensure a proficient PIC, the FAA 

proposes to revise the waiver provisions 

for a § 121.441 proficiency check 

completed after upgrade ground and 

flight training. Section 121.441 allows a 

person conducting a proficiency check 

to waive certain maneuvers if, among 

other requirements, the pilot has 

‘‘within the preceding six calendar 

months, satisfactorily completed an 

approved training program for the 

particular type airplane.’’ This waiver 

authority is premised on the 

requirement for the pilot to demonstrate 

proficiency in all maneuvers and 

procedures specified in appendix E 

during flight training. Since the 

proposed upgrade training requirements 

do not require pilots to complete all 

maneuvers and procedures in appendix 

E during training, proficiency must still 

be demonstrated for all maneuvers and 

procedures in appendix F during the 

proficiency check completed after 

upgrade training. Accordingly, the 

waiver provisions in § 121.441 and 

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29See FAA Order 8900.1, Volume 3, Chapter 19, 

Section 10. 30See §§ 121.423 and 121.427. 

appendix F would no longer be 

appropriate for the proficiency check 

completed after upgrade training. The 

waiver provisions for recurrent 

proficiency checks and proficiency 

checks after completion of initial, 

conversion, or transition training are 

unchanged. 

4. Effect of Revised Upgrade Curriculum 

on Recurrent Training 

To serve as a pilot in part 121 

operations, a pilot must satisfactorily 

complete recurrent ground and flight 

training within 12 calendar months 

preceding service as a pilot. See 

§§ 121.427 and 121.433(c). In order to 

track when this training is due, industry 

practice is to assign the pilot a ‘‘base’’ 

month; the month when recurrent 

training is due. A pilot may have a 

different base month for ground training 

and flight training. An air carrier may 

change a pilot’s base month (i.e., reset 

it to an earlier month in the 12-month 

recurrent interval) if the air carrier 

ensures that the pilot has met all 

requirements of recurrent training. 

Satisfactory completion of a 

qualification curriculum may provide 

an air carrier with an opportunity to 

reset a pilot’s base month if the 

qualification curriculum includes the 

recurrent training requirements. 

Under this proposal, an air carrier 

may continue to reset a pilot’s base 

month for recurrent flight training if the 

pilot satisfactorily completes the 

proposed upgrade flight training and 

proficiency check. The proposed 

upgrade requirements continue to meet 

the recurrent flight training 

requirements of § 121.427. However, 

under this proposal, an air carrier may 

not reset a pilot’s base month for 

recurrent ground training based upon a 

pilot’s satisfactory completion of the 

proposed upgrade ground training 

because the proposed upgrade 

curriculum requirements do not include 

all the subjects required by § 121.427 for 

recurrent ground training. 

As is the case today, a pilot’s base 

month for recurrent ground training 

may only be changed upon completion 

of upgrade ground training if the air 

carrier’s upgrade curriculum includes 

all recurrent ground training 

requirements of § 121.427.29 The FAA is 

aware that some carriers designed their 

upgrade curriculums to include all 

recurrent ground training requirements 

to change the pilot’s base month while 

other carriers designed their upgrade 

curriculums to only include the upgrade 

ground training requirements without a 

change to the pilot’s base month. 

Therefore, the FAA expects the change 

to upgrade ground training to have a 

minimal impact on recurrent training 

because air carriers may continue to 

design their upgrade curriculums in the 

same manner. 

F. Training for Pilots Currently Serving 

as PIC (§ 121.429) 

As discussed previously, the MLP 

ARC recommended that air carriers 

qualify all PICs in the principles of 

leadership and command. The MLP 

ARC also recommended the creation of 

a mentoring environment by training all 

PICs on mentoring skills. Consistent 

with these MLP ARC recommendations, 

the FAA is proposing that all pilots 

qualified to serve as PIC prior to the 

compliance date must complete the PIC 

upgrade ground training on leadership 

and command and mentoring. 

However, the FAA believes that it is 

unnecessarily burdensome for PICs to 

complete the one-time training on 

leadership and command and mentoring 

if the PIC has previously completed 

training that is duplicative of the 

proposed requirements in § 121.429. 

The MLP ARC and the ACSPT ARC 

reported that some air carriers have 

voluntarily provided leadership and 

command training to PICs. See Report 

from the MLP ARC at p. 22 and Report 

from ACSPT ARC at p. 10. 

Therefore, the FAA proposes to allow 

credit toward all or part of the 

requirements for leadership and 

command and mentoring training for 

current PICs based on leadership and 

command and mentoring training 

previously completed by these PICs at 

that air carrier. The FAA seeks comment 

on the proposal to allow credit for 

previously completed training at that air 

carrier, specifically: 

(1) Whether and to what extent air 

carriers are already providing leadership 

and command training and/or 

mentoring training for current PICs as 

described in the draft ACs included in 

the docket for this rulemaking; 

(2) Whether the previous training 

must have been provided as part of a 

training program approved by the FAA 

for that air carrier; 

(3) Whether the previous training 

must have been completed within a 

certain period of time prior to the 

effective date of the final rule; 

(4) What criteria and documentation 

should the FAA consider in determining 

whether all or part of the requirements 

have been met with previous training; 

and 

(5) What criteria and documentation 

should the FAA consider in determining 

whether a PIC completed all or part of 

the previous training at that air carrier. 

G. Recurrent PIC Leadership and 

Command and Mentoring Training 

(§§ 121.409(b) and 121.427) 

Consistent with the MLP ARC 

recommendation for enhancing 

recurrent training, the FAA proposes to 

require recurrent training on leadership 

and command for all PICs serving in 

part 121 operations. The FAA also 

proposes to require recurrent training on 

mentoring skills for all PICs serving in 

part 121 operations. 

The purpose of recurrent training is to 

ensure that flightcrew members remain 

competent in the performance of their 

assigned duties. The FAA has 

previously recognized that the necessary 

frequency for recurrent training is not 

the same for all subject areas and tasks. 

For example, most flight training tasks 

are required at least every 12 months, 

however, extended envelope flight 

training tasks are only required every 24 

or 36 months.30

The MLP ARC recommended that 

recurrent training include selected items 

from leadership and command training 

every year with all components being 

included at least once during a 4-year 

cycle. However, the FAA does not 

believe that it is necessary to require 

leadership and command training to be 

completed on an annual basis. Rather, 

the FAA believes the appropriate 

frequency for recurrent leadership and 

command and mentoring training is at 

least once every 36 months because 

these skills are used regularly, during 

every flight, and therefore are less 

susceptible to degradation. Therefore, 

the FAA proposes to require recurrent 

ground training on leadership and 

command and mentoring for PICs every 

36 calendar months. 

Currently, air carriers may substitute 

LOFT that meets the requirements of 

§ 121.409, for the recurrent proficiency 

check requirement specified in 

§ 121.441. LOFT is flight training 

conducted in an FFS using real-time 

scenarios of complete flight segments 

that address normal, non-normal, or 

emergency procedures and provides 

training in CRM. The FAA proposes to 

modify the existing recurrent LOFT 

scenario requirements in § 121.409. 

Specifically, the FAA proposes that the 

LOFT scenario must provide each PIC 

an opportunity to demonstrate 

leadership and command. This 

proposed amendment to recurrent LOFT 

is consistent with the proposal for 

upgrade flight training to include 

scenario-based training that 

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31See § 121.432(a). 

32An augmented flightcrew is a flightcrew that 

consists of more than the minimum number of 

flightcrew members required by the airplane type 

certificate to operate the airplane to allow a 

flightcrew member to be replaced by another 

qualified flightcrew member for in-flight rest. 

incorporates leadership and command 

skills. Additionally, it would provide an 

opportunity for the PIC to practice the 

integration of leadership and command 

skills with technical skills. The 

proposed requirement to include 

leadership and command skills during 

recurrent LOFT does not place any 

additional FFS time burden on air 

carriers who substitute LOFT for 

recurrent proficiency check 

requirements because the requirement 

can be met during the ordinary course 

of any LOFT that is currently part of an 

air carrier’s training program. However 

there may be some burden due to the 

need to amend an air carrier’s training 

program. This burden has been reflected 

in the information collection 

requirements that are discussed in 

Section IV Regulatory Notices and 

Analyses, E. Paperwork Reduction Act. 

H. Leadership and Command Training 

and Mentoring Training for SICs Serving 

in Operations That Require Three or 

More Pilots 

The FAA’s proposal to provide 

leadership and command training and 

mentoring training to PICs is consistent 

with the rulemaking requirements in 

Public Law 111–216. However, the FAA 

has long recognized that a pilot who 

serves as SIC in an operation that 

requires three or more pilots must be 

fully qualified to act as PIC of that 

operation (except for operating 

experience).31

Based on the current requirement for 

the SIC serving in an augmented 

flightcrew to be fully qualified to act as 

PIC, the FAA is considering including 

the requirements for leadership and 

command training and mentoring 

training in the requirements for these 

SICs.32 Accordingly, the FAA seeks 

comment on the following: 

(1) Whether the PIC leadership and 

command training should be included 

in the qualification requirements for 

pilots serving as the SIC in an 

augmented flightcrew; 

(2) Whether mentoring training 

should be included in the qualification 

requirements for pilots serving as the 

SIC in an augmented flightcrew; 

(3) Whether providing training in only 

one of the new subject areas (i.e., only 

leadership and command training or 

only mentoring training) would reduce 

the effectiveness of the training for these 

SICs; and 

(4) Whether providing training in only 

one of the new subject areas (i.e., only 

leadership and command training or 

only mentoring training) would reduce 

the effectiveness of the requirement for 

the SIC in an augmented flightcrew to 

be fully qualified to act as PIC. 

I. Pilot Professional Development 

Committee (§ 121.17) 

Public Law 111–216 and the MLP 

ARC report suggest that air carriers can 

maximize the benefits of the existing 

pilot operating rules and pilot training 

and evaluation through formal pilot 

mentoring programs. Accordingly, the 

FAA proposes to add a requirement for 

certificate holders conducting 

operations under part 121 to establish 

and maintain a pilot professional 

development committee (PPDC) to 

develop, administer, and oversee a 

formal pilot mentoring program. 

The FAA’s proposal to require each 

certificate holder conducting part 121 

operations to establish a PPDC is based 

on the premise that the PPDC must 

consider the attributes of the carrier 

itself in order to design a mentoring 

program. The mentoring research 

literature indicates one mentoring 

program approach will not necessarily 

fit all air carriers and it is important that 

the goals and objectives of the 

mentoring program are firmly tied to the 

air carrier’s culture. See Report from 

CAMI pp. 20, 21, 30 and 46. Therefore, 

to develop, administer, and oversee a 

formal pilot mentoring program, the 

FAA believes the PPDC would need to 

consider many factors, including the air 

carrier’s size and scope of operation 

(e.g., number of pilots, number of 

aircraft, number of operations, types of 

operations, and locations of operations), 

unique organizational culture, and 

unique hiring and advancement 

practices. For example, the pilots at a 

smaller air carrier with few bases of 

operation may have more frequent 

opportunities for ‘‘in person’’ mentoring 

during the course of a duty day than 

pilots at a larger air carrier with 

numerous bases and pilots. 

Alternatively, pilots at larger air carriers 

may utilize technology (e.g. video 

conferencing) to create mentoring 

opportunities. These are just two 

examples of why the FAA believes the 

parameters for a formal pilot mentoring 

program must be designed by the PPDC 

for each air carrier. 

The FAA proposes to require the 

PPDC to meet frequently enough to 

accomplish the objectives of the 

committee. Although the MLP ARC 

recommended quarterly meetings, the 

FAA believes that the same factors 

would affect the frequency of meetings. 

For example, the PPDC at a small carrier 

with limited hiring and advancement 

may not need to meet as frequently as 

at a larger carrier in order to accomplish 

and sustain the same mentoring 

program objectives. However, the FAA 

expects that in order for the PPDC to be 

effective, the committee must meet at 

least once a year. The FAA further notes 

that an air carrier may take advantage of 

existing labor-management collaborative 

initiatives and incorporate the PPDC 

into an existing committee structure. 

The proposal includes minimum 

staffing requirements for the PPDC. 

Specifically, the FAA proposes that the 

PPDC must consist of at least one 

management representative and at least 

one representative of the air carrier’s 

pilots. The FAA believes that mentoring 

programs at each air carrier would 

realize the most benefit by including the 

perspective and participation of both 

the air carrier’s management and its 

pilots. 

The FAA used the term management 

representative to mean any person who 

has been designated to represent 

management’s perspective on pilot 

mentoring. The FAA does not believe 

that it is necessary to require a part 119 

management official to oversee the 

committee. Therefore, to account for the 

varying sizes and organizational 

structures of part 121 air carriers, the 

FAA proposal specifies qualification 

requirements for the management 

representative who serves on the 

committee instead of adding a 

requirement for a new part 119 

management official to serve this 

purpose. 

The proposal requires at least one 

management representative who serves 

on the carrier’s PPDC to (1) have at least 

1 year experience serving as a PIC in 

part 121 operations, and (2) be qualified 

through training, experience, and 

expertise relevant to the PPDC’s 

responsibilities. The specific 

qualifications for the management 

representative are intended to capture 

relevant operational experience and do 

not include the MLP ARC 

recommendation for a bachelor’s degree 

because a highly qualified and 

experienced person could be eliminated 

with this requirement. 

The FAA has developed draft 

guidance pertaining to a PPDC and the 

development, administration, and 

oversight of a formal pilot mentoring 

program. The FAA seeks comment on 

this draft guidance which can be found 

in the docket for this rulemaking. 

The FAA also seeks comments on 

whether a PPDC and a formal pilot 

mentoring program is necessary in light 

of the FAA’s proposal to require all PICs 

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33For example, the ATP–CTP must include 

instruction on transport category aircraft 

performance. As indicated in AC 61–138 Airline 

Transport Pilot Certification Training Program, 

instruction on transport category aircraft 

performance should include an introduction to air 

carrier weight and balance systems. Therefore, for 

pilots who have completed the ATP–CTP, the Pilot 

Certification rule revised the initial ground training 

requirements to remove ‘‘principles of weight and 

balance’’ and focus the training on the air carrier’s 

specific method for determining weight and 

balance. 

34To implement the proposed amendments to 

recurrent ground training content for pilots, the 

FAA proposes revisions to § 121.427(b), that 

separate the recurrent ground training requirements 

by training population. Additionally, the FAA 

proposes to remove from § 121.427(b), the reference 

to § 121.805 because of the requirement in 

§ 121.415(a)(3) to complete § 121.805 training. 

35 14 CFR 110.2 definition of commuter 

operation. 

Commuter operation means any scheduled 

operation conducted by any person operating one 

of the following types of aircraft with a frequency 

of operations of at least five round trips per week 

on at least one route between two or more points 

according to the published flight schedules: 

(1) Airplanes, other than turbojet-powered 

airplanes, having a maximum passenger-seat 

configuration of 9 seats or less, excluding each 

crewmember seat, and a maximum payload 

capacity of 7,500 pounds or less; or 

(2) Rotorcraft. 

36See § 135.3(c). 

to complete mentoring training, 

including recurrent mentoring training. 

Although addressed in full in the ‘‘PIC 

Mentoring Training’’ discussion in this 

preamble, by providing training on 

mentoring to all PICs, all newly 

employed SICs would be paired with a 

pilot who is prepared and has been 

trained to instill and reinforce the 

professionalism, skill, and knowledge 

expected of all pilots serving in part 121 

operations. 

J. Pilot Recurrent Ground Training 

Content and Programmed Hours 

(§ 121.427) 

Currently, § 121.427 specifies the 

minimum content and training hours for 

pilot recurrent ground training. The 

minimum content requirements include 

instruction in the subjects required for 

initial ground training. 

Prior to the Pilot Certification rule, 

§ 121.419 contained pilot initial ground 

training requirements applicable to all 

pilots in part 121 operations. However, 

the Pilot Certification rule resulted in 

different initial ground training 

requirements for pilots who have 

completed the ATP–CTP. 

The Pilot Certification rule created 

new prerequisite certification training 

(i.e., the ATP–CTP) and experience 

requirements that pilots must now 

achieve before starting initial training at 

an air carrier. The ATP–CTP 

requirements include ground training in 

general knowledge areas for airplanes 

and environments relevant to air carrier 

operations. As a result, the ATP–CTP 

establishes a foundational knowledge 

base that additional airplane typespecific and air carrier-specific 

qualification training is built upon 

when a pilot completes training at an air 

carrier. 

In the Pilot Certification rule, the FAA 

recognized that a number of the general 

knowledge elements that are included 

in pilot initial ground training in 

§ 121.419(a)(1) are now addressed by the 

ATP–CTP academic requirements. 

Therefore, in § 121.419(b), the Pilot 

Certification rule revised the part 121 

initial ground training requirements by 

removing the generic elements for pilots 

who have completed the ATP–CTP.33

As a result of the revisions to the 

required initial ground training subjects 

for pilots who have completed the ATP– 

CTP, the Pilot Certification rule also 

reduced the minimum programmed 

hours for this revised initial ground 

training by 10 hours. See § 121.419(d). 

When the FAA revised the initial 

ground training subjects, the FAA did 

not address the effects of this change on 

recurrent ground training. Since the 

required content of recurrent ground 

training is based, in part, on the content 

of initial ground training, the content of 

recurrent ground training may also be 

reduced for pilots who have completed 

the revised initial ground training 

requirements. For these pilots, the 

recurrent ground training requirement 

to include initial ground training is 

satisfied by including only those initial 

ground training subjects in § 121.419(b). 

Currently, recurrent training for pilots 

who have not completed the ATP–CTP 

must continue to include those initial 

ground training subjects in § 121.419(a). 

However, there is no basis for 

differentiating recurrent ground training 

requirements based on different initial 

ground training requirements. 

In the time since the part 121 

recurrent training requirements were 

established, the qualification, 

experience, and training requirements 

for all pilots in part 121 operations have 

significantly increased; the latest 

changes resulting from both the 

certification standards from the Pilot 

Certification rule and the additional 

knowledge and skill requirements 

required from the Qualification, Service, 

and Use of Crewmembers and Aircraft 

Dispatchers final rule. Further, air 

carrier training programs have also 

evolved in their maturity such that the 

general knowledge elements are no 

longer necessary to support the 

objectives of recurrent training. 

Accordingly, the FAA proposes to 

remove from the recurrent ground 

training requirements, certain 

foundational knowledge elements that 

are no longer necessary in light of the 

maturity of air carrier training programs 

and the increase in pilot experience and 

qualification. This creates a single 

standard for recurrent ground training 

requirements.34

Given the proposed reduction in 

recurrent ground training content, the 

FAA further proposes a reduction in 

required minimum programmed hours 

for pilot recurrent ground training. 

Although the FAA does not require a 

specific amount of minimum time for 

each particular subject, after comparing 

the subjects required during recurrent 

ground training prior to and after the 

Pilot Certification rule, the FAA 

believes that a one hour reduction in 

required minimum programmed hours 

for pilot recurrent ground training is 

appropriate. Accordingly, the FAA 

proposes to further amend § 121.427 by 

reducing by one hour the minimum 

programmed hours required annually 

for pilot recurrent ground training. 

Notwithstanding this proposal, pilots 

must still complete recurrent extended 

envelope ground training and the 

associated programmed hours. Also, in 

addition to the annual minimum 

programmed hours, the FAA proposes 

that PICs must complete leadership and 

command and mentoring training every 

36 months. 

