Albany

Atlanta

Brussels

Denver

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1676 International Drive • Penthouse

McLean, VA 22102

Tel: 703.336.8800

mckennalong.com

Northern Virginia

Orange County

Rancho Santa Fe

San Diego

San Francisco

Seoul

Washington, DC

Mark E. McKinnon

703.336.8708

Matthew J. Clark

703.336.8714

Email Address

mmckinnon@mckennalong.com

mclark@mckennalong.com

June 15, 2015

To Whom it May Concern: 

Pursuant to Section 333 of the FAA Modernization and Reform Act of 2012 (Reform 

Act) and 14 C.F.R. Part 11, Flares & Stacks, Inc. (Flares & Stacks) hereby applies for a Grant of 

Exemption from the Federal Aviation Regulations (FARs) identified below, to operate small 

unmanned aerial vehicles (i.e., small unmanned aircraft systems or UAS) for the purpose of 

conducting aerial data collection in support of industrial infrastructure inspection and 

maintenance activities. Flares & Stacks respectfully submits that this Petition for Exemption 

qualifies for expedited approval, as the Federal Aviation Administration (FAA) has previously 

issued grants of exemption in circumstances similar in all material respects to those presented

herein.

In addition to this Petition for Exemption, Flares & Stacks will also submit the following 

operating documents under separate cover:

 Flares & Stacks Operations Manual 

 DJI WooKong FCS Manual

 Bergen Octocopter Manual

Flares & Stacks submits this manual as confidential documents under separate cover 

pursuant to 14 C.F.R. § 11.35(b), as the manual contains confidential commercial and proprietary 

information that is not generally made available to the public. As a result, the information is also 

protected from release under the Freedom of Information Act, 5 U.S.C. § 552 et seq.

U.S. Department of Transportation

Docket Management System

1200 New Jersey Ave., SE

Washington, DC 20590

Re: Petition of Flares & Stacks, Inc. for Grant of Exemption Pursuant to Section 333 

of the FAA Modernization and Reform Act of 2012
 

U.S. Department of Transportation

June 15, 2015

Page 1

For your convenience, this Petition is organized as follows:

TABLE OF CONTENTS

Page

I. BACKGROUND & DESCRIPTION OF PETITIONER ....................................................................2

II. DESCRIPTION OF PROPOSED OPERATION...............................................................................2

III. RELEVANT STATUTORY AUTHORITY ....................................................................................3

IV. FLARES & STACKS' PROPOSED UAS OPERATIONS MEET THE REQUIREMENTS OF 

SECTION 333 OF THE REFORM ACT.......................................................................................3

A. Approval is Warranted Based on the UAS's Size, Weight, Speed, and 

Operational Capability.............................................................................................4

B. Approval is Warranted Based on the Operational Restrictions in Flares & 

Stacks' Operating Documents..................................................................................5

V. REGULATIONS FROM WHICH EXEMPTION IS SOUGHT...........................................................5

A. 91.9(c), 45.23(b) and 45.27(a): Aircraft Marking and Identification 

Requirements ...........................................................................................................6

B. 91.405(a), 91.407(a)(1), 91.409(a)(1) and (2); 91.417(a) and (b): 

Maintenance Inspections..........................................................................................7

C. 61.23(a) and (c), 61.113, 61.101(e)(4) and (5), 61.315: Private, 

Recreational and Sport Pilot Medical Certificate, Privileges and 

Limitations...............................................................................................................8

D. 91.7(a): Civil Aircraft Airworthiness.......................................................................8

E. 91.9(b)(2): Civil Aircraft Flight Manual in the Aircraft and 91.203(a) and 

(b): Carrying Civil Aircraft Certification and Registration .....................................9

F. 91.103: Preflight Action.........................................................................................10

G. 91.109(a): Flight Instruction ..................................................................................10

H. 91.119(c): Minimum Safe Altitudes Over Other Than Congested Areas..............11

I. 91.121: Altimeter Settings.....................................................................................12

J. 91.151(a): Fuel Requirements for Flight in VFR Conditions................................12

VI. DRUG AND ALCOHOL PROGRAM.........................................................................................13

VII. PUBLIC INTEREST................................................................................................................13

VIII. PRIVACY .............................................................................................................................13

IX. FEDERAL REGISTER SUMMARY...........................................................................................14

X. CONCLUSION.......................................................................................................................14
 

U.S. Department of Transportation

June 15, 2015

Page 2

I. BACKGROUND & DESCRIPTION OF PETITIONER

Flares & Stacks Inc. is known throughout the industry as a pioneer of inspection 

technology. Our research & development department has broken barriers in nearly all areas of 

industrial equipment inspection.