K. Part 135 Operators and Part 91 

Subpart K Program Managers 

Complying With Part 121, Subparts N 

and O 

In addition to air carriers conducting 

part 121 operations, some additional 

operators use pilot training and 

qualification programs that comply with 

subparts N and O of part 121. Those 

operators include the following: 

• Operators conducting commuter 

operations with airplanes in which the 

airplanes’ type certificate requires two 

pilots are required by § 135.3(b) to 

comply with the training and 

qualification requirements in subparts N 

and O of part 121 instead of the 

requirements in subparts E, G, and H of 

part 135.35

• Operators conducting part 135 

operations authorized to voluntarily 

comply with the training and 

qualification requirements in subparts N 

and O of part 121 instead of the 

requirements in subparts E, G, and H of 

part 135.36

• Fractional ownership program 

managers conducting operations under 

subpart K of part 91, authorized to 

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37See § 91.1063(b). 

38RIN 2120–AF29 

39RIN 2120–AH07 

voluntarily comply with the training 

and qualification requirements in 

subparts N and O of part 121 instead of 

the requirements in 14 CFR 91.1065 

through 91.1107.37

Sections 135.3 and 91.1063, which 

allow, and in some cases require, 

operators to train and qualify pilots 

under part 121, raise the training 

requirements for these other operators 

and permits them to benefit from the 

more balanced mix of training and 

checking in part 121 (versus the testing 

and checking emphasis in part 135 and 

91K). See 60 FR 65940, December 20, 

1995 (Air Carrier and Commercial 

Operator Training Programs final rule 

(RIN 2120–AC79)), 66 FR 37520, July 

18, 2001 (Regulation of Fractional 

Aircraft Ownership Programs and OnDemand Operations NPRM (RIN 2120– 

AH06)). However, some of the proposed 

revisions to part 121 in this NPRM are 

not compatible with all part 135 and 

91K operations because of differences 

between the requirements for minimum 

flight crew and pilot certification. 

First, for these other operators who 

either choose or are required to train 

and qualify pilots in accordance with 

part 121 requirements, the part 121 SIC 

certification requirements do not apply. 

SIC pilots serving in these operations 

are not required to hold an ATP 

certificate or type rating in the airplane 

in which they serve. However, this 

NPRM includes proposed revisions to 

the upgrade curriculum requirements in 

subpart N of part 121 based on the 

presupposition that the pilot entering 

the upgrade curriculum already holds 

an ATP certificate and type rating for 

the airplane. Since this presupposition 

is not applicable to pilots serving in part 

135 and 91K operations, the FAA 

proposes to retain the existing upgrade 

curriculum requirements for part 135 

operators and fractional ownership 

program managers who use a part 121 

subparts N and O training and 

qualification program. 

Second, unlike part 121 operating 

rules which require at least two pilots 

for all operations (§ 121.385(c)), certain 

operations under parts 135 and 91K may 

be conducted with only one pilot. The 

proposed leadership and command and 

mentoring enhancements to part 121 

training programs were developed based 

on the assumption by the MLP ARC and 

the FAA that at least two pilots are 

serving on the flight deck during 

operations. Since this assumption is not 

applicable to all part 135 and 91K 

operations, for these other operators 

who choose to train and qualify pilots 

in accordance with part 121 

requirements, the FAA proposes to limit 

the applicability of the leadership and 

command and mentoring training to 

pilots in command serving in operations 

that require two or more pilots. 

The remaining proposed amendments 

to subparts N and O of part 121 would 

apply to these other operators. The FAA 

notes that the proposal for a PPDC 

would not apply to these other operators 

because this provision is proposed in 

subpart A of part 121. 

The FAA also proposes to revise 

§ 121.431(a)(1) to remove language that 

is redundant to § 135.3(b) and (c). The 

FAA believes § 135.3(b) and (c) 

adequately address the requirements for 

part 135 operators who choose, or are 

required, to train and qualify pilots 

under part 121. 

L. Flight Simulation Training Device 

(FSTD) Conforming Changes 

In a 1996 final rule, Advanced 

Simulation Plan Revisions, the FAA 

replaced the terminology used in 

appendix H to part 121 to identify the 

varying capabilities of the different 

simulators at that time (61 FR 30726, 

June 17, 1996).38 Then, in a 2006 final 

rule, Flight Simulation Training Device 

Initial and Continuing Qualification and 

Use, the FAA added part 60 to title 14, 

providing requirements for the 

evaluation, qualification, and 

maintenance of FSTDs (71 FR 63392, 

October 30, 2006).39 Based on the 

changes made by these two final rules, 

the Pilot Certification rule as well as the 

substantive proposals found elsewhere 

in this NPRM, the FAA proposes a 

number of conforming changes 

throughout subparts N and O, and 

appendices E, F and H as described in 

more detail in the following discussion. 

References to FSTDs in subparts N 

and O and appendices E and F have 

been updated to reflect current 

terminology. Specifically, references to 

visual simulators (Level A FFS) and 

advanced simulators (Level B, C and D 

FFS) have been updated to reflect 

current terminology and all references 

to simulation technology that no longer 

exists have been removed. 

As a result of the terminology updates 

and the commonality in training 

maneuvers and procedures across 

qualification curriculum categories, the 

FAA is proposing revisions to 

appendices E and F to consolidate the 

columns identifying the FSTD or 

airplane required for the completion of 

each maneuver or procedure. There is 

only one substantive change to a 

required maneuver or procedure in 

appendices E and F. This change is 

described later in the preamble 

discussion pertaining to preflight visual 

inspection using pictorial means. 

In § 121.439, the FAA proposes to 

update the references to visual 

simulators (Level A FFS) and advanced 

simulators (Level B, C and D FFS) to 

reflect current terminology. In addition, 

the FAA clarifies that a Level A FFS 

may not be used to satisfy the 

requirements of this section because a 

Level A FFS cannot be qualified under 

part 60 for takeoff and landing tasks. 

Accordingly, all requirements 

associated with completing takeoffs and 

landings in a Level A FFS have been 

removed from this section. 

The FAA proposes to remove the 

experience requirements for use of a 

Level C FFS and to conform appendix 

H terminology with subparts N and O. 

The current distinction in capabilities 

between a Level C and Level D FFS is 

negligible. The primary difference that 

exists today between a Level C and a 

Level D FFS is the evaluation of 

vibration and sound. Level D evaluation 

involves objective criteria while Level C 

evaluation of vibration and sound is 

subjective. Additionally, the FAA 

considered the increase in the baseline 

qualification and experience 

requirements for all pilots engaged in 

part 121 operations put into place by the 

Pilot Certification rule. Based on the 

current simulation technology and 

current part 121 pilot qualification and 

experience, the FAA has determined 

that the appendix H experience 

requirements for use of a Level C FFS 

are unnecessary. 

The FAA further notes that removing 

the experience requirements for use of 

a Level C FFS is consistent with 

Exemption No. 5400 as amended over 

the last 22 years. In 1992, the FAA first 

issued Exemption No. 5400 to the 

member airlines of the Air Transport 

Association of America (now Airlines 

for America), and ‘‘other similarly 

situated Part 121 air carriers.’’ This 

exemption allows air carriers to conduct 

pilot training in a Level C FFS while 

providing an exemption from the pilot 

experience requirements in appendix H. 

At the time of this first exemption, the 

FAA recognized that more than a 

decade of experience with training and 

checking under appendix H had proven 

these experience requirements to be 

excessively conservative. This 

exemption has been extended multiple 

times without any adverse impact on 

safety and is still in place today. See 

FAA Exemption No. 5400L, Regulatory 

Docket No. FAA–2001–10676. 

However, the FAA notes that the 

experience requirements in § 61.64 for 

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40Section 121.401(c) states, Each instructor, 

supervisor, or check airman who is responsible for 

a particular ground training subject, segment of 

flight training, course of training, flight check, or 

competence check under this part shall certify as 

to the proficiency and knowledge of the 

crewmember, aircraft dispatcher, flight instructor, 

or check airman concerned upon completion of that 

training or check. That certification shall be made 

a part of the crewmember’s or dispatcher’s record. 

When the certification required by this paragraph 

is made by an entry in a computerized 

recordkeeping system, the certifying instructor, 

supervisor, or check airman must be identified with 

that entry. However, the signature of the certifying 

instructor, supervisor, or check airman is not 

required for computerized entries. 

41For example, a pilot may seek type rating 

training from a part 142 training center. Part 142 

airplane type rating training courses are based on 

the Airline Transport Pilot and Aircraft Type Rating 

Practical Test Standards for Airplane (FAA–S– 

8081–5, current edition) (ATP PTS) which includes 

the PIC-only tasks and maneuvers in appendix E. 

Although not specifically required by part 142 

regulations, all part 142 airplane type rating courses 

include these tasks and maneuvers since their 

training courses are based on the ATP PTS. 

42See FAA Order 8900.1, Volume 3, Chapter 19, 

Section 1. 

use of a Level C or D FFS still apply to 

practical tests for type ratings conducted 

in a part 121 training and qualification 

program. The experience requirements 

in § 61.64 ensure that a pilot has 

minimum level of inflight experience in 

a turbojet airplane or turbo-propeller 

airplane, as applicable, prior to serving 

as PIC in operations under any part of 

title 14 in a turbojet or turbo-propeller 

airplane that requires a type rating. 

The floating paragraph below 

§ 121.409(b)(3) requires the 

Administrator or a check airman to 

‘‘certify’’ satisfactory completion of a 

course of training conducted in a 

simulator. This provision was 

implemented at a time when simulator 

technology was new and unproven. As 

technology advanced, the FAA 

incrementally raised the standards for 

performance of simulators, while 

simultaneously increasing the 

allowance for training and checking in 

a simulator. As a result, the FAA 

believes that training conducted in FFS 

is effective and believes that the 

certification required by an instructor in 

accordance with existing § 121.401(c) is 

sufficient.40 Therefore, the FAA 

proposes to remove the floating 

paragraph below § 121.409(b)(3) because 

the FAA is confident in the 

effectiveness of today’s simulation 

technology and the instruction that 

occurs. 

M. SIC Training and Checking 

Conforming Changes 

1. Amendments to Training 

Requirements in Appendix E to Part 121 

Certain maneuvers and procedures in 

appendix E to part 121 are limited to 

PIC training. Those maneuvers and 

procedures are as follows: Steep turns, 

zero-flap approaches and landings, 

landing and go around with the 

horizontal stabilizer out of trim, and 

maneuvering to a landing with a 

simulated powerplant failure. 

Additionally, depending on the air 

carrier’s policies, circling approaches 

may also be limited to PIC training. 

However, in this NPRM, the FAA 

proposes to require that SIC training 

include these maneuvers in order to 

align appendix E with the training 

requirements in § 61.71(b). The Pilot 

Certification rule requires all SICs 

serving in part 121 operations to hold a 

type rating. To obtain a type rating 

within a part 121 training program, 

§ 61.71(b)(1) requires the pilot to 

satisfactorily accomplish an approved 

training program and proficiency check 

for that airplane type that includes all 

the tasks and maneuvers required to 

serve as PIC in accordance with 

subparts N and O of part 121. Therefore, 

§ 61.71(b)(1) already requires an SIC 

obtaining a type rating in a part 121 

training program (i.e., during initial, 

transition, or conversion) to complete 

training on those maneuvers and 

procedures in appendix E that are 

currently limited to PIC training. 

The FAA recognizes that there are 

limited instances in which a part 121 

SIC obtains a type rating prior to 

employment at a part 121 air carrier.41

However, to ensure all SICs at the air 

carrier have been trained to the same 

standards at that specific air carrier, the 

FAA is proposing that all SICs be 

trained by that air carrier on the 

maneuvers and procedures in appendix 

E that are currently limited to PIC 

training, regardless of whether the SIC 

already holds a type rating. The FAA 

believes that the effect of this proposed 

change is minimal because in the 

limited instances that an SIC holds a 

type rating, it is expected that the SIC 

should be able to complete the flight 

training in less time than an SIC who 

does not hold a type rating. In 

accordance with § 121.401(e), a pilot 

who progresses successfully through 

flight training, is recommended by an 

instructor or check airman, and 

successfully completes the appropriate 

proficiency check, is not required to 

complete the programmed hours of 

flight training for the particular airplane 

type. Additionally, an air carrier may 

develop and submit for approval a 

reduced training hour curriculum based 

on specific prerequisites.42 For example, 

a carrier could have an initial Boeing 

737 SIC curriculum for pilots who do 

not hold a Boeing 737 type rating and 

a second initial Boeing 737 SIC 

curriculum that requires less flight 

training hours for pilots that already 

hold a Boeing 737 type rating. 

2. Amendments to Proficiency Check 

Requirements in Appendix F to Part 121 

Two maneuvers and procedures in 

appendix F to part 121 are limited to 

PIC proficiency checks: steep turns and 

a second missed approach. 

Additionally, depending on the air 

carrier’s policies and airplane types, 

some maneuvers and procedures may be 

limited to PIC proficiency checks: 

taxiing, circling approaches, 

maneuvering to a landing with 

simulated powerplant failure, and two 

actual landings. However, as previously 

discussed, § 61.71(b)(1) requires an SIC 

obtaining a type rating within a part 121 

training program to complete a 

proficiency check which includes all 

tasks and maneuvers required to serve 

as PIC. Therefore, the FAA has amended 

appendix F to indicate that these 

maneuvers and procedures are required 

for SICs completing a proficiency check 

to obtain a type rating. 

3. Amendment to § 61.71 

As previously discussed, current 

§ 61.71(b)(1) requires a pilot obtaining a 

type rating within a part 121 training 

program to satisfactorily accomplish an 

approved training program and 

proficiency check for that airplane type 

that includes all the tasks and 

maneuvers required to serve as PIC in 

accordance with the requirements of 

subparts N and O of part 121. 

Currently, as required by § 121.424, 

PIC initial, transition and upgrade flight 

training includes the same tasks and 

maneuvers. However, this NPRM 

includes proposed revisions to the tasks 

and maneuvers required for upgrade 

flight training. Accordingly, without a 

clarification to § 61.71(b)(1), the 

proposed changes to the upgrade 

curriculum could result in confusion as 

to which tasks and maneuvers are 

required under § 61.71(b)(1) since the 

tasks and maneuvers required to serve 

as PIC would vary for initial, transition, 

and upgrade training. Therefore, the 

FAA is proposing a change to 

§ 61.71(b)(1) to clarify that a pilot 

obtaining a type rating within a part 121 

training program must satisfactorily 

accomplish the same tasks and 

maneuvers required by § 121.424 to 

serve as PIC. 

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43Transition training applies to a pilot who has 

previously qualified and served in the same duty 

position on another airplane of the same group. See 

§§ 121.400(c)(2) and 121.433(a)(1). 

44For the purpose of subpart N, airplanes are 

divided into two groups. Group I includes propeller 

driven airplanes and group II includes turbojet 

powered airplanes. See § 121.400. 

45The FAA notes that unlike initial and recurrent 

ground training, part 121 does not provide a 

minimum number of programmed hours for the 

transition ground training requirements. 

N. Other Conforming and Miscellaneous 

Changes 

1. Pilot Transition Ground Training 

Content (§ 121.419) 

The FAA proposes to align the subject 

area requirements for pilot transition 

ground training with the subject area 

requirements for initial ground training 

for pilots who have completed the ATP– 

CTP.43 Prior to the Pilot Certification 

rule, the subject areas for pilot initial 

ground training and pilot transition 

ground training were the same. 

However, the Pilot Certification rule 

revised the initial ground training 

subject areas for pilots who have 

completed the ATP–CTP because the 

FAA recognized that a number of the 

general knowledge elements that are 

included in pilot initial ground training 

in § 121.419(a)(1) are now addressed by 

the ATP–CTP. Therefore, the Pilot 

Certification rule revised the subjects in 

part 121 pilot initial ground training to 

remove the generic elements for pilots 

who have completed the ATP–CTP. The 

initial ground training subjects specific 

to each airplane type remain 

unchanged. 

In order for a pilot to complete the 

transition curriculum requirements to 

qualify to serve on an airplane of a 

different type, a pilot must have 

previously qualified and served in the 

same duty position (i.e., PIC or SIC) on 

another airplane of the same group.44

Therefore, prior to commencing 

transition training, a pilot would have 

already satisfactorily completed training 

in the foundational knowledge elements 

either during initial ground training 

with the air carrier or during the ATP– 

CTP. Additionally, the pilot would have 

previously demonstrated proficiency in 

these foundational knowledge elements 

during at least one proficiency check 

conducted by a check pilot. 

In recognition of the transitioning 

pilot’s previous training in foundational 

knowledge elements combined with the 

recent increase in qualification and 

experience required to serve as a pilot 

in part 121 operations, and the 

evolution of air carrier training 

programs discussed earlier in this 

preamble, the FAA proposes to align the 

required transition ground training 

subjects with the required initial ground 

training subjects as revised by the Pilot 

Certification rule. As a result, the 

foundational knowledge elements 

removed from the initial ground training 

curriculum in the Pilot Certification rule 

would no longer be required for 

transition ground training.45 The 

airplane type specific training 

requirements remain unchanged. 

2. Conversion Training (§§ 121.400, 

121.415, 121.419, 121.424) 

Currently, the term ‘‘upgrade’’ applies 

to part 121 training to allow SICs who 

previously served on an airplane type to 

serve as PICs on the airplane type. 

Upgrade also applies to training to allow 

flight engineers who previously served 

on an airplane type to serve as SICs on 

the airplane type. The FAA has 

proposed to rename the training 

provided to flight engineers qualifying 

as SICs to distinguish this training from 

the SIC to PIC upgrade training. The 

proposed new term for flight engineer to 

SIC training is ‘‘conversion.’’ 

Additionally, for flight engineers who 

have completed the ATP–CTP, the FAA 

proposes to align the subject areas for 

conversion ground training with the 

subject areas for initial ground training 

for those pilots who have completed the 

ATP–CTP. Prior to the Pilot 

Certification rule, the subject areas for 

pilot initial ground training and flight 

engineer upgrade ground training (now 

identified as conversion training) were 

the same. The Pilot Certification rule 

revised the subject areas for initial 

ground training for pilots who have 

completed the ATP–CTP. However, the 

Pilot Certification rule did not address 

the effect of the ATP–CTP on flight 

engineer upgrade ground training (now 

identified as conversion training). With 

the changes put in place by the Pilot 

Certification rule, flight engineers who 

complete conversion training must also 

hold an ATP certificate prior to serving 

as an SIC in part 121 operations. 

Therefore, for flight engineers who have 

completed the ATP–CTP, the FAA 

proposes that conversion ground 

training consist of the same subject 

areas as initial ground training for those 

pilots who have completed the ATP– 

CTP. 

3. Preflight Visual Inspection Using 

Pictorial Means 

Part 121 appendix E requires initial, 

transition, and upgrade training to 

include the preflight visual inspection 

of the exterior and interior of the 

airplane, the location of each item to be 

inspected, and the purpose for 

inspecting it. Additionally, the 

proficiency check requirements in 

appendix F require the pilot to conduct 

an actual visual inspection of the 

exterior and interior of the airplane, 

locating each item and explaining 

briefly the purpose for inspecting it. 

In 1985, the FAA first issued 

Exemption No. 4416 to the member 

airlines of the Air Transport Association 

of America (now Airlines for America), 

and any other qualifying part 121 

certificate holder, to allow the preflight 

visual inspection to be trained and 

checked using pictorial means as long as 

certain conditions and limitations were 

met. There has been no adverse impact 

on safety as a result of this exemption. 

Accordingly, the FAA has extended 

Exemption No. 4416 multiple times and 

it is still in use today. See Exemption 

No. 4416P, Regulatory Docket No. FAA– 

2002–12831. 

Instead of continuing to extend 

Exemption No. 4416, the FAA proposes 

to amend appendices E and F to allow 

pictorial means for the conduct of the 

preflight visual inspection. Consistent 

with the exemption, the pictorial means 

must be approved by the Administrator 

and must provide for the portrayal of 

normal and abnormal conditions of 

preflight inspection items. Additionally, 

if the pictorial means was used during 

the proficiency check, the pilot must 

demonstrate proficiency on at least one 

complete visual inspection of a static 

airplane before the completion of 

operating experience required by 

§ 121.434. This means that the 

demonstration of proficiency may occur 

at any time between the satisfactory 

completion of the proficiency check and 

the completion of all required hours of 

operating experience. A check pilot 

must certify the pilot’s proficiency on 

visual inspection before the pilot 

completes the operating experience 

required by § 121.434. 

IV. Regulatory Notices and Analyses 

A. Regulatory Evaluation 

1. Introduction 

Changes to Federal regulations must 

undergo several economic analyses. 

First, Executive Order 12866 and 

Executive Order 13563 direct that each 

Federal agency shall propose or adopt a 

regulation only upon a reasoned 

determination that the benefits of the 

intended regulation justify its costs. 

Second, the Regulatory Flexibility Act 

of 1980 (Pub. L. 96–354) requires 

agencies to analyze the economic 

impact of regulatory changes on small 

entities. Third, the Trade Agreements 

Act (Pub. L. 96–39), as amended, 

prohibits agencies from setting 

standards that create unnecessary 

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46 If authorized by the Administrator, part 91K 

operators and part 135 operators may voluntarily 

comply with the training program requirements in 

subparts N and O of part 121 instead of the training 

program requirements of part 91K or part 135. 

Given that part 121 compliance is voluntary for part 

91K and part 135 operators (other than those 3 

commuter operators) and the number of pilots who 

voluntarily train under part 121 subparts N and O 

is not known, this pilot segment is not included in 

this analysis. 

47Office of Management and Budget, OMB 

Circular No. A–4, New Guidelines for the Conduct 

of Regulatory Analysis, Mar. 2, 2004. 

obstacles to the foreign commerce of the 

United States. In developing U.S. 

standards, the Trade Agreements Act 

requires agencies to consider 

international standards and, where 

appropriate, that they be the basis of 

U.S. standards. Fourth, the Unfunded 

Mandates Reform Act of 1995 (Pub. L. 

104–4) requires agencies to prepare a 

written assessment of the costs, benefits, 

and other effects of proposed or final 

rules that include a Federal mandate 

likely to result in the expenditure by 

State, local, or tribal governments, in the 

aggregate, or by the private sector, of 

$100 million or more annually (adjusted 

for inflation with base year of 1995). 

This portion of the preamble 

summarizes the FAA’s analysis of the 

economic impacts of this proposed rule. 

We suggest readers seeking greater 

detail read the full regulatory 

evaluation, a copy of which we have 

placed in the docket for this rulemaking. 

In conducting these analyses, the FAA 

has determined that this proposed rule: 

(1) Has benefits that justify its costs, (2) 

is not an economically ‘‘significant 

regulatory action’’ as defined in section 

3(f) of Executive Order 12866, (3) is 

‘‘significant’’ as defined in DOT’s 

Regulatory Policies and Procedures; (4) 

would not have a significant economic 

impact on a substantial number of small 

entities; (5) would not create 

unnecessary obstacles to the foreign 

commerce of the United States; and (6) 

would not impose an unfunded 

mandate on state, local, or tribal 

governments, or on the private sector by 

exceeding the threshold identified 

above. These analyses are summarized 

below. 

2. Total Benefits and Costs of This Rule 

The October 14, 2004 crash of 

Pinnacle Airlines flight 3701 in 

Jefferson City, Missouri and the 

February 12, 2009 crash of Colgan Air 

flight 3407 near Buffalo, New York are 

examples of past accidents where 

unprofessional pilot behavior 

contributed to the accident. These 

accidents provide a qualitative analysis 

of the expected benefits of the proposed 

rule because quantified benefits related 

to the accidents are attributed to earlier 

rules. However, these accidents 

exemplify the types of accidents that the 

proposed rule intends to prevent as 

issues addressed by this rule were 

present in these accidents; therefore the 

FAA believes further rulemaking is 

appropriate. The benefits of the training 

in the proposed rule include an 

increased level of safety from mitigation 

of unprofessional pilot behavior which 

would reduce pilot errors that can lead 

to a catastrophic event. 

Moreover the proposed rule responds 

to the statutory requirement for a 

rulemaking in Public Law 111–216 and 

to unresolved NTSB recommendations. 

Additionally, by reducing subjects in 

pilot recurrent ground training and 

upgrade training, the proposed rule 

would generate savings to operators of 

$72 million over a 10-year period. When 

discounted using a 7 percent discount 

rate, the proposed rule would result in 

savings of $46 million over the same 

period. 

The estimated cost of the proposed 

rule to air carriers is $68 million over a 

10-year period. When discounted using 

a 7 percent discount rate, the proposed 

rule is estimated to result in costs of $47 

million over the same period. Detailed 

benefit and cost information follows 

below. 

3. Who is potentially affected by this 

rule? 

The proposed rule would apply to all 

part 121 air carriers (78) and, for some 

provisions, to part 135 operators 

conducting commuter operations in 

airplanes type certificated for two pilots 

(3).46

4. Assumptions 

The key elements used in framing the 

regulatory evaluation are as follows: 

• Discount Rates: 47 7% and 3% 

• Period of Analysis: 2015–2024 

• Monetary values expressed in 2013 

dollars 

• Discounting calculations use 2013 as 

the base year 

Other key assumptions used to 

complete the regulatory evaluation are 

as follows: 

• Pilot Retirement Rate: 2.2% 

• Pilot Attrition Rate Due To Medical 

Reasons: 0.5% 

• Pilot Growth Rate: 0.4% 

• Ground Instructors Needed: 1 

instructor for every 200 pilots 

• Class Size: 20 pilots per class 

5. Benefits of This Rule 

The benefits of the training in the 

proposed rule include an increased 

level of safety from mitigation of 

unprofessional pilot behavior which 

would reduce pilot errors that can lead 

to a catastrophic event. The October 14, 

2004 crash of Pinnacle Airlines flight 

3701 in Jefferson City, Missouri and the 

February 12, 2009 crash of Colgan Air 

flight 3407 near Buffalo, New York are 

examples of past accidents where 

unprofessional pilot behavior 

contributed to the accident. In addition 

the proposed rule responds to NTSB 

recommendations and satisfies the 

statutory requirement for a rulemaking 

in Public Law 111–216. 

The FAA proposed rule also includes 

savings from reducing certain subjects 

in pilot recurrent ground training and 

upgrade training. Reducing these 

subjects would not impact safety 

because the recent Pilot Certification 

rule ensured technical proficiency in 

those subjects via other means. The 

savings from recurrent training apply to 

all part 121 air carriers and to carriers 

who operate within part 135 and are 

required to use pilot training and 

qualification programs that comply with 

part 121 subparts N and O. The savings 

from upgrade training applies only to 

part 121 air carriers. SICs within part 

135 are not required to hold an ATP 

certificate or type rating and therefore 

must continue to meet current upgrade 

requirements. The estimated savings 

from the proposed rule are shown in 

Table 3 below. 

TABLE 3—SAVINGS OF THE PROPOSED RULE BY PROVISION (2015–2024) * 

Cost saving benefits 

Total cost savings 

(millions of 2013 dollars) 

Present value 

Total 7 Percent 3 Percent 

Recurrent Ground Training (§ 121.427) ....................................................................................... $52.559 $34.424 $43.486 

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TABLE 3—SAVINGS OF THE PROPOSED RULE BY PROVISION (2015–2024) *—Continued 

Cost saving benefits 

Total cost savings 

(millions of 2013 dollars) 

Present value 

Total 7 Percent 3 Percent 

Upgrade Ground Training (§ 121.420) ......................................................................................... 19.458 11.839 15.615 

Total ...................................................................................................................................... 72.017 46.263 59.101 

* Table values have been rounded. Totals may not add due to rounding. 

6. Costs of This Rule 

This proposed rule would impose two 

types of compliance costs: (1) Start-up 

costs to develop training curriculums 

and train the current pilot work force 

prior to the compliance date and (2) 

recurring costs to conduct the training 

each year as the pilot work force evolves 

over time and to operate the PPDC. 

The costs of the proposed rule are 

associated with the following proposed 

requirements of the rule: 

• Operations familiarization for newhire pilots; 

• Revised ground and flight training 

for upgrading pilots which includes 

leadership and command and mentoring 

training; 

• Leadership and command and 

mentoring ground training for current 

PICs; 

• Leadership and command and 

mentoring recurrent training for PICs; 

and 

• Pilot Professional Development 

Committees (PPDC). 

These cost provisions apply to all part 

121 air carriers and, with the exception 

of the PPDC, to carriers who operate 

under part 135 and are required to use 

pilot training and qualification 

programs that comply with part 121 

subparts N and O. 

The estimated compliance costs of the 

proposed rule, by provision, are shown 

in Table 4 below. 

TABLE 4—COMPLIANCE COSTS FOR THE PROPOSED RULE BY PROVISION (2015–2024) * 

Cost 

Total compliance costs 

(millions of 2013 dollars) 

Present Value 

Total 7 Percent 3 Percent 

New-Hire Pilot Operations Familiarization (§ 121.432(d)) ........................................................... $4.693 $2.855 $3.766 

Upgrade Training (§§ 121.420 and 121.426) .............................................................................. 10.178 6.304 8.227 

One-Time and Recurrent PIC Training (§§ 121.409(b), 121.427, and 121.429) ........................ 51.815 37.037 44.568 

PPDC Meeting (§ 121.17) ............................................................................................................ 0.938 0.572 0.754 

Recordkeeping ............................................................................................................................. 0.007 0.006 0.006 

Total ...................................................................................................................................... 67.632 46.774 57.321 

* Table values have been rounded. Totals may not add due to rounding. 

7. Alternatives Considered 

The FAA considered an alternative to 

the proposed rulemaking: a proposal 

representing the MLP ARC 

recommendations as presented to the 

FAA. 

These recommendations, and their 

corresponding costs, are presented in 

Table 5 below and discussed in further 

detail in the Pilot Professional 

Development Regulatory Evaluation. 

TABLE 5—ESTIMATED COSTS OF MLP ARC RECOMMENDATIONS (2015–2024) * 

Proposed provision 

Total costs 

(millions of 2013 dollars) 

Present Value 

Total 7 Percent 3 Percent 

Create a Professional Development Position .............................................................................. $166.140 $109.056 $137.593 

Create a PDSC Program ............................................................................................................. 0.704 0.615 0.663 

Mentor Training for All PICs ........................................................................................................ 37.084 27.899 32.651 

Hold Quarterly PDSC Meetings ................................................................................................... 12.670 8.011 10.332 

Additional Indoctrination Training for New-Hire Pilots ................................................................. 0.656 0.399 0.526 

1 or More Familiarization Flights for New-Hire Pilots ** .............................................................. 4.693 2.855 3.766 

32 Hours of Training for SICs Upgrading to PIC ........................................................................ 39.026 23.745 31.318 

Recurrent PIC Training ................................................................................................................ 238.295 144.987 191.233 

Total ...................................................................................................................................... 499.267 317.567 408.083 

* Table values have been rounded. Totals may not add due to rounding. 

** FAA estimate is for 2 operating cycles. 

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48Of these carriers, six use an Advanced 

Qualification Program (AQP) and therefore incur 

additional costs associated with a one-time revision 

to their Qualification Standards Document. For 

further details see the Paperwork Reduction Act 

section of this document. 

The cost of the MLP ARC 

recommendations is substantially 

greater than the cost of the proposed 

rule. The main drivers of the cost 

differences between the MLP ARC 

recommendations and the proposed rule 

are the full-time professional 

development position and the longer 

amount of time required for leadership 

and command training during upgrade 

training and during PIC recurrent 

training. 

The FAA carefully considered the 

MLP ARC recommendations when 

developing the proposed rule and many 

of the recommendations are 

incorporated into the proposed rule 

albeit with less prescriptive 

requirements. Specifically, the MLP 

ARC recommended that the committee 

to oversee pilot professional 

development meet quarterly while the 

proposed rule does not specify how 

frequently the committee overseeing the 

formal pilot mentoring program should 

meet. Further the MLP ARC 

recommended a 32-hour program in 

leadership and command for upgrading 

pilots. The proposed rule requires 

leadership and command training for 

upgrading pilots but does not specify a 

minimum number of hours for that 

training. Relatedly the MLP ARC 

recommended that the leadership and 

command topics be included in 

recurrent training over a four-year cycle 

suggesting that the recurrent training 

would then need to be eight hours per 

year to cover the same material that is 

included in the upgrade training. The 

proposed rule also includes a 

requirement to include leadership and 

command training in recurrent training 

but does not specify a minimum number 

of hours for that training. The FAA does 

not have enough information to quantify 

the benefits related to incremental hours 

spent in leadership and command 

training or additional committee 

meetings and therefore leaves the 

requirements flexible so that each air 

carrier can make a determination based 

on its own circumstances. 

Additional requirements 

recommended by the MLP ARC are not 

included in the proposed rule for a 

number of reasons. These reasons 

include redundancy with existing 

requirements, redundancy in light of 

regulatory changes put in place after the 

MLP ARC issued its recommendations, 

and identification of alternate (less 

costly) means to achieve desired benefit. 

A full discussion of the MLP ARC 

recommendations and dissenting views, 

and the FAA response can be found in 

the portion of this preamble titled 

‘‘Background’’. 

B. Regulatory Flexibility Determination 

The Regulatory Flexibility Act of 1980 

(Pub. L. 96–354) (RFA) establishes ‘‘as a 

principle of regulatory issuance that 

agencies shall endeavor, consistent with 

the objectives of the rule and of 

applicable statutes, to fit regulatory and 

informational requirements to the scale 

of the businesses, organizations, and 

governmental jurisdictions subject to 

regulation. To achieve this principle, 

agencies are required to solicit and 

consider flexible regulatory proposals 

and to explain the rationale for their 

actions to assure that such proposals are 

given serious consideration.’’ The RFA 

covers a wide-range of small entities, 

including small businesses, not-forprofit organizations, and small 

governmental jurisdictions. 

Agencies must perform a review to 

determine whether a rule will have a 

significant economic impact on a 

substantial number of small entities. If 

the agency determines that it will, the 

agency must prepare a regulatory 

flexibility analysis as described in the 

RFA. 

However, if an agency determines that 

a rule is not expected to have a 

significant economic impact on a 

substantial number of small entities, 

section 605(b) of the RFA provides that 

the head of the agency may so certify 

and a regulatory flexibility analysis is 

not required. The certification must 

include a statement providing the 

factual basis for this determination, and 

the reasoning should be clear. 

The Small Business Administration 

(SBA) categorizes airlines with 1,500 or 

fewer employees as small businesses. Of 

the 78 carriers that operate under part 

121, 52 had fewer than 1,500 total 

employees based on National Vital 

Information Subsystem (NVIS) data 

from August 2014. Of the three part 135 

operators required to use pilot training 

and qualification programs that comply 

with part 121 subparts N and O, all 

three have fewer than 1,500 total 

employees based on NVIS data. The 

count of pilots for the 52 small part 121 

air carriers and the three small part 135 

operators is shown in Table 6 below.48

TABLE 6—TOTAL NUMBER OF IMPACTED PILOTS, PICS, AND SICS FROM SMALL CARRIERS IN 2014 AND 2024 

Pilot category 

Year Annual 

growth 

2014 2024 (%) 

PIC ............................................................................................................................................... 3,176 3,306 0.4 

SIC ............................................................................................................................................... 2,643 2,753 0.4 

Total pilots ............................................................................................................................ 5,819 6,059 0.4 

Based on these pilot counts, the 

analysis used to conduct the Pilot 

Professional Development Regulatory 

Evaluation was recalculated to analyze 

the cost to small carriers only. Total cost 

of the proposed rule on small carriers is 

shown in Table 7 below. 

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49Bureau of Transportation Statistics Air Carrier 

Financial Reports (Form 41 Financial Data) 

Database. Schedules P–1.1 and P–1.2. http://

www.transtats.bts.gov/Tables.asp?DB_ID=135&DB_

Name=Air%20Carrier%20Financial%20Reports

%20%28Form%2041%20Financial%20Data

%29&DB_Short_Name=Air%20Carrier

%20Financial. 

TABLE 7—TOTAL COST OF THE PROPOSED RULE FOR SMALL CARRIERS (2015–2024) * 

Total costs 

(millions of 2013 dollars) 

Present value 

Total 7 Percent 3 Percent 

Total Compliance Costs .............................................................................................................. $6.455 $4.475 $5.476 

* Table values have been rounded. Totals may not add due to rounding. 

The total cost of the proposed rule on 

small carriers, and the corresponding 

per small carrier cost, by provision, is 

shown in Table 8 below. 

TABLE 8—TOTAL AND PER CARRIER COST OF THE PROPOSED RULE FOR SMALL CARRIERS BY PROVISION (2015–2024) * 

Cost 

Total compliance costs 

(millions of 2013 dollars) 

Total Carriers 

impacted 

Per carrier 

total cost 

New-Hire Pilot Operations Familiarization ................................................................................... $0.354 55 $0.006 

Upgrade Training ......................................................................................................................... 0.956 55 0.017 

One-Time and Recurrent PIC Training ....................................................................................... 4.518 55 0.082 

PPDC Meeting ............................................................................................................................. 0.626 52 0.012 

Recordkeeping ............................................................................................................................. 0.001 55 0.000 

Total ...................................................................................................................................... 6.455 ........................ 0.118 

* Table values have been rounded. Totals may not add due to rounding. 

The total cost per carrier of $118,000 

for the proposed rule shown in Table 8 

above, over the 10-year analysis period, 

implies an annual average per carrier 

cost of approximately $11,800. 

However, the highest cost to a small 

carrier occurs in 2016 (see Table 9) 

when the cost per carrier is 

approximately $41,000 because of the 

one-time cost to train all current PICs in 

leadership and command and 

mentoring. 

TABLE 9—TOTAL AND ANNUAL COMPLIANCE COST FOR SMALL CARRIERS BY PROVISION (2015–2024) 

[Millions of 2013 dollars] * 

Year Operations 

familiarization 

Revised upgrade 

training 

PIC leadership and 

command and 

mentoring 

PPDC annual 

meeting Record-keeping Annual total 

2015 ....... $0.000 $0.004 $0.002 $0.000 $0.000 $0.005 

2016 ....... 0.000 0.000 0.041 0.000 0.000 0.041 

2017 ....... 0.0008 0.002 0.005 0.002 0.000 0.009 

2018 ....... 0.0008 0.002 0.005 0.002 0.000 0.009 

2019 ....... 0.0008 0.002 0.005 0.002 0.000 0.009 

2020 ....... 0.0008 0.002 0.005 0.002 0.000 0.009 

2021 ....... 0.0008 0.002 0.005 0.002 0.000 0.009 

2022 ....... 0.0008 0.002 0.005 0.002 0.000 0.009 

2023 ....... 0.0008 0.002 0.005 0.002 0.000 0.009 

2024 ....... 0.0008 0.002 0.005 0.002 0.000 0.009 

Total 0.006 0.017 0.082 0.012 0.000 0.118 

* Table values have been rounded. Totals may not add due to rounding. 