At the forefront of our cutting-edge inspection technology is our remotely-operated 

Multirotor aircraft. This piece of equipment allows for safe aerial inspections, while producing 

clear, high-resolution pictures.

Flares & Stacks will inspect any elevated structure using state of the art photography 

equipment and a remote controlled multirotor UAS. This system is both safer and more 

economical than performing the same work by either sending a man aloft or busing a helicopter 

of fixed wing aircraft. 

In accordance with 14 C.F.R. § 11.81(a), Flares & Stacks provides the following 

information in support of its Petition for Exemption.

The contact information for Petitioner is as follows:

Luke Light

Flares and Stacks, Inc.

12697 Johnson Rd.

Conroe, Texas 77302

Office: (281) 356-1408

Fax: (281) 356-7640

email: flaresandstacks@aol.com

II. DESCRIPTION OF PROPOSED OPERATION

Flares & Stacks seeks an exemption pursuant to Section 333 of the Reform Act to use the 

Bergen Octocopter for aerial data collection in support of its industrial infrastructure inspection 

and maintenance operations. 

Flares & Stacks is committed to maintaining the highest standards of flight safety, and

will leverage its knowledge and experience gained conducting industrial infrastructure inspection 

and maintenance to ensure the safe operation of all aircraft. All UAS operations will be 

performed in accordance with the accompanying Flares & Stacks operating documents, and in 

accordance with the requirements of an applicable COA. Among other things, and as detailed in 

the operating documents, all UAS operations will occur in uncontrolled airspace, within visual 

line-of-sight (VLOS) of the pilot and visual observer, and will be limited to daytime VFR 
 

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June 15, 2015

Page 3

conditions. Moreover, Flares & Stacks' operating documents incorporate redundant safeguards to 

enhance safety.

The proposed operations in this Petition for Exemption are not new or novel to the FAA.

The FAA has previously issued grants of exemption to use small UAS for aerial data collection 

in support of similar inspection, survey and aerial imaging activities: See e.g., 

 Exemption No. 11761 to Dronair Solutions for utility and industrial infrastructure 

inspections (Docket No. FAA-2015-0648);

 Exemption No. 11156 to Total Safety US for flare stack and other industrial 

infrastructure inspection (Docket No. FAA-2015-0648);

The low-risk UAS operations proposed by Flares & Stacks in this Petition for Exemption 

fall squarely within the category of aerial data collection that has been subject to previous 

approval. 

III. RELEVANT STATUTORY AUTHORITY

This Petition for Exemption is submitted pursuant to Section 333(a) through (c) of the 

Reform Act. Congress has directed the FAA "to safely accelerate the integration of civil 

unmanned aircraft systems into the national airspace system." Pursuant to Section 333 of the 

Reform Act, the FAA Administrator is to permit unmanned aircraft systems to operate in the 

NAS where it is safe to do so based on the following considerations:

 The UAS's size, weight, speed and operational capability;

 Operation of the UAS in close proximity to airports and populated areas; and

 Operation of the UAS within the visual line of sight of the operator.

Additionally, the FAA Administrator has general authority to grant exemptions from the 

agency's safety regulations and minimum standards when the Administrator decides a requested 

exemption is in the public interest. See 49 U.S.C. § 106(f) (defining the authority of the 

Administrator); 49 U.S.C. § 44701(f) (permitting exemptions from §§ 44701(a), (b) and 

§§ 44702 – 44716, et seq.). A party requesting an exemption must explain the reasons why the 

exemption: (1) would benefit the public as a whole, and (2) would not adversely affect safety (or 

how it would provide a level of safety at least equal to the existing rules). See 14 C.F.R. § 11.81 

(petitions for exemption).

IV. FLARES & STACKS' PROPOSED UAS OPERATIONS MEET THE REQUIREMENTS OF 

SECTION 333 OF THE REFORM ACT

Flares & Stacks proposed operations in this Petition for Exemption qualify for 

expedited approval under Section 333 of the Reform Act, as each of the statutory criteria and 
 

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June 15, 2015

Page 4

relevant factors are satisfied and the FAA has previously issued grants of exemption in 

circumstances similar to those presented in this Petition for Exemption.

A. Approval is Warranted Based on the UAS's Size, Weight, Speed, and 

Operational Capability

The Bergen Octocopter meets the requirements of Section 333 of the Reform Act due to 

its weight, speed and operational capabilities. It is a battery operated aircraft with eight motors 

and a gross take-off weight of 22 pounds. It has a maximum airspeed of 33 knots, and a 

maximum rate of climb of 17 meters per second. The vehicle has a maximum span of 53 inches 

from rotor tip to rotor tip.