The FAA believes that such an 

economic cost is not economically 

significant. BTS Form 41 Financial data 

is available for 31 small air carriers.49

Operating revenues in 2013 for these 31 

operators ranged from $2.4 million to $1 

billion. Based on these figures, the 

estimated annual per carrier cost of the 

proposed rule does not exceed 2% of 

the operating revenue for any carrier 

where data is available. The annual cost 

per small carrier is above 1% of the 

lowest operating revenue ($24,000) but 

below 2% ($48,000). Therefore, as 

provided in section 605(b), the head of 

the FAA certifies that this rulemaking 

would not result in a significant 

economic impact on a substantial 

number of small entities. 

The FAA solicits comments regarding 

this determination. 

C. International Trade Impact 

Assessment 

The Trade Agreements Act of 1979 

(Pub. L. 96–39), as amended by the 

Uruguay Round Agreements Act (Pub. 

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50Training instructor hourly wage rate of $31 

multiplied by 1.42 to account for costs of employer 

provided benefits. Wage based on 2013 Bureau of 

Labor Statistics (BLS) Occupational Employment 

Statistics for Air Transportation Industry. (http://

www.bls.gov/oes/current/naics4_481100.htm): 

Training and Development Specialists (13–1151). 

Wage multiplier from BLS, Employer costs for 

Employee compensation—June 2013, Table 5, 

Private Industry. (http://www.bls.gov/news.release/ 

pdf/ecec.pdf) 

L. 103–465), prohibits Federal agencies 

from establishing standards or engaging 

in related activities that create 

unnecessary obstacles to the foreign 

commerce of the United States. 

Pursuant to these Acts, the 

establishment of standards is not 

considered an unnecessary obstacle to 

the foreign commerce of the United 

States, so long as the standard has a 

legitimate domestic objective, such as 

the protection of safety, and does not 

operate in a manner that excludes 

imports that meet this objective. The 

statute also requires consideration of 

international standards and, where 

appropriate, that they be the basis for 

U.S. standards. The FAA has assessed 

the potential effect of this proposed rule 

and determined that it would respond to 

a statutorily mandated safety objective 

and is not considered an unnecessary 

obstacle to the foreign commerce of the 

United States. 

D. Unfunded Mandates Assessment 

Title II of the Unfunded Mandates 

Reform Act of 1995 (Pub. L. 104–4) 

requires each Federal agency to prepare 

a written statement assessing the effects 

of any Federal mandate in a proposed or 

final agency rule that may result in an 

expenditure of $100 million or more (in 

1995 dollars) in any one year by State, 

local, and tribal governments, in the 

aggregate, or by the private sector; such 

a mandate is deemed to be a ‘‘significant 

regulatory action.’’ The FAA currently 

uses an inflation-adjusted value of 

$151.0 million in lieu of $100 million. 

This proposed rule does not contain 

such a mandate; therefore, the 

requirements of Title II of the Act do not 

apply. 

E. Paperwork Reduction Act 

The Paperwork Reduction Act of 1995 

(44 U.S.C. 3507(d)) requires that the 

FAA consider the impact of paperwork 

and other information collection 

burdens imposed on the public. 

According to the 1995 amendments to 

the Paperwork Reduction Act (5 CFR 

1320.8(b)(2)(vi)), an agency may not 

collect or sponsor the collection of 

information, nor may it impose an 

information collection requirement 

unless it displays a currently valid 

Office of Management and Budget 

(OMB) control number. 

This action contains the following 

proposed new information collection 

requirements. As required by the 

Paperwork Reduction Act of 1995 (44 

U.S.C. 3507(d)), the FAA has submitted 

these proposed information collection 

amendments to OMB for its review. 

Summary: The proposed rule requires 

the development and approval of new 

and revised training curriculums for the 

following: 

• Leadership and command and 

mentoring ground training for pilots 

currently serving as PIC (§ 121.429) and 

recurrent PIC leadership and command 

and mentoring training (§§ 121.409(b) 

and 121.427); 

• Upgrade training curriculum 

requirements (§§ 121.420 and 121.426); 

• Part 121 appendix H requirements; 

and 

• Approval of Qualification 

Standards Document for certificate 

holders using an Advanced 

Qualification Program (AQP) 

(§ 121.909). 

The proposed rule also requires some 

additional recordkeeping related to 

maintaining records of pilots 

completing the following: 

• Leadership and command and 

mentoring ground training for pilots 

currently serving as PIC (§ 121.429); 

• Recurrent PIC leadership and 

command and mentoring ground 

training (§ 121.427); and 

• Operations familiarization for newhire pilots (§ 121.432(d)). 

Use: This information would be used 

to ensure safety-of-flight by making 

certain that adequate training is 

obtained and maintained by those who 

operate under this part of the regulation. 

The FAA would review the 

respondents’ training programs and 

training courseware through routine 

certification, inspection and 

surveillance of certificate holders using 

part 121 pilot training and qualification 

programs to ensure compliance and 

adherence to regulations and, where 

necessary, to take enforcement action. 

Respondents (including number of): 

The relevant provisions of the proposed 

rule apply to certificate holders using 

part 121 pilot training and qualification 

programs. Currently there are 81 such 

certificate holders who collectively 

employ 37,228 PICs and 39,956 SICs. 

Frequency: The development and 

approval of new and revised 

curriculums would be a one-time 

occurrence for each certificate holder. 

Similarly the documentation regarding 

training in leadership and command 

and mentoring for current PICs would 

be a one-time occurrence. The 

documentation of operations 

familiarization for new-hire pilots 

would occur once for each new-hire 

pilot. The documentation of recurrent 

PIC leadership and command and 

mentoring training would occur every 

three years for each PIC. 

Annual Burden Estimate: These 

proposed amendments to part 121 set 

out prerequisites and levy requirements 

that must be met by certificate holders 

using part 121 pilot training and 

qualification programs and by those 

individuals who serve in given 

capacities for those certificate holders. 

The estimates for hours and costs are 

broken down by development and 

approval of new and revised training 

curriculums followed by pilot training 

recordkeeping. 

The FAA anticipates that certificate 

holders would incur costs for the 

following groups of provisions: 

• Operations familiarization for newhire pilots (§ 121.432(d)); 

• Leadership and command and 

mentoring ground training for pilots 

currently serving as PIC (§ 121.429); 

• Upgrade training curriculum 

requirements (§§ 121.420 and 121.426); 

• Recurrent PIC leadership and 

command and mentoring ground 

training (§§ 121.409(b) and 121.427); 

• Part 121, appendix H requirements; 

and 

• Approval of Qualification 

Standards Document for certificate 

holders using an AQP (§ 121.909). 

1. Development and Approval of New 

and Revised Training Curriculums 

For the development and approval of 

new and revised training curriculums, 

the FAA estimated the paperwork costs 

for these provisions by multiplying the 

hourly rate of the person responsible by 

the number of estimated hours to 

develop and submit the new or revised 

training curriculum. (In all cases we 

assume that a ground instructor would 

develop and submit the new or revised 

training curriculum and that the ground 

instructor fully burdened wage is $44 

per hour.50) We then multiplied these 

costs by the number of certificate 

holders affected by the provision. 

a. Leadership and Command and 

Mentoring Ground Training for Pilots 

Currently Serving as PIC (§ 121.429) and 

Recurrent PIC Leadership and 

Command and Mentoring Training 

(§§ 121.409(b) and 121.427) 

Proposed § 121.429 would require 

one-time development of a training 

course for leadership and command and 

mentoring for current PICs. This course 

must be submitted to the FAA for 

approval. 

Proposed revisions to §§ 121.409(b) 

and 121.427 would require one-time 

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51The clerk hourly wage rate of $18 multiplied 

by 1.42 to account for costs of employer provided 

benefits. Wage based on 2013 BLS Occupational 

Employment Statistics for Air Transportation 

Industry. (http://www.bls.gov/oes/current/naics4_

481100.htm): Information and Record Clerks (43– 

4000). Wage multiplier from BLS, Employer costs 

for Employee compensation—June 2013, Table 5, 

Private Industry. (http://www.bls.gov/news.release/ 

pdf/ecec.pdf) 

revision to the certificate holder’s 

approved recurrent PIC training 

curriculum. This revised curriculum 

must be submitted to the FAA for 

approval. 

The FAA estimates a total of 40 hours 

of ground instructor time for 

development and submission of both 

the curriculum for current PICs and the 

revision to the recurrent PIC training 

curriculum. 

Assuming 81 affected certificate 

holders, the FAA estimates that these 

proposed provisions would result in a 

one-time total cost of $142,560 for all 

affected certificate holders. 

b. Upgrade Training Curriculum 

Requirements (§§ 121.420 and 121.426) 

Proposed §§ 121.420 and 121.426 

would require one time revision to the 

certificate holder’s approved SIC to PIC 

upgrade training curriculum. This 

revised curriculum must be submitted 

to the FAA for approval. 

The FAA estimates a total of 80 hours 

of ground instructor time for 

development and submission of the 

revised SIC to PIC upgrade training 

curriculum. 

Assuming 81 affected certificate 

holders, the FAA estimates that these 

proposed provisions would result in a 

one-time cost of $285,120 for all affected 

certificate holders. 

c. Part 121 Appendix H Requirements 

The proposed revision to part 121 

appendix H would require one time 

revision to the certificate holder’s 

approved training program to remove 

the pilot experience prerequisites for 

using a Level C FFS during training and 

checking. This revised training program 

must be submitted to the FAA for 

approval. The FAA expects that the 

program updates to reflect this change 

are minimal and are subsumed in the 

paperwork costs for the collective 

amendments made to the training 

provisions in this proposed rule. 

The FAA estimates there are no costs 

for this proposed provision. 

d. Approval of Qualification Standards 

Document for Certificate Holders Using 

an AQP (§ 121.909) 

Although the proposed rule does not 

make any changes to § 121.909, when 

the new subparts N and O training 

requirements become effective, 

certificate holders that use AQP would 

have to review their training programs 

to make sure they address the new 

subparts N and O requirements. It is 

possible that certificate holders may 

make a one-time revision to their 

Qualifications Standards Document 

required by § 121.909 during this 

process to address the revised subparts 

N and O requirements. 

This is a cost that only applies to 

certificate holders that use AQP for pilot 

training because they are the only ones 

who must meet the § 121.909 

requirements. Therefore, this provision 

does not apply to certificate holders 

who only train their pilots under a 

training program in accordance with 

subparts N and O of part 121. 

For each of the 25 certificate holders 

with an approved AQP, the FAA 

estimates 3 hours of ground instructor 

time for development and submission of 

the revised Qualification Standards 

Document. 

The FAA estimates that this proposed 

provision would result in one-time costs 

of $3,300 across all certificate holders 

who train their pilots under AQP. 

2. Recordkeeping 

For the pilot training recordkeeping, 

the FAA estimated the paperwork costs 

for these provisions by first multiplying 

the number of required entries by the 

estimated number of pilots affected. 

Second, we multiplied the total number 

of entries by .001 hours (the time 

required to make each entry). Lastly, we 

multiplied the total time to make all 

entries by the hourly rate of the person 

responsible for making the entries. In all 

cases, the FAA assumes that the person 

making the entries is a clerical 

employee with an estimated fullyburdened wage of $26 per hour.51

a. Leadership and Command and 

Mentoring Ground Training for Pilots 

Currently Serving as PIC (§ 121.429) 

A record showing compliance with 

this requirement for current PICs would 

need to be retained in accordance with 

§ 121.683(a)(1). This would be a onetime burden. 

The FAA assumes that this cost 

would be incurred in the year prior to 

the compliance date of the rule and 

estimates that during that year 37,527 

pilots would be affected and would 

require one record. The FAA estimates 

38 hours of clerical time for entry of 

these records. 

The FAA estimates that this proposed 

provision would add a one-time cost of 

$988 for all affected certificate holders. 

b. Recurrent PIC Leadership and 

Command and Mentoring Ground 

Training (§ 121.427) 

A record showing compliance with 

this requirement for current PICs would 

need to be retained in accordance with 

§ 121.683(a)(1). This would be an 

addition to the current recordkeeping 

burden approved under OMB Control 

Number 2120–0008. 

PICs are required to complete the 

recurrent training every 3 years. Over 

the 10 year analysis period, the FAA 

estimates that there would be 96,328 

instances of PICs undergoing recurrent 

training involving leadership and 

command and mentoring. Each instance 

would require one record. The FAA 

estimates 97 hours of clerical time for 

entry of these records. 

The FAA estimates that this proposed 

provision would result in costs of 

$2,522 over the analysis period for all 

affected certificate holders. 

c. Operations Familiarization for NewHire Pilots (§ 121.432(d)) 

Section 121.432(d) proposes a new 

qualification requirement for new-hire 

pilots to complete operations 

familiarization consisting of 2 operating 

cycles. A record showing compliance 

with this requirement for each new-hire 

pilot would need to be retained in 

accordance with § 121.683(a)(1). This 

would be an addition to the current 

recordkeeping burden approved under 

OMB Control Number 2120–0008. 

The FAA estimates all affected 

certificate holders would have a total of 

19,636 new-hire pilots over the analysis 

period. Each of the estimated 19,636 

pilots affected would require one 

record. The FAA estimates 20 hours of 

clerical time for entry of these records. 

The FAA estimates that this proposed 

provision would result in costs of $520 

across the analysis period for all 

affected certificate holders. 

3. Summary of Estimated Paperwork 

Costs 

The total cost burden would be 

$435,010 ($379,076 discounted at 7 

percent) over the 10-year analysis 

period. 

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SUMMARY OF ESTIMATED PAPERWORK COSTS

Proposed rule requirement Number of 

records 

Number of 

hours Wage 

Number of 

certificate 

holders 

Total cost 

Development and Approval of New and Revised Training Curriculums 

Leadership and command and mentoring ground training 

for pilots currently serving as PIC (§ 121.429) and recurrent PIC leadership and command and mentoring training (§§ 121.409(b) and 121.427) ...................................... N/A 40 * $44 81 $142,560 

Upgrade training curriculum (§§ 121.420 and 121.426) ...... N/A 80 * 44 81 285,120 

Approval of Qualification Standards Document (§ 121.909) N/A 3 * 44 25 3,300 

Recordkeeping 

Leadership and command and mentoring ground training 

for pilots currently serving as PIC (§ 121.429) ................. 37,527 38 ** 26 N/A 988 

Recurrent PIC leadership and command and mentoring 

ground training (§ 121.427) .............................................. 96,328 97 ** 26 N/A 2,522 

Operations familiarization for new-hire pilots (§ 121.432(d)) 19,636 20 ** 26 N/A 520 

Total .............................................................................. ........................ 278 ........................ ........................ 435,010 

* Fully burdened hourly wage for ground instructor. 

** Fully burdened hourly wage for clerical employee. 

The FAA is soliciting comments to— 

(1) Evaluate whether the proposed 

information requirement is necessary for 

the proper performance of the functions 

of the FAA, including whether the 

information will have practical utility; 

(2) Evaluate the accuracy of the FAA’s 

estimate of the burden; 

(3) Enhance the quality, utility, and 

clarity of the information to be 

collected; and 

(4) Minimize the burden of collecting 

information on those who are to 

respond, including by using appropriate 

automated, electronic, mechanical, or 

other technological collection 

techniques or other forms of information 

technology. 

Individuals and organizations may 

send comments on the information 

collection requirement to the address 

listed in the ADDRESSES section at the 

beginning of this preamble by January 5, 

2017. Comments also should be 

submitted to the Office of Management 

and Budget, Office of Information and 

Regulatory Affairs, Attention: Desk 

Officer for FAA, New Executive 

Building, Room 10202, 725 17th Street 

NW., Washington, DC 20053. 

F. International Compatibility and 

Cooperation 

In keeping with U.S. obligations 

under the Convention on International 

Civil Aviation, it is FAA policy to 

conform to International Civil Aviation 

Organization (ICAO) Standards and 

Recommended Practices to the 

maximum extent practicable. The FAA 

has reviewed the corresponding ICAO 

Standards and Recommended Practices 

and has identified no differences with 

these proposed regulations. 

G. Environmental Analysis 

FAA Order 1050.1F identifies FAA 

actions that are categorically excluded 

from preparation of an environmental 

assessment or environmental impact 

statement under the National 

Environmental Policy Act in the 

absence of extraordinary circumstances. 

The FAA has determined this 

rulemaking action qualifies for the 

categorical exclusion identified in 

paragraph 5–6.6 and involves no 

extraordinary circumstances. 

V. Executive Order Determinations 

A. Executive Order 13132, Federalism 

The FAA has analyzed this proposed 

rule under the principles and criteria of 

Executive Order 13132, Federalism. The 

FAA has determined that this action 

would not have a substantial direct 

effect on the States, or the relationship 

between the Federal Government and 

the States, or on the distribution of 

power and responsibilities among the 

various levels of government, and, 

therefore, would not have Federalism 

implications. 

B. Executive Order 13211, Regulations 

That Significantly Affect Energy Supply, 

Distribution, or Use 

The FAA analyzed this proposed rule 

under Executive Order 13211, Actions 

Concerning Regulations that 

Significantly Affect Energy Supply, 

Distribution, or Use (May 18, 2001). The 

FAA has determined that it would not 

be a ‘‘significant energy action’’ under 

the executive order and would not be 

likely to have a significant adverse effect 

on the supply, distribution, or use of 

energy. 

C. Executive Order 13609, Promoting 

International Regulatory Cooperation 

Executive Order 13609, Promoting 

International Regulatory Cooperation, 

promotes international regulatory 

cooperation to meet shared challenges 

involving health, safety, labor, security, 

environmental, and other issues and to 

reduce, eliminate, or prevent 

unnecessary differences in regulatory 

requirements. The FAA has analyzed 

this action under the policies and 

agency responsibilities of Executive 

Order 13609, and has determined that 

this action would have no effect on 

international regulatory cooperation. 

VI. Additional Information 

A. Comments Invited 

The FAA invites interested persons to 

participate in this rulemaking by 

submitting written comments, data, or 

views. The FAA also invites comments 

relating to the economic, environmental, 

energy, or federalism impacts that might 

result from adopting the proposals in 

this document. The most helpful 

comments reference a specific portion of 

the proposal, explain the reason for any 

recommended change, and include 

supporting data. To ensure the docket 

does not contain duplicate comments, 

commenters should send only one copy 

of written comments, or if comments are 

filed electronically, commenters should 

submit only one time. 

The FAA will file in the docket all 

comments it receives, as well as a report 

summarizing each substantive public 

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69934 Federal Register / Vol. 81, No. 195 / Friday, October 7, 2016 / Proposed Rules 

contact with FAA personnel concerning 

this proposed rulemaking. Before acting 

on this proposal, the FAA will consider 

all comments it receives on or before the 

closing date for comments. The FAA 

will consider comments filed after the 

comment period has closed if it is 

possible to do so without incurring 

expense or delay. The FAA may change 

this proposal in light of the comments 

it receives. 

Proprietary or Confidential Business 

Information: Commenters should not 

file proprietary or confidential business 

information in the docket. Such 

information must be sent or delivered 

directly to the person identified in the 

FOR FURTHER INFORMATION CONTACT

section of this document, and marked as 

proprietary or confidential. If submitting 

information on a disk or CD ROM, mark 

the outside of the disk or CD ROM, and 

identify electronically within the disk or 

CD ROM the specific information that is 

proprietary or confidential. 

Under 14 CFR 11.35(b), if the FAA is 

aware of proprietary information filed 

with a comment, the FAA does not 

place it in the docket. It is held in a 

separate file to which the public does 

not have access, and the FAA places a 

note in the docket that it has received 

it. If the FAA receives a request to 

examine or copy this information, it 

treats it as any other request under the 

Freedom of Information Act (5 U.S.C. 

552). The FAA processes such a request 

under Department of Transportation 

procedures found in 49 CFR part 7. 

B. Availability of Rulemaking 

Documents 

An electronic copy of rulemaking 

documents may be obtained from 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.gpo.gov/fdsys/. 

Copies may also be obtained 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. Commenters 

must identify the docket or notice 

number of this rulemaking. 

All documents the FAA considered in 

developing this proposed rule, 

including economic analyses and 

technical reports, may be accessed from 

the Internet through the Federal 

eRulemaking Portal referenced in item 

(1) above. 

List of Subjects 

14 CFR Part 61 

Aircraft, Airmen, Aviation safety, 

Reporting and recordkeeping 

requirements. 

14 CFR Part 91 

Aircraft, Airmen, Aviation safety, 

Reporting and recordkeeping 

requirements. 

14 CFR Part 121 

Air carriers, Aircraft, Airmen, 

Aviation safety, Reporting and 

recordkeeping requirements, Safety, 

Transportation. 

14 CFR Part 135 

Aircraft, Airmen, Aviation safety, 

Reporting and recordkeeping 

requirements. 

In consideration of the foregoing, the 

Federal Aviation Administration 

proposes to amend chapter I of title 14, 

Code of Federal Regulations as follows: 

PART 61—CERTIFICATION: PILOTS, 

FLIGHT INSTRUCTORS, AND GROUND 

INSTRUCTORS 

■ 1. The authority citation for part 61 

continues to read as follows: 

Authority: 49 U.S.C. 106(f), 106(g), 40113, 

44701–44703, 44707, 44709–44711, 44729, 

44903, 45102–45103, 45301–45302. 

■ 2. Amend § 61.71 by revising 

paragraph (b)(1) to read as follows: 

§ 61.71 Graduates of an approved training 

program other than under this part: Special 

rules. 

* * * * * 

(b) * * * 

(1) Satisfactorily accomplished an 

approved training curriculum and a 

proficiency check for that airplane type 

that includes all the tasks and 

maneuvers required by §§ 121.424 and 

121.441 of this chapter to serve as pilot 

in command in operations conducted 

under part 121 of this chapter; and 

* * * * * 

PART 91—GENERAL OPERATING AND 

FLIGHT RULES 

■ 3. The authority citation for part 91 

continues to read as follows: 

Authority: 49 U.S.C. 106(f), 106(g), 1155, 

40101, 40103, 40105, 40113, 40120, 44101, 

44111, 44701, 44704, 44709, 44711, 44712, 

44715, 44716, 44717, 44722, 46306, 46315, 

46316, 46504, 46506–46507, 47122, 47508, 

47528–47531, 47534, articles 12 and 29 of the 

Convention on International Civil Aviation 

(61 Stat. 1180), (126 Stat. 11). 

■ 4. Amend § 91.1063 as follows: 

■ a. Redesignate paragraphs (c) and (d) 

as paragraphs (d) and (e), respectively; 

and 

■ b. Add new paragraph (c). 

The addition reads as follows: 

§ 91.1063 Testing and training: 

Applicability and terms used. 

* * * * * 

(c) Additional limitations applicable 

to program managers authorized in 

accordance with paragraph (b) of this 

section, to comply with subparts N and 

O of part 121 of this chapter instead of 

§§ 91.1065 through 91.1107 of this part. 

(1) Upgrade training. (i) Each program 

manager must include in upgrade 

ground training for pilots, instruction in 

at least the subjects identified in 

§ 121.419(a) of this chapter, as 

applicable to their assigned duties; and, 

for pilots serving in crews of two or 

more pilots, beginning on [24 MONTHS 

AFTER EFFECTIVE DATE OF FINAL 

RULE], instruction in the subjects 

identified in § 121.419(c) of this chapter. 

(ii) Each program manager must 

include in upgrade flight training for 

pilots, flight training for the maneuvers 

and procedures required in § 121.424(a), 

(c), (e) and (f) of this chapter; and, for 

pilots serving in crews of two or more 

pilots, beginning on [24 MONTHS 

AFTER EFFECTIVE DATE OF FINAL 

RULE], the flight training required in 

§ 121.424(b) of this chapter. 

(2) Initial and recurrent leadership 

and command and mentoring training. 

Program managers are not required to 

include leadership and command 

training in §§ 121.409(b)(2)(ii)(B)(6), 

121.419(c)(1), 121.424(b) and 

121.427(d)(1) of this chapter, and 

mentoring training in §§ 121.419(c)(2) 

and 121.427(d)(1) of this chapter in 

initial and recurrent training for pilots 

in command who serve in operations 

that use only one pilot. 

(3) One-time leadership and 

command and mentoring training. 

Section 121.429 of this chapter does not 

apply to program managers conducting 

operations under this subpart when 

those operations use only one pilot. 

* * * * * 

PART 121—OPERATING 

REQUIREMENTS: DOMESTIC, FLAG, 

AND SUPPLEMENTAL OPERATIONS 

■ 5. The authority citation for part 121 

continues to read as follows: 

Authority: 49 U.S.C. 106(f), 106(g), 40103, 

40113, 40119, 41706, 42301 preceding note 

added by Pub. L. 112–95, sec. 412, 126 Stat. 

89, 44101, 44701–44702, 44705, 44709– 

44711, 44713, 44716–44717, 44722, 44729, 

44732; 46105; Pub. L. 111–216, 124 Stat. 

2348 (49 U.S.C. 44701 note); Pub. L. 112–95, 

126 Stat. 62 (49 U.S.C. 44732 note). 

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■ 6. Add § 121.17 to subpart A to read 

as follows: 

§ 121.17 Pilot Professional Development 

Committee. 

(a) Each certificate holder conducting 

operations under this part must 

establish and maintain a pilot 

professional development committee to 

develop, administer, and oversee a 

formal pilot mentoring program. 

(b) The pilot professional 

development committee must consist of 

at least the following individuals: 

(1) One certificate holder management 

representative who has completed at 

least one year of service as a pilot in 

command in part 121 operations and is 

qualified through training, experience, 

and expertise. 

(2) One representative of the pilots 

employed by the certificate holder. 

(c) The pilot professional 

development committee must hold its 

first meeting no later than [24 MONTHS 

AFTER EFFECTIVE DATE OF FINAL 

RULE]. Thereafter, the pilot professional 

development committee must meet on a 

regular basis. The committee must meet 

with sufficient frequency to accomplish 

its objectives but not less than once 

every 12 calendar months. 

■ 7. Amend § 121.400 as follows: 

■ a. Revise paragraph (a); 

■ b. Revise paragraph (c)(3); 

■ c. Redesignate paragraphs (c)(4) 

through (c)(11) as paragraphs (c)(5) 

through (c)(12), respectively; and 

■ d. Add new paragraph (c)(4). 

The revisions and addition read as 

follows: 

§ 121.400 Applicability and terms used. 

(a) This subpart prescribes the 

requirements applicable to each 

certificate holder for establishing and 

maintaining a training program for 

crewmembers, aircraft dispatchers, and 

other operations personnel, and for the 

approval and use of flight simulation 

training devices and training equipment 

in the conduct of the program. 

* * * * * 

(c) * * * 

(3) Upgrade training. The training 

required for flightcrew members who 

have qualified and served as second in 

command on a particular airplane type, 

before they serve as pilot in command 

on that airplane. 

(4) Conversion training. The training 

required for flightcrew members who 

have qualified and served as flight 

engineer on a particular airplane type, 

before they serve as second in command 

on that airplane. 

* * * * * 

■ 8. Amend § 121.401 by revising 

paragraph (a)(4) to read as follows: 

§ 121.401 Training program: General 

(a) * * * 

(4) Provide enough flight instructors 

and approved check airmen to conduct 

required flight training and checks 

required under this part. 

* * * * * 

§ 121.403 [Amended] 

■ 9. In § 121.403 in paragraph (b)(4), 

remove the words ‘‘airplane simulators 

or other’’ and add, in their place, the 

words ‘‘flight simulation.’’ 

§ 121.407 [Amended] 

■ 10. Amend § 121.407 as follows: 

■ a. In the section heading, remove the 

words ‘‘airplane simulators and other’’ 

and add, in their place, the words 

‘‘flight simulation’’; 

■ b. In paragraph (a) introductory text, 

remove the words ‘‘airplane simulator 

and other training device’’ and add, in 

their place, the word ‘‘FSTD’’; 

■ c. In paragraph (b), remove the words 

‘‘airplane simulator or other training 

device’’ and add, in their place, the 

word ‘‘FSTD’’; 

■ d. In paragraph (c) introductory text, 

remove the words ‘‘An airplane 

simulator’’ and add, in their place, the 

words ‘‘A Level B or higher FFS’’, 

remove the word ‘‘in-flight’’ and add, in 

its place, the word ‘‘inflight’’, and 

remove the word ‘‘simulator’’ and add, 

in its place, the word ‘‘FFS’’; 

■ f. In paragraph (c)(2), add a comma 

after ‘‘§ 121.424(a) and (c)’’ and add 

‘‘§ 121.426,’’ after the comma; and 

■ g. In paragraphs (d) and (e), remove 

the words ‘‘airplane simulator’’ and add, 

in their place, the word ‘‘FFS’’. 

■ 11. Amend § 121.409 as follows: 

■ a. In the section heading, remove the 

words ‘‘airplane simulators and other’’ 

and add, in their place, the words 

‘‘flight simulation’’; 

■ b. In paragraph (a), remove the words 

‘‘airplane simulators and other training 

devices’’ and add, in their place, the 

word ‘‘FSTDs’’; 

■ c. In paragraphs (b) introductory text, 

(b)(1) and (c)(1), remove the words 

‘‘airplane simulator’’ and add, in their 

place, the word ‘‘FFS’’; 

■ d. In paragraph (b)(2)(ii)(B)(4), remove 

the word ‘‘and’’ at the end of the 

paragraph; 

■ e. In paragraph (b)(2)(ii)(B)(5), remove 

the period at the end of the paragraph 

and add, in its place, ‘‘; and’’; 

■ f. Add paragraph (b)(2)(ii)(B)(6); 

■ g. Remove the floating paragraph that 

follows paragraph (b)(3); 

■ h. In paragraph (c)(2), remove the 

words ‘‘airplane simulator or other 

training device’’ and add, in their place, 

the word ‘‘FSTD’’; and 

■ i. In paragraph (d), in the first 

sentence, remove the word ‘‘simulator’’ 

and add, in its place, the word ‘‘FFS’’, 

and in the second sentence, add 

‘‘121.426,’’ after ‘‘121.424’’ and before 

‘‘and 121.427’’. 

The addition reads as follows: 

§ 121.409 Training courses using flight 

simulation training devices. 

* * * * * 

(b) * * * 

(2) * * * 

(ii) * * * 

(B) * * * 

(6) Provides an opportunity for each 

pilot in command to demonstrate 

leadership and command skills. 

* * * * * 

§ 121.411 [Amended] 

■ 12. Amend § 121.411 as follows: 

■ a. In paragraphs (a)(1), (a)(2), (f)(1), 

and (f)(2), remove the words ‘‘flight 

simulator’’ and add, in their place, the 

words ‘‘full flight simulator’’; and 

■ b. In paragraph (b)(4), remove the 

word ‘‘in-flight’’ and add, in its place, 

the word ‘‘inflight’’. 

§ 121.412 [Amended] 

■ 13. Amend § 121.412 as follows: 

■ a. In paragraphs (a)(1), (a)(2), (f)(1), 

and (f)(2), remove the words ‘‘flight 

simulator’’ and add, in their place, the 

words ‘‘full flight simulator’’; and 

■ b. In paragraph (b)(4), remove the 

word ‘‘in-flight’’ and add, in its place, 

the word ‘‘inflight’’. 

§ 121.413 [Amended] 

■ 14. Amend § 121.413 as follows: 

■ a. In paragraphs (a)(2), (c)(7) 

introductory text, (c)(7)(iv), (d)(2) 

introductory text, (d)(2)(iv), (f), (g) 

introductory text, (g)(1), (g)(2) and (h), 

remove the words ‘‘flight simulator’’ 

and add, in their place, the words ‘‘full 

flight simulator’’; and 

■ b. In paragraph (f), remove the words 

‘‘in flight’’ and add, in their place, the 

word ‘‘inflight’’. 

§ 121.414 [Amended] 

■ 15. Amend § 121.414 as follows: 

■ a. In paragraphs (a)(2), (c)(8) 

introductory text, (c)(8)(iv), (d)(2) 

introductory text, (d)(2)(iv), (f), (g) 

introductory text, (g)(1), (g)(2), and (h), 

remove the words ‘‘flight simulator’’ 

and add, in their place, the words ‘‘full 

flight simulator’’; 

■ b. In paragraph (e)(3)(i), remove the 

word ‘‘In-flight’’ and add, in its place, 

the word ‘‘Inflight’’; and 

■ c. In paragraph (f), remove the words 

‘‘in flight’’ and add, in their place, the 

word ‘‘inflight’’. 

■ 16. Amend § 121.415 as follows: 

■ a. In paragraph (b), remove the 

reference to ‘‘121.425’’ and add, in its 

place, ‘‘121.426’’; 

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■ b. Revise paragraph (e); 

■ c. Redesignate paragraphs (f) through 

(j) as paragraphs (g) through (k), 

respectively; 

■ d. Add new paragraph (f); 

■ e. Revise newly redesignated 

paragraph (g); 

■ f. Revise newly redesignated 

paragraph (h) introductory text; 

■ g. In newly redesignated paragraph (j) 

remove the reference to ‘‘paragraph (h)’’ 

and add in its place ‘‘paragraph (i)’’; and 

■ h. In newly redesignated paragraph (k) 

remove the references to ‘‘paragraphs (h) 

and (i)’’ and add in their place, 

‘‘paragraphs (i) and (j)’’. 

The revisions and addition read as 

follows: 

§ 121.415 Crewmember and dispatcher 

training program requirements. 

* * * * * 

(e) Upgrade training. (1) Upgrade 

training as specified in §§ 121.420 and 

121.426 of this part for a particular type 

airplane may be included in the training 

program for flightcrew members who 

have qualified and served as second in 

command pilot on that airplane; or 

(2) Before [24 MONTHS AFTER 

EFFECTIVE DATE OF FINAL RULE], 

upgrade training as specified in 

§§ 121.419 and 121.424 of this part for 

a particular type airplane may be 

included in the training program for 

flightcrew members who have qualified 

and served as second in command pilot 

on that airplane. 

(f) Conversion training as specified in 

§§ 121.419 and 121.424 of this part for 

a particular type airplane may be 

included in the training program for 

flightcrew members who have qualified 

and served as flight engineer on that 

airplane. 

(g) Particular subjects, maneuvers, 

procedures, or parts thereof specified in 

§§ 121.419, 121.420, 121.421, 121.422, 

121.424, 121.425 and 121.426 of this 

part for transition, conversion or 

upgrade training, as applicable, may be 

omitted, or the programmed hours of 

ground instruction or inflight training 

may be reduced, as provided in 

§ 121.405 of this part. 

(h) In addition to initial, transition, 

conversion, upgrade, recurrent and 

differences training, each training 

program must also provide ground and 

flight training, instruction, and practice 

as necessary to insure that each 

crewmember and dispatcher— 

* * * * * 

§ 121.417 [Amended] 

■ 17. In 14 CFR 121.417(b)(3)(ii), 

remove the words ‘‘in flight’’ and add in 

their place, the word ‘‘inflight’’. 

■ 18. Amend § 121.418 by revising 

paragraphs (a)(2) and (c) to read as 

follows: 

§ 121.418 Differences training and related 

aircraft differences training. 

(a) * * * 

(2) Differences training for all 

variations of a particular type airplane 

may be included in initial, transition, 

conversion, upgrade, and recurrent 

training for the airplane. 

* * * * * 

(c) Approved related aircraft 

differences training. Approved related 

aircraft differences training for 

flightcrew members may be included in 

initial, transition, conversion, upgrade 

and recurrent training for the base 

aircraft. If the certificate holder’s 

approved training program includes 

related aircraft differences training in 

accordance with paragraph (b) of this 

section, the training required by 

§§ 121.419, 121.420, 121.424, 121.425, 

121.426 and 121.427 of this part, as 

applicable to flightcrew members, may 

be modified for the related aircraft. 

■ 19. Amend § 121.419 as follows: 

■ a. Revise the section heading; 

■ b. Revise paragraph (a) introductory 

text; 

■ c. Revise paragraph (b) introductory 

text; 

■ d. Redesignate paragraphs (c) through 

(e) as paragraphs (d) through (f), 

respectively; 

■ e. Add new paragraph (c); 

■ f. In newly redesignated paragraph 

(f)(2) remove the reference, ‘‘paragraphs 

(c) and (d)’’ and add in its place, 

‘‘paragraphs (d) and (e)’’; and 

■ g. Add paragraph (g). 

The revisions and additions read as 

follows: 

§ 121.419 Pilots and flight engineers: 

Initial, transition, and conversion ground 

training and before [24 MONTHS AFTER 

EFFECTIVE DATE OF FINAL RULE], 

upgrade ground training. 

(a) Except as provided in paragraph 

(b) of this section, initial, conversion, 

and upgrade ground training for pilots 

and initial and transition ground 

training for flight engineers, must 

include instruction in at least the 

following as applicable to their assigned 

duties: 

* * * * * 

(b) Initial and conversion ground 

training for pilots who have completed 

the airline transport pilot certification 

training program in § 61.156 of this 

chapter, and transition ground training 

for pilots, must include instruction in at 

least the following as applicable to their 

assigned duties: 

* * * * * 

(c) Beginning on [24 MONTHS 

AFTER EFFECTIVE DATE OF FINAL 

RULE], and in addition to the 

requirements in paragraphs (a) or (b) of 

this section, as applicable, initial 

ground training for pilots in command 

must include instruction on the 

following: 

(1) Leadership and command, 

including flightcrew member duties 

under § 121.542 of this part; and 

(2) Mentoring, including techniques 

for instilling and reinforcing the highest 

standards of technical performance, 

airmanship, and professionalism in 

newly employed pilots. 

* * * * * 

(f) * * * 

(1) * * * 

(2) Beginning March 12, 2019, initial 

programmed hours applicable to pilots 

as specified in paragraphs (d) and (e) of 

this section must include 2 additional 

hours. 

(g) Before [24 MONTHS AFTER 

EFFECTIVE DATE OF FINAL RULE] 

upgrade ground training must include 

either the instruction specified in 

paragraph (a) of this section or the 

instruction specified in § 121.420 of this 

part. Beginning on [24 MONTHS AFTER 

EFFECTIVE DATE OF FINAL RULE], 

upgrade ground training must include 

the instruction specified in § 121.420 of 

this part. 