The vehicle employs a DJI Wookong-M flight control system that provides for safe 

operation. The flight system provides position and altitude lock in windy conditions. This 

permits precise hovering and stability. In addition, the controller comes with both an automatic 

and manual return-to-home feature to efficiently deal with unexpected flight contingencies. The 

system's enhanced fail-safe ensures that the multi-rotor will hover automatically if it loses RC 

signal. After losing the signal for a certain time period, the device will calculate the safest way 

to return the vehicle to the home position. The vehicle will hover over the GPS start point and 

land automatically. 

The system also provides Intelligent Orientation Control (IOC). This allows the 

controller to give commands to the vehicle based on its direction from the controller and is 

independent of the orientation of the vehicle. This prevents the pilot from inadvertently issuing 

flight commands in directions different from the one intended. Finally, the controller provides 

the ability to customize two levels of low battery warning to provide adequate time to terminate 

the flight with an enhanced level of safety. 

The Bergen Octocopter used by Flares & Stacks has common characteristics with other UAS 

approved for use in previous Section 333 Grants of Exemption, including: 

 The Bergen Octocopter weighs less than 55 pounds including payload;

 It has the capability to operate safely after experiencing certain in-flight contingencies or 

failures, including the failure of one of its eight motors, and it employs a an auto-pilot 

system to maintain UAS stability and control. The UAS is also able to respond to a loss 

of GPS or a lost-link event with a pre-coordinated, predictable, automated flight 

maneuver. These safety features provide an equivalent level of safety compared to a 

manned aircraft performing a similar operation and mitigate the risk of command and 

control link failures; 

 The radio frequencies used for operations and control of the UAS comply with the 

Federal Communications Commission (FCC) and other appropriate government oversight 

agency requirements; and
 

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June 15, 2015

Page 5

 The UAS all operate at a speed of 87 knots or less. 

B. Approval is Warranted Based on the Operational Restrictions in Flares & 

Stacks' Operating Documents

The operating documents for the selected UAS contain all the procedures and limitations 

necessary to safely and successfully perform the proposed operations. To expedite the FAA's 

safety assessment of Flares & Stacks' proposed UAS operations, Flares & Stacks has tailored its 

operating documents to comply with the conditions and limitations imposed on similarly situated 

petitioners seeking to use small UAS for aerial data collection. See e.g., Grant of Exemption No. 

11761 issued to Dronair Solutions, Docket No. FAA-2015-0648. In particular, the operating 

documents contain systems and procedures to permit Flares & Stacks to comply with the 

conditions and limitations in the FAA's Grant of Exemption. Id.

V. REGULATIONS FROM WHICH EXEMPTION IS SOUGHT

The Federal Aviation Act expressly grants the FAA the authority to issue exemptions.

This statutory authority, by its terms, includes exempting civil aircraft, as the term is defined 

under § 40101 of the Act, including UAS, from its safety regulations and minimum standards 

when the Administrator decides a requested exemption is in the public interest.1

Flares & Stacks seeks an exemption from several interrelated provisions of 14 C.F.R. 

Parts 45, 61 and 91 for purposes of conducting the requested operations using small UAS, 

including:

FAR Description

91.9(c); 45.23(b) and 

45.27(a)

Aircraft Marking and Identification Requirements

91.405(a); 91.407(a)(1); 

91.409(a)(1) and (2); 

91.417(a) and (b) 

Maintenance and Inspection Requirements

61.23(a) and (c), 61.113; 

61.101(e)(4) and (5), 61.315

Private, Recreational and Sport Pilot Medical Certificate, 

Privileges and Limitations

91.7(a) Civil Aircraft Airworthiness

91.9(b)(2); 91.203(a) and 

(b)

Carrying Aircraft Flight Manual, Certification and Registration in 

the Aircraft 

91.103 Preflight Action

 

1

See 49 U.S.C. § 44701(f) (authorizing the grant of exemptions from requirements of regulations 

prescribed pursuant to Sections 44701(a) and (b) and Sections 44702 - 44716).
 

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Page 6

91.109(a) Flight Instruction

91.119(c) Minimum Safe Altitudes Over Other than Congested Areas

91.121 Altimeter Settings

91.151(a) Fuel Requirements for Flight in VFR Conditions

Listed below are the specific sections of 14 C.F.R. for which an exemption is sought, and

the operating procedures and safeguards that Petitioner has established which will ensure a level 

of safety better than or equal to the rules from which exemption is sought.2

A. 91.9(c), 45.23(b) and 45.27(a): Aircraft Marking and Identification

Requirements

Flares & Stacks seeks an exemption from the aircraft marking and identification 

requirements contained in 14 C.F.R. §§ 91.9(c), 45.23(b) and 45.27(a).