■ 20. Add § 121.420 to read as follows: 

§ 121.420 Pilots: Upgrade ground training. 

(a) Upgrade ground training must 

include instruction in at least the 

following subjects as applicable to the 

duties assigned to the pilot in 

command: 

(1) Seat dependent procedures, as 

applicable; 

(2) Duty position procedures, as 

applicable; 

(3) Leadership and command, 

including flightcrew member duties 

under § 121.542 of this part; 

(4) Crew resource management, 

including decision making, authority 

and responsibility and conflict 

resolution; and 

(5) Mentoring, including techniques 

for reinforcing the highest standards of 

technical performance, airmanship and 

professional development in newly 

employed pilots. 

(b) Compliance date. Beginning on [24 

MONTHS AFTER EFFECTIVE DATE OF 

FINAL RULE], upgrade ground training 

must satisfy the requirements of this 

section. 

§ 121.423 [Amended] 

■ 21. In the § 121.423 section heading, 

remove the word ‘‘Pilot’’ and add, in its 

place, the word ‘‘Pilots’’. 

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■ 22. Amend § 121.424 as follows: 

■ a. Revise section heading; 

■ b. Revise paragraph (a) introductory 

text; 

■ c. Redesignate paragraphs (b) through 

(e) as paragraphs (c) through (f), 

respectively; 

■ d. Add new paragraph (b); 

■ e. In newly redesignated paragraph 

(c)(1), remove the words ‘‘a simulator’’ 

and add, in their place, the words ‘‘an 

FFS’’; 

■ f. In newly redesignated paragraph 

(c)(3), remove the words ‘‘an airplane 

simulator, an appropriate training 

device,’’ and add in their place, the 

words ‘‘an FFS, an FTD,’’; 

■ g. In newly redesignated paragraph (d) 

introductory text remove the reference 

‘‘paragraph (d)’’ and add in its place the 

reference, ‘‘paragraph (e)’’; 

■ h. In newly redesignated paragraph (e) 

introductory text remove the words 

‘‘airplane simulator’’ and add in their 

place the word, ‘‘FFS’’; 

■ i. Revise newly redesignated 

paragraphs (e)(1)(i) and (ii); 

■ j. In paragraph (e)(2), remove the 

words ‘‘airplane simulator’’ and add in 

their place the word ‘‘FFS’’; and 

■ k. Add paragraph (g). 

The revisions and additions read as 

follows: 

§ 121.424 Pilots: Initial, transition, and 

conversion flight training and before [24 

MONTHS AFTER EFFECTIVE DATE OF 

FINAL RULE], upgrade flight training. 

(a) Initial, transition, conversion, and 

upgrade flight training for pilots must 

include the following: 

* * * * * 

(b) Beginning on [24 MONTHS 

AFTER EFFECTIVE DATE OF FINAL 

RULE], in addition to the requirements 

in paragraph (a) of this section, initial 

flight training for pilots in command 

must include sufficient scenario based 

training incorporating CRM and 

leadership and command skills, to 

ensure the pilot’s proficiency as pilot in 

command. The training required by this 

paragraph may be completed inflight or 

in an FSTD. 

* * * * * 

(e) * * * 

(1) * * * 

(i) Training and practice in the FFS in 

at least all of the maneuvers and 

procedures set forth in appendix E to 

this part for initial flight training that 

are capable of being performed in an 

FFS; and 

(ii) A proficiency check in the FFS or 

the airplane to the level of proficiency 

of a pilot in command or second in 

command, as applicable, in at least the 

maneuvers and procedures set forth in 

appendix F to this part that are capable 

of being performed in an FFS. 

* * * * * 

(g) Before [24 MONTHS AFTER 

EFFECTIVE DATE OF FINAL RULE] 

upgrade flight training must be provided 

in accordance with either this section or 

§ 121.426 of this part. Beginning on [24 

MONTHS AFTER EFFECTIVE DATE OF 

FINAL RULE], upgrade flight training 

must be provided as specified in 

§ 121.426 of this part. 

§ 121.425 [Amended] 

■ 23. Amend § 121.425 as follows: 

■ a. In paragraphs (a)(1) and (a)(2)(iii), 

remove the comma after the word, 

‘‘inflight’’ and remove the words ‘‘in an 

airplane simulator, or in a training 

device’’ and add, in their place, the 

words ‘‘or in an FSTD’’; 

■ b. Designate the paragraph that 

follows paragraph (a)(2)(iii) as (a)(3) and 

remove the words ‘‘airplane simulator’’ 

and add, in their place, the word ‘‘FFS’’; 

and 

■ c. In paragraph (c), remove the words 

‘‘airplane simulator or other training 

device’’ and add, in their place, the 

word ‘‘FSTD’’ and remove the words 

‘‘simulator or other training device’’ and 

add, in their place, ‘‘FSTD’’. 

■ 24. Add § 121.426 to read as follows: 

§ 121.426 Pilots: Upgrade flight training. 

(a) Upgrade flight training for pilots 

must include the following: 

(1) Seat dependent maneuvers and 

procedures, as applicable; 

(2) Duty position maneuvers and 

procedures, as applicable; 

(3) Extended envelope training set 

forth in § 121.423 of this part; 

(4) Maneuvers and procedures set 

forth in the certificate holder’s low 

altitude windshear flight training 

program; 

(5) Sufficient scenario based training 

incorporating CRM and leadership and 

command skills, to ensure the pilot’s 

proficiency as pilot in command; and 

(6) Sufficient training to ensure the 

pilot’s knowledge and skill with respect 

to the following: 

(i) The airplane, its systems and 

components; 

(ii) Proper control of airspeed, 

configuration, direction, altitude and 

attitude in accordance with the Airplane 

Flight Manual, the certificate holder’s 

operations manual, checklists or other 

approved material appropriate to the 

airplane type; and 

(iii) Compliance with ATC, 

instrument procedures, or other 

applicable procedures. 

(b) The training required by paragraph 

(a) of this section must be performed 

inflight except— 

(1) That windshear maneuvers and 

procedures must be performed in an 

FFS in which the maneuvers and 

procedures are specifically authorized 

to be accomplished; 

(2) That the extended envelope 

training required by § 121.423 must be 

performed in a Level C or higher FFS 

unless the Administrator has issued to 

the certificate holder a deviation in 

accordance with § 121.423(e); and 

(3) To the extent that certain other 

maneuvers and procedures may be 

performed in an FFS, an FTD, or a static 

airplane as permitted in appendix E to 

this part. 

(c) If the certificate holder’s approved 

training program includes a course of 

training utilizing an FFS under 

§ 121.409(c) and (d) of this part, each 

pilot must successfully complete— 

(1) With respect to § 121.409(c) of this 

part—A proficiency check in the FFS or 

the airplane to the level of proficiency 

of a pilot in command in at least the 

maneuvers and procedures set forth in 

appendix F to this part that are capable 

of being performed in an FFS. 

(2) With respect to § 121.409(d) of this 

part, training and practice in at least the 

maneuvers and procedures set forth in 

the certificate holder’s approved lowaltitude windshear flight training 

program that are capable of being 

performed in an FFS in which the 

maneuvers and procedures are 

specifically authorized. 

(d) Compliance dates. Beginning on 

[24 MONTHS AFTER EFFECTIVE DATE 

OF FINAL RULE], upgrade flight 

training must satisfy the requirements of 

this section, except for the extended 

envelope training in paragraph (a)(3) 

and (b)(2) of this section. Upgrade flight 

training must include the requirements 

of paragraph (a)(3) and (b)(2) beginning 

on March 12, 2019. 

■ 25. Amend § 121.427 as follows: 

■ a. In paragraph (a), remove the words 

‘‘crew member’’ and add, in their place, 

the word ‘‘crewmember’’; 

■ b. Revise paragraph (b)(2); 

■ c. Revise paragraph (b)(4); 

■ d. Revise paragraph (c) introductory 

text; 

■ e. Redesignate paragraphs (c)(1), 

(c)(2), and (c)(3) as paragraphs (c)(2), 

(c)(3), and (c)(4), respectively; 

■ f. Add new paragraph (c)(1); 

■ g. In newly redesignated paragraph 

(c)(2), remove the words ‘‘pilots and’’; 

■ h. Redesignate paragraphs (d) and (e) 

as paragraphs (e) and (f), respectively; 

■ i. Add new paragraph (d); 

■ j. Revise newly redesignated 

paragraph (e)(1)(ii); 

■ k. Revise newly redesignated 

paragraph (e)(2)(ii); and 

■ l. Revise newly redesignated 

paragraph (f)(1). 

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The revisions and additions read as 

follows: 

§ 121.427 Recurrent training. 

* * * * * 

(b) * * * 

(2) Instruction as necessary in the 

following: 

(i) For pilots, the subjects required for 

ground training by §§ 121.415(a)(1), 

(a)(3), and (a)(4) and 121.419(b); 

(ii) For flight engineers, the subjects 

required for ground training by 

§§ 121.415(a)(1), (a)(3), and (a)(4) and 

121.419(a); 

(iii) For flight attendants, the subjects 

required for ground training by 

§§ 121.415(a)(1), (a)(3), and (a)(4) and 

121.421(a); and 

(iv) For aircraft dispatchers, the 

subjects required for ground training by 

§§ 121.415(a)(1) and (a)(4) and 

121.422(a). 

* * * * * 

(4) For crewmembers, CRM training 

and for aircraft dispatchers, DRM 

training. For flightcrew members, CRM 

training or portions thereof may be 

accomplished during an approved FFS 

line-oriented flight training (LOFT) 

session. 

(c) Recurrent ground training for 

crewmembers and dispatchers must 

consist of at least the following 

programmed hours of instruction in the 

required subjects specified in paragraph 

(b) unless reduced under § 121.405: 

(1) For pilots— 

(i) Group I reciprocating powered 

airplanes, 15 hours; 

(ii) Group I turbopropeller powered 

airplanes, 19 hours; and 

(iii) Group II airplanes, 24 hours. 

* * * * * 

(d) Recurrent ground training for 

pilots serving as pilot in command. 

(1) Within 36 months preceding 

service as pilot in command, each 

person must complete ground training 

on leadership and command, including 

instruction on flightcrew member duties 

under § 121.542 of this part, and 

mentoring. This training is in addition 

to the ground training required in 

paragraph (b) of this section and the 

programmed hours required in 

paragraph (c) of this section. 

(2) The requirements of paragraph 

(d)(1) do not apply until after a pilot has 

completed ground training on 

leadership and command and 

mentoring, as required by §§ 121.419, 

121.420 and 121.429 of this part, as 

applicable. 

(e) * * * 

(1) * * * 

(ii) Flight training in an approved FFS 

in maneuvers and procedures set forth 

in the certificate holder’s approved lowaltitude windshear flight training 

program and flight training in 

maneuvers and procedures set forth in 

appendix F to this part, or in a flight 

training program approved by the 

Administrator, except as follows— 

* * * * * 

(2) * * * 

(ii) The flight check, other than the 

preflight inspection, may be conducted 

in an FSTD. The preflight inspection 

may be conducted in an airplane, or by 

using an approved pictorial means that 

realistically portrays the location and 

detail of preflight inspection items and 

provides for the portrayal of abnormal 

conditions. Satisfactory completion of 

an approved line-oriented flight training 

may be substituted for the flight check. 

(f) * * * 

(1) Compliance with the requirements 

identified in paragraph (e)(1)(i) of this 

section is required no later than March 

12, 2019. 

* * * * * 

■ 26. Add § 121.429 to subpart N to read 

as follows: 

§ 121.429 Pilots in command: Leadership 

and command and mentoring training. 

(a) Beginning on [24 MONTHS 

AFTER EFFECTIVE DATE OF FINAL 

RULE], no certificate holder may use a 

pilot as pilot in command in an 

operation under this part unless the 

pilot has completed the following 

ground training in accordance with the 

certificate holder’s approved training 

program: 

(1) Leadership and command training 

in § 121.419(c)(1) of this part and 

mentoring training in § 121.419(c)(2) of 

this part; or 

(2) Leadership and command training 

in § 121.420(a)(3) of this part and 

mentoring training in § 121.420(a)(5) of 

this part. 

(b) Credit for training provided by the 

certificate holder. 

(1) The Administrator may credit 

leadership and command training and 

mentoring training completed by the 

pilot, with that certificate holder, prior 

to [60 DAYS AFTER DATE OF 

PUBLICATION OF FINAL RULE IN 

THE Federal Register], toward all or 

part of the training required by 

paragraph (a) of this section. 

(2) In granting credit for the training 

required by paragraph (a) of this section, 

the Administrator may consider training 

aids, devices, methods and procedures 

used by the certificate holder in 

voluntary leadership and command and 

mentoring instruction. 

■ 27. Amend § 121.431 by revising 

paragraph (a)(1) to read as follows: 

§ 121.431 Applicability. 

(a) * * * 

(1) Prescribes crewmember 

qualifications for all certificate holders 

except where otherwise specified; and 

* * * * * 

■ 28. Amend § 121.432 by revising 

paragraph (a) and adding new paragraph 

(d) to read as follows: 

§ 121.432 General. 

(a) Except in the case of operating 

experience under § 121.434 of this part 

and ground training for leadership and 

command and mentoring required by 

§§ 121.419, 121.420, 121.427 and 

121.429 of this part, as applicable, a 

pilot who serves as second in command 

of an operation that requires three or 

more pilots must be fully qualified to 

act as pilot in command of that 

operation. 

* * * * * 

(d) Operations familiarization. (1) 

Applicability. The operations 

familiarization requirements in 

paragraph (d)(2) of this section apply to 

all persons newly employed by the 

certificate holder to serve as a pilot in 

part 121 operations and who began the 

certificate holder’s basic indoctrination 

ground training on or after [24 

MONTHS AFTER EFFECTIVE DATE OF 

FINAL RULE]. 

(2) Operations familiarization 

requirements. (i) No certificate holder 

may use, and no person may serve as, 

a pilot in operations under this part 

unless that person has completed the 

operations familiarization required by 

paragraph (d)(2) of this section. 

(ii) Operations familiarization must 

include at least two operating cycles 

conducted by the certificate holder in 

accordance with the operating rules of 

this part. 

(iii) All pilots completing operations 

familiarization must occupy the 

observer seat on the flight deck and 

have access to and use an operational 

headset. 

(3) Deviation. (i) A certificate holder 

who operates an aircraft that does not 

have an observer seat on the flight deck 

may submit a request to the 

Administrator for approval of a 

deviation from the requirements of 

paragraphs (d)(1) and (d)(2) of this 

section. 

(ii) A request for deviation from any 

of the requirements in paragraphs (d)(1) 

and (d)(2) of this section must include 

the following information: 

(A) The total number and types of 

aircraft operated by the certificate 

holder in operations under this part that 

do not have an observer seat on the 

flight deck; 

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(B) The total number and types of 

aircraft operated by the certificate 

holder in operations under this part that 

do have an observer seat on the flight 

deck; and 

(C) Alternative methods for achieving 

the objectives of this section. 

(iii) A certificate holder may request 

an extension of a deviation issued under 

this section. 

(iv) Deviations or extensions to 

deviations will be issued for a period 

not to exceed 12 months. 

■ 29. Amend § 121.433 as follows: 

■ a. Revise paragraph (a)(2); and 

■ b. In paragraph (c)(2), remove the 

word ‘‘simulator’’ and add, in its place, 

the word ‘‘FFS’’. 

The revision reads as follows: 

§ 121.433 Training required. 

(a) * * * 

(2) Crewmembers who have qualified 

and served as second in command or 

flight engineer on a particular type 

airplane may serve as pilot in command 

or second in command, respectively, 

upon completion of upgrade or 

conversion training, as applicable, for 

that airplane as provided in § 121.415. 

* * * * * 

■ 30. Amend § 121.434 as follows: 

■ a. Redesignate paragraph (b)(3) as 

paragraph (b)(4); 

■ b. Add new paragraph (b)(3); 

■ c. In newly redesignated paragraph 

(b)(4), remove the words ‘‘in flight’’ and 

add, in their place, the word ‘‘inflight’’; 

■ d. In paragraph (c)(1)(ii), revise the 

first sentence; and 

■ e. In paragraph (c)(3)(iii), remove the 

words ‘‘airplane simulator’’ and add, in 

their place, the words ‘‘FFS’’. 

The addition and revision read as 

follows: 

§ 121.434 Operating experience, operating 

cycles, and consolidation of knowledge and 

skills. 

* * * * * 

(b) * * * 

(3) In the case of a pilot who 

satisfactorily completed the preflight 

visual inspection of an aircraft by 

pictorial means during a proficiency 

check, the pilot must also demonstrate 

proficiency to a check pilot on at least 

one complete preflight visual inspection 

of the interior and exterior of a static 

airplane. This demonstration of 

proficiency must be completed by the 

pilot and certified by the check pilot 

before the completion of operating 

experience. 

* * * * * 

(c) * * * 

(1) * * * 

(ii) For a qualifying pilot in command 

completing initial or upgrade training 

specified in §§ 121.424 or 121.426 of 

this part, be observed in the 

performance of prescribed duties by an 

FAA inspector during at least one flight 

leg which includes a takeoff and 

landing. 

* * * * * 

■ 31. Amend § 121.439 as follows: 

■ a. Revise paragraphs (a), (b) 

introductory text and (b)(1); 

■ b. Remove and reserve paragraph (c); 

■ c. Revise paragraphs (d) and (e); and 

■ d. In paragraph (f)(2)(ii) remove the 

word ‘‘reestablish’’ and add, in its place, 

the word ‘‘re-establish’’. 

The revisions read as follows: 

§ 121.439 Pilot qualification: Recent 

experience. 

(a) No certificate holder may use any 

person nor may any person serve as a 

required pilot flightcrew member, 

unless within the preceding 90 days, 

that person has made at least three 

takeoffs and landings in the type 

airplane in which that person is to 

serve. The takeoffs and landings 

required by this paragraph may be 

performed in a Level B or higher FFS 

approved under § 121.407 to include 

takeoff and landing maneuvers. In 

addition, any person who fails to make 

the three required takeoffs and landings 

within any consecutive 90-day period 

must re-establish recency of experience 

as provided in paragraph (b) of this 

section. 

(b) In addition to meeting all 

applicable training and checking 

requirements of this part, a required 

pilot flightcrew member who has not 

met the requirements of paragraph (a) of 

this section must re-establish recency of 

experience as follows: 

(1) Under the supervision of a check 

airman, make at least three takeoffs and 

landings in the type airplane in which 

that person is to serve or in a Level B 

or higher FFS. 

* * * * * 

(c) [Reserved] 

(d) When using an FFS to accomplish 

any of the requirements of paragraphs 

(a) or (b) of this section, each required 

flightcrew member position must be 

occupied by an appropriately qualified 

person and the FFS must be operated as 

if in a normal inflight environment 

without use of the repositioning features 

of the FFS. 

(e) A check airman who observes the 

takeoffs and landings prescribed in 

paragraph (b)(1) of this section shall 

certify that the person being observed is 

proficient and qualified to perform 

flight duty in operations under this part 

and may require any additional 

maneuvers that are determined 

necessary to make this certifying 

statement. 