● 14 C.F.R. § 91.9(c), Civil Aircraft Flight Manual, Marking and Placard Requirements, 

provides that:

No person may operate a U.S.-registered civil aircraft unless that aircraft is 

identified in accordance with Part 45 of this chapter.

● 14 C.F.R. § 45.23(b), Markings of the Aircraft, states:

When marks include only the Roman capital letter "N" and the registration 

number is displayed on limited, restricted or light-sport category aircraft or 

experimental or provisionally certificated aircraft, the operator must also display 

on that aircraft near each entrance to the cabin, cockpit, or pilot station, in letters 

not less than 2 inches nor more than 6 inches high, the words "limited," 

"restricted," "light-sport, "experimental," or "provisional," as applicable.

● 14 C.F.R. § 45.27(a), Rotorcraft, states:

Each operator of a rotorcraft must display on that rotorcraft horizontally on both 

surfaces of the cabin, fuselage, boom, or tail the marks required by § 45.23.

In prior grants of exemption under Section 333 of the Reform Act, the FAA determined 

that exemption from these requirements was warranted provided that the aircraft "have 

 

2

See 14 C.F.R. § 11.81(e), which requires a petition for exemption to include:

The reasons why granting the exemption would not adversely affect safety, or 

how the exemption would provide a level of safety at least equal to that provided 

by the rule from which you seek exemption.
 

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June 15, 2015

Page 7

identification (N-Number) markings in accordance with 14 C.F.R Part 45, Subpart C if the 

markings are as large as practicable."3 All UAS flown by Flares & Stacks will bear N-number 

markings that are as large as practicable in accordance with 14 C.F.R. Part 45, Subpart C.4

B. 91.405(a), 91.407(a)(1), 91.409(a)(1) and (2); 91.417(a) and (b): Maintenance 

Inspections

Flares & Stacks seeks an exemption from the maintenance inspection requirements

contained in 14 C.F.R. § 91.405(a), 91.407(a)(1), 91.409(a)(1) and (2); 91.417(a) and (b). These 

regulations specify maintenance and inspection standards in reference to 14 C.F.R. Part 43.5 An 

exemption from these regulations is needed because Part 43 and these sections only apply to 

aircraft with an airworthiness certificate, which the UAS to be operated under this grant of 

exemption will not have.

An equivalent level of safety will be achieved because maintenance and inspections will 

be performed in accordance with the operating documents and any required manufacturer Safety 

or Service Bulletins. Further, as required by the operating documents, the Pilot in Command

(PIC) will conduct a pre-flight inspection of the UAS and all associated equipment to account for 

all discrepancies and/or inoperable components. Maintenance will be performed and verified to 

address any conditions potentially affecting safe operation of the UAS and no flights will occur 

unless, and until, all flight critical components of the UAS have been found to be airworthy and 

in a condition safe for operation. A functional test flight will be conducted following the 

replacement of any flight-critical components. As required by the operating documents, the PIC 

who conducts the functional test flight will make an entry in the UAS aircraft records of the 

flight. 

The operating documents also include requirements to follow the UAS manufacturer’s

maintenance, overhaul, replacement, inspection, and life limit requirements for the aircraft and 

aircraft components. Moreover, the operating documents also include procedures to document 

and maintain a record of the UAS maintenance, preventative maintenance, alterations, status of 

replacement/overhaul component parts, and the total time in service of Petitioner's UAS. As a 

whole, the maintenance and inspection procedures required by Petitioner's operating documents 

ensure that an equivalent or higher level of safety will be achieved.

 

3

FAA Docket No. FAA-2014-0352.

4

See, e.g., FAA Docket No. FAA-2014-0352, at 14.

5

See, e.g., 14 C.F.R. § 91.405(a) (stating that each owner or operator of an aircraft "[s]hall have 

the aircraft inspected as prescribed in subpart E of this part and shall between required

inspections ...have discrepancies repaired as prescribed in part 43 of this chapter.").
 

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C. 61.23(a) and (c), 61.113, 61.101(e)(4) and (5), 61.315: Private, Recreational

and Sport Pilot Medical Certificate, Privileges and Limitations

Flares & Stacks seeks exemption from these sections, which restricts private, recreational 

or sport pilot certificate holders from flying aircraft for compensation or hire, and would also 

require a Class II Medical Certificate. The purpose of Part 61 is to ensure that the skill and 

competency of any PIC matches the airspace in which the PIC will be operating, as well as 

requiring certifications if the private pilot is carrying passengers or cargo for hire. In this case, 

while the UAS will be operated as part of a commercial operation, it carries neither passengers 

nor cargo. 