■ 32. Amend § 121.441 as follows: 

■ a. In paragraphs (a) introductory text, 

(a)(1)(i)(B), (a)(1)(ii)(B), and (a)(2)(ii), 

remove the word ‘‘simulator’’ and add, 

in its place, the word ‘‘FFS’’; 

■ b. In paragraph (a)(2)(i), remove the 

word ‘‘simulator’’ and add, in its place, 

the word ‘‘flight’’; 

■ c. In paragraph (c) remove the words, 

‘‘airplane simulator or other appropriate 

training device’’ and add, in their place, 

the words ‘‘FFS or FTD’’; 

■ d. Revise paragraph (d); and 

■ e. Remove the floating paragraph that 

follows paragraph (e). 

The revision reads as follows: 

§ 121.441 Proficiency checks. 

* * * * * 

(d) A person giving a proficiency 

check may, in his discretion, waive any 

of the maneuvers or procedures for 

which a specific waiver authority is set 

forth in appendix F to this part if the 

conditions in paragraphs (d)(1) through 

(3) of this section are satisfied: 

(1) The Administrator has not 

specifically required the particular 

maneuver or procedure to be performed. 

(2) The pilot being checked is, at the 

time of the check, employed by a 

certificate holder as a pilot. 

(3) The pilot being checked meets one 

of the following conditions: 

(i) The pilot is currently qualified for 

operations under this part in the 

particular type airplane and flightcrew 

member position. 

(ii) The pilot has, within the 

preceding six calendar months, 

satisfactorily completed an approved 

training curriculum, except for an 

upgrade training curriculum in 

accordance with §§ 121.420 and 121.426 

of this part, for the particular type 

airplane. 

* * * * * 

■ 33. Revise appendix E to read as 

follows: 

Appendix E to Part 121—Flight 

Training Requirements 

The maneuvers and procedures required by 

§ 121.424 of this part for pilot initial, 

transition, and conversion flight training are 

set forth in the certificate holder’s approved 

low-altitude windshear flight training 

program, § 121.423 extended envelope 

training, and in this appendix. The 

maneuvers and procedures required for 

upgrade training in accordance with 

§ 121.424 of this part are set forth in this 

appendix and in the certificate holder’s 

approved low-altitude windshear flight 

training program and § 121.423 extended 

envelope training. For the maneuvers and 

procedures required for upgrade training in 

accordance with § 121.426, this appendix 

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designates the airplane or FSTD, as 

appropriate, that may be used. 

All required maneuvers and procedures 

must be performed inflight except that 

windshear and extended envelope training 

maneuvers and procedures must be 

performed in a full flight simulator (FFS) in 

which the maneuvers and procedures are 

specifically authorized to be accomplished. 

Certain other maneuvers and procedures may 

be performed in an FFS, a flight training 

device (FTD), or a static airplane as indicated 

by the appropriate symbol in the respective 

column opposite the maneuver or procedure. 

Whenever a maneuver or procedure is 

authorized to be performed in an FTD, it may 

be performed in an FFS, and in some cases, 

a static airplane. Whenever the requirement 

may be performed in either an FTD or a static 

airplane, the appropriate symbols are entered 

in the respective columns. 

A Level B or higher FFS may be used 

instead of the airplane to satisfy the inflight 

requirements if the FFS is approved under 

§ 121.407 of this part and is used as part of 

an approved program that meets the 

requirements for an Advanced Simulation 

Training Program in appendix H of this part. 

For the purpose of this appendix, the 

following symbols mean— 

I = Pilot in Command (PIC) and Second in 

Command (SIC) initial training 

T = PIC and SIC transition training 

U = SIC to PIC upgrade training 

C = Flight engineer (FE) to SIC conversion 

training 

Inflight Static 

airplane FFS FTD 

As appropriate to the airplane and the operation involved, flight training for pilots 

must include the following maneuvers and procedures.

I. Preflight: 

(a) Visual inspection of the exterior and interior of the airplane, the location of 

each item to be inspected, and the purpose for inspecting it. The visual inspection may be conducted using an approved pictorial means that realistically portrays the location and detail of visual inspection items and provides for the portrayal of normal and abnormal conditions.

..................... I, T, U, C.

(b) Use of the prestart checklist, appropriate control system checks, starting 

procedures, radio and electronic equipment checks, and the selection of 

proper navigation and communications radio facilities and frequencies prior 

to flight.

..................... ..................... I, T, U, C.

(c)(1) Before March 12, 2019, taxiing, sailing, and docking procedures in 

compliance with instructions issued by ATC or by the person conducting 

the training.

I, T, U, C.

(2) Taxiing. Beginning March 12, 2019, this maneuver includes the following:.

(i) Taxiing, sailing, and docking procedures in compliance with instructions issued by ATC or by the person conducting the training.I, T, U, C.

(ii) Use of airport diagram (surface movement chart) ......................... I, T, U, C.

(iii) Obtaining appropriate clearance before crossing or entering active runways.I, T, U, C.

(iv) Observation of all surface movement guidance control markings 

and lighting.

I, T, U, C.

(d)(1) Before March 12, 2019, pre-takeoff checks that include powerplant checks...................... ..................... I, T, U, C.

(2) Beginning March 12, 2019, pre-takeoff procedures that include powerplant checks, receipt of takeoff clearance and confirmation of aircraft 

location, and FMS entry (if appropriate) for departure runway prior to 

crossing hold short line for takeoff.

..................... ..................... I, T, U, C.

II. Takeoffs: 

Training in takeoffs must include the types and conditions listed below but more 

than one type may be combined where appropriate: 

(a) Normal takeoffs which, for the purpose of this maneuver, begin when the 

airplane is taxied into position on the runway to be used.

I, T, U, C.

(b) Takeoffs with instrument conditions simulated at or before reaching an altitude of 100′ above the airport elevation...................... ..................... I, T, U, C.

(c)(1) Crosswind takeoffs ................................................................................... I, T, U, C.

(2) Beginning March 12, 2019, crosswind takeoffs including crosswind 

takeoffs with gusts if practicable under the existing meteorological, airport, and traffic conditions.

I, T, U, C.

(d) Takeoffs with a simulated failure of the most critical powerplant— ............. ..................... ..................... I, T, U, C.

(1) At a point after V1 and before V2 that in the judgment of the person 

conducting the training is appropriate to the airplane type under the 

prevailing conditions; or.

..................... ..................... I, T, U, C.

(2) At a point as close as possible after V1 when V1 and V2 or V1 and VR

are identical; or.

..................... ..................... I, T, U, C.

(3) At the appropriate speed for nontransport category airplanes ............. ..................... ..................... I, T, U, C.

(e) Rejected takeoffs accomplished during a normal takeoff run after reaching 

a reasonable speed determined by giving due consideration to aircraft 

characteristics, runway length, surface conditions, wind direction and velocity, brake heat energy, and any other pertinent factors that may adversely 

affect safety or the airplane.

..................... ..................... I, T, U, C.

(f) Night takeoffs. For pilots in transition training, this requirement may be 

met during the operating experience required under.

§ 121.434 of this part by performing a normal takeoff at night when a check 

airman serving as PIC is occupying a pilot station.

I, T, U, C.

III. Flight Maneuvers and Procedures: 

(a) Turns with and without spoilers .................................................................... ..................... ..................... I, T, U, C.

(b) Tuck and Mach buffet ................................................................................... ..................... ..................... I, T, U, C.

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Inflight Static 

airplane FFS FTD 

(c) Maximum endurance and maximum range procedures ............................... ..................... ..................... I, T, U, C.

(d) Operation of systems and controls at the flight engineer station ................ ..................... ..................... I, T, U.

(e) Runaway and jammed stabilizer .................................................................. ..................... ..................... I, T, U, C.

(f) Normal and abnormal or alternate operation of the following systems and 

procedures: 

(1) Pressurization ........................................................................................ ..................... ..................... ..................... I, T, U, C. 

(2) Pneumatic .............................................................................................. ..................... ..................... ..................... I, T, U, C. 

(3) Air conditioning ...................................................................................... ..................... ..................... ..................... I, T, U, C. 

(4) Fuel and oil ............................................................................................ ..................... I, T, U, C ..... ..................... I, T, U, C. 

(5) Electrical ................................................................................................ ..................... I, T, U, C ..... ..................... I, T, U, C. 

(6) Hydraulic ................................................................................................ ..................... I, T, U, C ..... ..................... I, T, U, C. 

(7) Flight control .......................................................................................... ..................... I, T, U, C ..... ..................... I, T, U, C. 

(8) Anti-icing and deicing ............................................................................ ..................... ..................... I, T, U, C.

(9) Autopilot ................................................................................................. ..................... ..................... I, T, U, C.

(10) Automatic or other approach aids ....................................................... ..................... ..................... I, T, U, C.

(11) Stall warning devices, stall avoidance devices, and stability augmentation devices...................... ..................... I, T, U, C.

(12) Airborne radar devices ........................................................................ ..................... ..................... I, T, U, C.

(13) Any other systems, devices, or aids available .................................... ..................... ..................... I, T, U, C.

(14) Electrical, hydraulic, flight control, and flight instrument system malfunctioning or failure...................... I, T, U, C ..... ..................... I, T, U, C. 

(15) Landing gear and flap systems failure or malfunction ........................ ..................... I, T, U, C ..... ..................... I, T, U, C. 

(16) Failure of navigation or communications equipment .......................... ..................... ..................... I, T, U, C.

(g) Flight emergency procedures that include at least the following: 

(1) Powerplant, heater, cargo compartment, cabin, flight deck, wing, and 

electrical fires.

..................... I, T, U, C ..... ..................... I, T, U, C. 

(2) Smoke control ........................................................................................ ..................... I, T, U, C ..... ..................... I, T, U, C. 

(3) Powerplant failures ................................................................................ ..................... ..................... I, T ............... U, C. 

(4) Fuel jettisoning ...................................................................................... ..................... I, T, U, C ..... ..................... I, T, U, C. 

(5) Any other emergency procedures outlined in the appropriate flight 

manual.

..................... ..................... I, T, U, C.

(h) Steep turns in each direction. Each steep turn must involve a bank angle 

of 45° with a heading change of at least 180° but not more than 360°. This 

maneuver is not required for Group I transition training..

..................... ..................... I, T, U, C.

(i) Stall Prevention. For the purpose of this training the approved recovery 

procedure must be initiated at the first indication of an impending stall (buffet, stick shaker, aural warning). Stall prevention training must be conducted in at least the following configurations:.

..................... ..................... I, T, U, C.

(1) Takeoff configuration (except where the airplane uses only a zeroflap takeoff configuration)...................... ..................... I, T, U, C.

(2) Clean configuration ................................................................................ ..................... ..................... I, T, U, C.

(3) Landing configuration ............................................................................ ..................... ..................... I, T, U, C.

(j) Recovery from specific flight characteristics that are peculiar to the airplane type...................... ..................... I, T, U, C.

(k) Instrument procedures that include the following:.

(1) Area departure and arrival .................................................................... ..................... ..................... I, T, U, C.

(2) Use of navigation systems including adherence to assigned radials ... ..................... ..................... I, T, U, C.

(3) Holding ................................................................................................... ..................... ..................... I, T, U, C.

(l) ILS instrument approaches that include the following:.

(1) Normal ILS approaches ......................................................................... I, T, U, C.

(2) Manually controlled ILS approaches with a simulated failure of one 

powerplant which occurs before initiating the final approach course 

and continues to touchdown or through the missed approach procedure.

I ................... ..................... T, U, C.

(m) Instrument approaches and missed approaches other than ILS which include the following:.

(1) Nonprecision approaches that the pilot is likely to use ........................ ..................... ..................... U, C ............. I, T. 

(2) In addition to subparagraph (1) of this paragraph, at least one other 

nonprecision approach and missed approach procedure that the pilot 

is likely to use.

..................... ..................... I, T, U, C.

In connection with paragraphs III(l) and III(m), each instrument approach must be 

performed according to any procedures and limitations approved for the approach facility used. The instrument approach begins when the airplane is over 

the initial approach fix for the approach procedure being used (or turned over 

to the final approach controller in the case of GCA approach) and ends when 

the airplane touches down on the runway or when transition to a missed approach configuration is completed.

(n) Circling approaches which include the following: ......................................... I, T, U, C.

(1) That portion of the circling approach to the authorized minimum altitude for the procedure being used must be made under simulated instrument conditions.I, T, U, C.

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(2) The circling approach must be made to the authorized minimum circling approach altitude followed by a change in heading and the necessary maneuvering (by visual reference) to maintain a flight path that 

permits a normal landing on a runway at least 90° from the final approach course of the simulated instrument portion of the approach.

I, T, U, C.

(3) The circling approach must be performed without excessive maneuvering, and without exceeding the normal operating limits of the airplane. The angle of bank should not exceed 30°.I, T, U, C.

Training in the circling approach maneuver is not required if the certificate holder’s manual prohibits a circling approach in weather conditions below 1000–3 

(ceiling and visibility).

(o) Zero-flap approaches. Training in this maneuver is not required for a particular airplane type if the Administrator has determined that the probability 

of flap extension failure on that type airplane is extremely remote due to 

system design. In making this determination, the Administrator determines 

whether training on slats only and partial flap approaches is necessary.

I, C .............. ..................... T, U.

(p) Missed approaches which include the following: 

(1) Missed approaches from ILS approaches ............................................ ..................... ..................... I, T, U, C.

(2) Other missed approaches ..................................................................... ..................... ..................... ..................... I, T, U, C. 

(3) Missed approaches that include a complete approved missed approach procedure...................... ..................... ..................... I, T, U, C. 

(4) Missed approaches that include a powerplant failure ........................... ..................... ..................... I, T, U, C.

IV. Landings and Approaches to Landings: 

Training in landings and approaches to landings must include the types and conditions listed below but more than one type may be combined where appropriate: 

(a) Normal landings ............................................................................................ I, T, U, C.

(b) Landing and go around with the horizontal stabilizer out of trim ................. I, C .............. ..................... T .................. U. 

(c) Landing in sequence from an ILS instrument approach .............................. I ................... ..................... T, U, C.

(d)(1) Crosswind landing .................................................................................... I, T, U, C.

(2) Beginning March 12, 2019, crosswind landing, including crosswind landings with gusts if practicable under the existing meteorological, airport, and 

traffic conditions.

I, T, U, C.

(e) Maneuvering to a landing with simulated powerplant failure, as follows: 

(1) For 3-engine airplanes, maneuvering to a landing with an approved 

procedure that approximates the loss of two powerplants (center and 

one outboard engine).

I, C .............. ..................... T, U.

(2) For other multiengine airplanes, maneuvering to a landing with a simulated failure of 50 percent of available powerplants with the simulated 

loss of power on one side of the airplane.

I, C .............. ..................... T, U.

(f) Landing under simulated circling approach conditions (exceptions under 

III(n) applicable to this requirement).

I ................... ..................... T, U, C.

(g) Rejected landings that include a normal missed approach procedure after 

the landing is rejected. For the purpose of this maneuver the landing 

should be rejected at approximately 50 feet and approximately over the 

runway threshold.

I ................... ..................... T, U, C.

(h) Zero-flap landings if the Administrator finds that maneuver appropriate for 

training in the airplane.

I, C .............. ..................... T, U.

(i) Manual reversion ........................................................................................... ..................... ..................... I, T, U, C.

(j) Night landings. For pilots in transition training, this requirement may be 

met during the operating experience required under § 121.434 of this part 

by performing a normal landing at night when a check airman serving as 

PIC is occupying a pilot station.

I, T, U, C.

34. Revise appendix F to read as follows: 

Appendix F to Part 121—Proficiency Check 

Requirements 

The maneuvers and procedures required by 

§ 121.441 for pilot proficiency checks are set 

forth in this appendix. Except for the 

equipment examination, these maneuvers 

and procedures must be performed inflight. 

Certain maneuvers and procedures may be 

performed in a full flight simulator (FFS), or 

a flight training device (FTD) as indicated by 

the appropriate symbol in the respective 

column opposite the maneuver or procedure. 

Whenever a maneuver or procedure is 

authorized to be performed in an FTD, it may 

be performed in an FFS. 

A Level B or higher FFS may be used 

instead of the airplane to satisfy the inflight 

requirements if the FFS is approved under 

§ 121.407 and is used as part of an approved 

program that meets the requirements for an 

Advanced Simulation Training Program in 

appendix H of this part. 

For the purpose of this appendix, the 

following symbols mean— 

B = Both Pilot in Command (PIC) and Second 

in Command (SIC). 

W = May be waived for both PIC and SIC, 

except during a proficiency check 

conducted to qualify a PIC after completing 

an upgrade training curriculum in 

accordance with §§ 121.420 and 121.426 of 

this part. 

* = A symbol and asterisk (B*) indicates that 

a particular condition is specified in the 

maneuvers and procedures column. 

# = When a maneuver is preceded by this 

symbol it indicates the maneuver may be 

required in the airplane at the discretion of 

the person conducting the check. 

Throughout the maneuvers and procedures 

prescribed in this appendix, good judgment 

commensurate with a high level of safety 

must be demonstrated. In determining 

whether such judgment has been shown, the 

person conducting the check considers 

adherence to approved procedures, actions 

based on analysis of situations for which 

there is no prescribed procedure or 

recommended practice, and qualities of 

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prudence and care in selecting a course of 

action. 

Maneuvers/procedures 

Required Permitted 

Simulated 

instrument 

conditions 

Inflight FFS FTD 

Waiver 

provisions of 

§ 121.441(d) 

The procedures and maneuvers set forth in this appendix 

must be performed in a manner that satisfactorily demonstrates knowledge and skill with respect to— 

(1) The airplane, its systems and components; 

(2) Proper control of airspeed, configuration, direction, altitude, and attitude in accordance with procedures and 

limitations contained in the approved Airplane Flight 

Manual, the certificate holder’s operations manual, 

checklists, or other approved material appropriate to the 

airplane type; and 

(3) Compliance with approach, ATC, or other applicable 

procedures. 

I. Preflight: 

(a) Equipment examination (oral or written). As part of the 

proficiency check the equipment examination must be 

closely coordinated with, and related to, the flight maneuvers portion but may not be given during the flight 

maneuvers portion. The equipment examination must 

cover— 

(1) Subjects requiring a practical knowledge of the 

airplane, its powerplants, systems, components, 

operational and performance factors; 

(2) Normal, abnormal, and emergency procedures, 

and the operations and limitations relating thereto; 

and 

(3) The appropriate provisions of the approved Airplane Flight Manual.

The person conducting the check may accept, as 

equal to this equipment examination, an equipment 

examination given to the pilot in the certificate holder’s ground training within the preceding 6 calendar 

months.

(b) Preflight inspection. The pilot must— 

(1) Conduct an actual visual inspection of the exterior 

and interior of the airplane, locating each item and 

explaining briefly the purpose for inspecting it. The 

visual inspection may be conducted using an approved pictorial means that realistically portrays the 

location and detail of visual inspection items and 

provides for the portrayal of normal and abnormal 

conditions. If a flight engineer is a required 

flightcrew member for the particular type airplane, 

the visual inspection may be waived under 

§ 121.441(d). 

..................... ..................... ..................... B .................. W.* 

(2) Demonstrate the use of the prestart checklist, appropriate control system checks, starting procedures, radio and electronic equipment checks, and 

the selection of proper navigation and communications radio facilities and frequencies prior to flight.

..................... ..................... ..................... B.

(c)(1) Taxiing. Before March 12, 2019, this maneuver includes taxiing, sailing, or docking procedures in compliance with instructions issued by ATC or by the person 

conducting the check. SIC proficiency checks for a type 

rating must include taxiing. However, other SIC proficiency checks need only include taxiing to the extent 

practical from the seat position assigned to the SIC. 

..................... B.

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Maneuvers/procedures 

Required Permitted 

Simulated 

instrument 

conditions 

Inflight FFS FTD 

Waiver 

provisions of 

§ 121.441(d) 

(c)(2) Taxiing. Beginning March 12, 2019, this maneuver 

includes the following: (i) Taxiing, sailing, or docking 

procedures in compliance with instructions issued by 

ATC or by the person conducting the check. (ii) Use of 

airport diagram (surface movement chart). (iii) Obtaining 

appropriate clearance before crossing or entering active 

runways. (iv) Observation of all surface movement guidance control markings and lighting. SIC proficiency 

checks for a type rating must include taxiing. However, 

other SIC proficiency checks need only include taxiing 

to the extent practical from the seat position assigned 

to the SIC. 

..................... B.

(d)(1) Powerplant checks. As appropriate to the airplane 

type.

..................... ..................... B.

(d)(2) Beginning March 12, 2019, pre-takeoff procedures 

that include powerplant checks, receipt of takeoff clearance and confirmation of aircraft location, and FMS 

entry (if appropriate), for departure runway prior to 

crossing hold short line for takeoff.

..................... ..................... B.

II. Takeoff: 

Takeoffs must include the types listed below, but more than 

one type may be combined where appropriate: 

(a) Normal. One normal takeoff which, for the purpose of 

this maneuver, begins when the airplane is taxied into 

position on the runway to be used.

..................... B.* 

(b) Instrument. One takeoff with instrument conditions 

simulated at or before reaching an altitude of 100′ 

above the airport elevation.

B .................. ..................... B.* 

(c)(1) Crosswind. Before March 12, 2019, one crosswind 

takeoff, if practicable, under the existing meteorological, 

airport, and traffic conditions.

..................... B.* 

(c)(2) Beginning March 12, 2019, one crosswind takeoff 

with gusts, if practicable, under the existing meteorological, airport, and traffic conditions.

..................... B.* 

#(d) Powerplant failure. One takeoff with a simulated failure of the most critical powerplant— ..................... ..................... B.

(1) At a point after V1 and before V2 that in the judgment of the person conducting the check is appropriate to the airplane type under the prevailing conditions; ..................... ..................... B.

(2) At a point as close as possible after V1 when V1

and V2 or V1 and Vr are identical; or.

..................... ..................... B.

(3) At the appropriate speed for nontransport category airplanes...................... ..................... B.

(e) Rejected. A rejected takeoff may be performed in an 

airplane during a normal takeoff run after reaching a 

reasonable speed determined by giving due consideration to aircraft characteristics, runway length, surface 

conditions, wind direction and velocity, brake heat energy, and any other pertinent factors that may adversely 

affect safety or the airplane.

..................... ..................... B * ................ ..................... W. 

III. Instrument procedures: 

(a) Area departure and area arrival. During each of these 

maneuvers the pilot must— 

B .................. ..................... B .................. ..................... W.* 

(1) Adhere to actual or simulated ATC clearances (including assigned radials); and.B .................. ..................... B.

(2) Properly use available navigation facilities ............ B .................. ..................... B.

Either area arrival or area departure, but not both, may be 

waived under § 121.441(d).

(b) Holding. This maneuver includes entering, maintaining, 

and leaving holding patterns. It may be performed in 

connection with either area departure or area arrival.

B .................. ..................... B .................. ..................... W. 

(c) ILS and other instrument approaches. There must be 

the following: 

(1) At least one normal ILS approach ......................... B .................. ..................... B.

(2) At least one manually controlled ILS approach 

with a simulated failure of one powerplant. The 

simulated failure should occur before initiating the 

final approach course and must continue to touchdown or through the missed approach procedure.

B .................. B.

mstockstill on DSK3G9T082PROD with PROPOSALS2

Federal Register / Vol. 81, No. 195 / Friday, October 7, 2016 / Proposed Rules 69945 

Maneuvers/procedures 

Required Permitted 

Simulated 

instrument 

conditions 

Inflight FFS FTD 

Waiver 

provisions of 

§ 121.441(d) 

(3) At least one nonprecision approach procedure 

using a type of nonprecision approach procedure 

that the certificate holder is approved to use.

B .................. ..................... B.

(4) At least one nonprecision approach procedure 

using a different type of nonprecision approach 

procedure than performed under subparagraph (3) 

of this paragraph that the certificate holder is approved to use. 

B .................. ..................... ..................... B.

Each instrument approach must be performed according to 

any procedures and limitations approved for the approach 

procedure used. The instrument approach begins when the 

airplane is over the initial approach fix for the approach procedure being used (or turned over to the final approach controller in the case of GCA approach) and ends when the airplane touches down on the runway or when transition to a 

missed approach configuration is completed. Instrument 

conditions need not be simulated below 100′ above touchdown zone elevation.

(d) Circling approaches. If the certificate holder is approved for circling minimums below 1000–3 (ceiling and 

visibility), at least one circling approach must be made 

under the following conditions— 

..................... ..................... B * ................ ..................... W.* 

(1) The portion of the approach to the authorized 

minimum circling approach altitude must be made 

under simulated instrument conditions.

B .................. ..................... B.* 

(2) The approach must be made to the authorized 

minimum circling approach altitude followed by a 

change in heading and the necessary maneuvering 

(by visual reference) to maintain a flight path that 

permits a normal landing on a runway at least 90° 

from the final approach course of the simulated instrument portion of the approach.

..................... ..................... B.* 

(3) The circling approach must be performed without 

excessive maneuvering, and without exceeding the 

normal operating limits of the airplane. The angle 

of bank should not exceed 30°.

..................... ..................... B.* 

If local conditions beyond the control of the pilot prohibit the 

maneuver or prevent it from being performed as required, it 

may be waived as provided in § 121.441(d). However, the 

maneuver may not be waived under this provision for two 

successive proficiency checks. Except for a SIC proficiency 

check for a type rating, the circling approach maneuver is 

not required for a SIC if the certificate holder’s manual prohibits a SIC from performing a circling approach in operations under this part. 

(e) Missed approach. 

(1) At least one missed approach from an ILS approach. ..................... ..................... B.* 

(2) At least one additional missed approach for SIC 

proficiency checks for a type rating and for all PIC 

proficiency checks. 

..................... ..................... B.* 

A complete approved missed approach procedure must be accomplished at least once. At the discretion of the person 

conducting the check a simulated powerplant failure may be 

required during any of the missed approaches. These maneuvers may be performed either independently or in conjunction with maneuvers required under Sections III or V of 

this appendix. At least one missed approach must be performed inflight.

IV. Inflight Maneuvers: 

(a) Steep turns. For SIC proficiency checks for a type rating and for all PIC proficiency checks, at least one 

steep turn in each direction must be performed. Each 

steep turn must involve a bank angle of 45° with a 

heading change of at least 180° but not more than 360°.

B .................. ..................... B .................. ..................... W. 

(b) Stall Prevention. For the purpose of this maneuver the 

approved recovery procedure must be initiated at the 

first indication of an impending stall (buffet, stick shaker, aural warning). Except as provided below there must 

be at least three stall prevention recoveries as follows: 

B .................. ..................... B .................. ..................... W.* 

mstockstill on DSK3G9T082PROD with PROPOSALS2

69946 Federal Register / Vol. 81, No. 195 / Friday, October 7, 2016 / Proposed Rules 

Maneuvers/procedures 

Required Permitted 

Simulated 

instrument 

conditions 

Inflight FFS FTD 

Waiver 

provisions of 

§ 121.441(d) 

(1) Takeoff configuration (except where the airplane 

uses only a zero-flap takeoff configuration). 

B .................. ..................... B.

(2) Clean configuration. B .................. ..................... B.

(3) Landing configuration. B .................. ..................... B.

At the discretion of the person conducting the check, one stall 

prevention recovery must be performed in one of the above 

configurations while in a turn with the bank angle between 

15° and 30°. Two out of the three stall prevention recoveries 

required by this paragraph may be waived. 

If the certificate holder is authorized to dispatch or flight release the airplane with a stall warning device inoperative the 

device may not be used during this maneuver.

(c) Specific flight characteristics. Recovery from specific 

flight characteristics that are peculiar to the airplane 

type.

..................... ..................... B .................. ..................... W. 

(d) Powerplant failures. In addition to specific requirements for maneuvers with simulated powerplant failures, the person conducting the check may require a 

simulated powerplant failure at any time during the 

check.

..................... ..................... B.

V. Landings and Approaches to Landings: 

Notwithstanding the authorizations for combining and waiving 

maneuvers and for the use of an FFS, at least two actual 

landings (one to a full stop) must be made for all PIC proficiency checks, all initial SIC proficiency checks, and all SIC 

proficiency checks for a type rating. 

Landings and approaches to landings must include the types 

listed below, but more than one type may be combined 

where appropriate: 

(a) Normal landing ............................................................... ..................... B.

(b) Landing in sequence from an ILS instrument approach 

except that if circumstances beyond the control of the 

pilot prevent an actual landing, the person conducting 

the check may accept an approach to a point where in 

his judgment a landing to a full stop could have been 

made.

..................... B.* 

(c)(1) Crosswind landing, if practical under existing meteorological, airport, and traffic conditions...................... B.* 

(c)(2) Beginning March 12, 2019, crosswind landing with 

gusts, if practical under existing meteorological, airport, 

and traffic conditions.

..................... B.* 

(d) Maneuvering to a landing with simulated powerplant 

failure as follows: 

(1) In the case of 3-engine airplanes, maneuvering to 

a landing with an approved procedure that approximates the loss of two powerplants (center and one 

outboard engine); or 

..................... ..................... B.* 

(2) In the case of other multiengine airplanes, maneuvering to a landing with a simulated failure of 50 

percent of available powerplants, with the simulated loss of power on one side of the airplane.

..................... ..................... B.* 

Notwithstanding the requirements of subparagraphs (d)(1) and 

(2) of this paragraph, for an SIC proficiency check, except 

for an SIC proficiency check for a type rating, the simulated 

loss of power may be only the most critical powerplant. 

In addition, a PIC may omit the maneuver required by subparagraph (d)(1) or (d)(2) of this paragraph during a required proficiency check or FFS course of training if he satisfactorily performed that maneuver during the preceding 

proficiency check, or during the preceding approved FFS 

course of training under the observation of a check airman, 

whichever was completed later. 

mstockstill on DSK3G9T082PROD with PROPOSALS2

Federal Register / Vol. 81, No. 195 / Friday, October 7, 2016 / Proposed Rules 69947 

Maneuvers/procedures 

Required Permitted 

Simulated 

instrument 

conditions 

Inflight FFS FTD 

Waiver 

provisions of 

§ 121.441(d) 

(e) Except as provided in paragraph (f) of this section, if 

the certificate holder is approved for circling minimums 

below 1000–3 (ceiling and visibility), a landing under 

simulated circling approach conditions. However, when 

performed in an airplane, if circumstances beyond the 

control of the pilot prevent a landing, the person conducting the check may accept an approach to a point 

where, in his judgment, a landing to a full stop could 

have been made. 

..................... ..................... B.* 

#(f) A rejected landing, including a normal missed approach procedure, that is rejected approximately 50′ 

over the runway and approximately over the runway 

threshold. This maneuver may be combined with instrument, circling, or missed approach procedures, but instrument conditions need not be simulated below 100 

feet above the runway.

..................... ..................... B.

VI. Normal and Abnormal Procedures: 

Each pilot must demonstrate the proper use of as many of the 

systems and devices listed below as the person conducting 

the check finds are necessary to determine that the person 

being checked has a practical knowledge of the use of the 

systems and devices appropriate to the airplane type: 

(a) Anti-icing and deicing systems ...................................... ..................... ..................... B.

(b) Autopilot systems ........................................................... ..................... ..................... B.

(c) Automatic or other approach aid systems ..................... ..................... ..................... B.

(d) Stall warning devices, stall avoidance devices, and 

stability augmentation devices.

..................... ..................... B.

(e) Airborne radar devices .................................................. ..................... ..................... B.

(f) Any other systems, devices, or aids available ............... ..................... ..................... B.

(g) Hydraulic and electrical system failures and malfunctions...................... ..................... ..................... B.

(h) Landing gear and flap systems failure or malfunction .. ..................... ..................... ..................... B.

(i) Failure of navigation or communications equipment ...... ..................... ..................... B.

VII. Emergency Procedures: 

Each pilot must demonstrate the proper emergency procedures for as many of the emergency situations listed below 

as the person conducting the check finds are necessary to 

determine that the person being checked has an adequate 

knowledge of, and ability to perform, such procedure: 

(a) Fire in flight .................................................................... ..................... ..................... B.

(b) Smoke control ................................................................ ..................... ..................... B.

(c) Rapid decompression .................................................... ..................... ..................... B.

(d) Emergency descent ....................................................... ..................... ..................... B.

(e) Any other emergency procedures outlined in the approved Airplane Flight Manual...................... ..................... B.

■ 35. Revise appendix H to read as 

follows: 

Appendix H to Part 121—Advanced 

Simulation 

This appendix prescribes the requirements 

for use of Level B or higher FFSs to satisfy 

the inflight requirements of appendices E and 

F of this part and the requirements of 

§ 121.439. The requirements in this appendix 

are in addition to the FFS approval 

requirements in § 121.407. Each FFS used 

under this appendix must be approved as a 

Level B, C, or D FFS, as appropriate. 

Advanced Simulation Training Program 

For a certificate holder to conduct Level C 

or D training under this appendix all 

required FFS instruction and checks must be 

conducted under an advanced simulation 

training program approved by the 

Administrator for the certificate holder. This 

program must also ensure that all instructors 

and check airmen used in appendix H 

training and checking are highly qualified to 

provide the training required in the training 

program. The advanced simulation training 

program must include the following: 

1. The certificate holder’s initial, 

transition, conversion, upgrade and recurrent 

FFS training programs and its procedures for 

re-establishing recency of experience in the 

FFS. 

2. How the training program will integrate 

Level B, C, and D FFSs with other FSTDs to 

maximize the total training, checking, and 

certification functions. 

3. Documentation that each instructor and 

check airman has served for at least 1 year 

in that capacity in a certificate holder’s 

approved program or has served for at least 

1 year as a pilot in command or second in 

command in an airplane of the group in 

which that pilot is instructing or checking. 

4. A procedure to ensure that each 

instructor and check airman actively 

participates in either an approved regularly 

scheduled line flying program as a flightcrew 

member or an approved line observation 

program in the same airplane type for which 

that person is instructing or checking. 

5. A procedure to ensure that each 

instructor and check airman is given a 

minimum of 4 hours of training each year to 

become familiar with the certificate holder’s 

advanced simulation training program, or 

changes to it, and to emphasize their 

respective roles in the program. Training for 

instructors and check airmen must include 

training policies and procedures, instruction 

methods and techniques, operation of FFS 

controls (including environmental and 

trouble panels), limitations of the FFS, and 

minimum equipment required for each 

course of training. 

mstockstill on DSK3G9T082PROD with PROPOSALS2

69948 Federal Register / Vol. 81, No. 195 / Friday, October 7, 2016 / Proposed Rules 

6. A special Line-Oriented Flight Training 

(LOFT) program to facilitate the transition 

from the FFS to line flying. This LOFT 

program must consist of at least a 4-hour 

course of training for each flightcrew. It also 

must contain at least two representative flight 

segments of the certificate holder’s 

operations. One of the flight segments must 

contain strictly normal operating procedures 

from push back at one airport to arrival at 

another. Another flight segment must contain 

training in appropriate abnormal and 

emergency flight operations. After March 12, 

2019, the LOFT must provide an opportunity 

for the pilot to demonstrate workload 

management and pilot monitoring skills. 

FFS Training, Checking and Qualification 

Permitted 

1. Level B FFS 

a. Recent experience (§ 121.439). 

b. Training in night takeoffs and landings 

(part 121, appendix E). 

c. Landings in a proficiency check (part 

121, appendix F). 

2. Level C and D FFS 

a. Recent experience (§ 121.439). 

b. All pilot flight training and checking 

required by this part except the following: 

i. The operating experience, operating 

cycles, and consolidation of knowledge and 

skills requirements of § 121.434; 

ii. The line check required by § 121.440; 

and 

iii. The visual inspection of the exterior 

and interior of the airplane required by 

appendices E and F. 

c. The practical test requirements of 

§ 61.153(h) of this chapter, except the visual 

inspection of the exterior and interior of the 

airplane. 

PART 135—OPERATING 

REQUIREMENTS: COMMUTER AND 

ON DEMAND OPERATIONS AND 

RULES GOVERNING PERSONS ON 

BOARD SUCH AIRCRAFT 

■ 36. The authority citation for part 135 

is revised to read as follows: 

Authority: 49 U.S.C. 106(f), 106(g), 40113, 

41706, 44701–44702, 44705, 44709, 44711– 

44713, 44715–44717, 44722, 44730, 45101– 

45105. 

■ 37. Amend § 135.3 by adding 

paragraph (d) to read as follows: 

§ 135.3 Rules applicable to operations 

subject to this part. 

* * * * * 

(d) Additional limitations applicable 

to certificate holders that are required 

by paragraph (b) of this section or 

authorized in accordance with 

paragraph (c) of this section, to comply 

with subparts N and O of part 121 of 

this chapter instead of subparts E, G, 

and H of this part. 

(1) Upgrade training. (i) Each 

certificate holder must include in 

upgrade ground training for pilots, 

instruction in at least the subjects 

identified in § 121.419(a) of this chapter, 

as applicable to their assigned duties; 

and, for pilots serving in crews of two 

or more pilots, beginning on [24 

MONTHS AFTER EFFECTIVE DATE OF 

FINAL RULE], instruction in the 

subjects identified in § 121.419(c) of this 

chapter. 

(ii) Each certificate holder must 

include in upgrade flight training for 

pilots, flight training for the maneuvers 

and procedures required in § 121.424(a), 

(c), (e) and (f) of this chapter; and, for 

pilots serving in crews of two or more 

pilots, beginning on [24 MONTHS 

AFTER EFFECTIVE DATE OF FINAL 

RULE], the flight training required in 

§ 121.424(b) of this chapter. 

(2) Initial and recurrent leadership 

and command and mentoring training. 

Certificate holders are not required to 

include leadership and command 

training in §§ 121.409(b)(2)(ii)(B)(6), 

121.419(c)(1), 121.424(b) and 

121.427(d)(1) of this chapter and 

mentoring training in §§ 121.419(c)(2) 

and 121.427(d)(1) of this chapter in 

initial and recurrent training for pilots 

in command who serve in operations 

that use only one pilot. 

(3) One-time leadership and 

command and mentoring training. 

Section 121.429 of this chapter does not 

apply to certificate holders conducting 

operations under this part when those 

operations use only one pilot. 

* * * * * 

Issued in Washington, DC, under the 

authority provided by 49 U.S.C. 106(f), 

44701(a) and Sec. 206 of Public Law 111– 

216, 124 Stat. 2348 (49 U.S.C. 44701 note). 

Dated: September 21, 2016. 

John Barbagallo, 

Deputy Director, Flight Standards Service. 

[FR Doc. 2016–23961 Filed 10–6–16; 8:45 am] 

BILLING CODE 4910–13–P 

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