In the Grant of Exemption No. 11062 to Astraeus Aerial6, the FAA determined that the 

unique characteristics of UAS operation outside of controlled airspace did not warrant the 

additional cost and restrictions attendant with requiring the PIC to have a Commercial Pilot 

Certificate and Class II Medical Certificate. The fulfillment of the additional requirements for a 

private pilot to become qualified as a commercial pilot would not lead to any additional safety 

benefits when UAS operations are involved. 

More recently, the FAA determined that holders of recreational and sport pilot 

certificates would also have adequate aeronautical knowledge to pilot a UAS. Accordingly, 

because these individuals would also be subject to security screening by the Department of 

Homeland Security (DHS), the FAA determined that holders of recreational and sport pilot 

certificates would be qualified to serve as the PIC for UAS operations.7 

D. 91.7(a): Civil Aircraft Airworthiness

Inasmuch as there will be no airworthiness certificate issued for the UAS, Flares & 

Stacks seeks an exemption from 14 C.F.R. § 91.7(a), which requires that a civil aircraft be in an 

airworthy condition to be operated. While Petitioner’s UAS will not have an airworthiness 

certificate, the FAA has determined that for the purposes of this exemption the pilot may 

determine the aircraft is in an airworthy condition prior to flight. The operating documents 

contain procedures, which allow the PIC to determine whether the aircraft is in a condition safe 

for flight, and an exemption from § 91.7(a) is therefore warranted. 

 

6

FAA Docket No. FAA-2014-0352.

7

See Grant of Exemption No. 11213 to Aeryon Labs, Inc. (Docket No. FAA-2014-0642 at pgs. 

8-9).
 

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E. 91.9(b)(2): Civil Aircraft Flight Manual in the Aircraft and 91.203(a) and 

(b): Carrying Civil Aircraft Certification and Registration

Title 14 C.F.R. § 91.9(b)(2) and § 91.203(a) and (b) require the operator to carry 

airworthiness documents and other aircraft manuals onboard the aircraft.

Pursuant to 14 C.F.R. § 91.9(b)(2):

(b) No person may operate a U.S.-registered civil aircraft –

...

(2) For which an Airplane or Rotorcraft Flight Manual is required by § 21.5 of 

this chapter, unless there is available in the aircraft a current approved Airplane or 

Rotorcraft Flight Manual, approved manual material, markings, and placards, or 

any combination thereof.

Pursuant to 14 C.F.R. § 91.203(a) and (b):

(a) Except as provided in § 91.715, no person may operate a civil aircraft unless it 

has within it the following:

(1) An appropriate and current airworthiness certificate...

(b) No person may operate a civil aircraft unless the airworthiness certificate 

required by paragraph (a) of this section or a special flight authorization issued 

under § 91.715 is displayed at the cabin or cockpit entrance so that it is legible to 

passengers or crew.

Given the small size and configuration of the UAS, it would be impossible to keep 

airworthiness documents and other aircraft manuals on board the UAS because there is simply no 

room and the UAS has no cabin or cockpit.

In an FAA Office of Chief Counsel's Opinion dated August 8, 2014, and prepared by 

Dean E. Griffith, Attorney, AGC-220, it was acknowledged that the intent of 14 C.F.R. 91.9(b) 

and 91.203(a) and (b) is met if the pilot of the unmanned aircraft has access to the UAS flight 

manual, registration certificate, and other required documents from the ground control station 

from which he or she is operating the aircraft.8 As this FAA Office of Chief Counsel Opinion 

clarifies, the intent of the rule is to ensure the pilot has access to these key documents during 

 

8 Memorandum from Mark Bury, FAA Assistant Chief Counsel for International Law, 

Legislation and Regulation, to John Duncan, FAA Flight Standards Service (Aug. 8, 2014); see 

also Docket No. FAA-2014-0352 at 16-18.
 

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flight. Therefore, an equivalent level of safety will be achieved by ensuring that the pilot has 

access to the documents at the ground control station from which he or she is piloting the UAS.9 

F. 91.103: Preflight Action

Petitioner seeks an exemption from 14 C.F.R. § 91.103, which requires a PIC to become 

familiar with specific information before each flight, including information contained in the 

FAA-approved Flight Manual on board the aircraft. While the PIC will be familiar with all 

information necessary to safely conduct the flight, an exemption is requested to the extent that an 

FAA-approved Flight Manual is required.

Adherence to the requirements in the operating documents will ensure that the UAS is in 

an airworthy condition prior to flight. The PIC will perform a series of checklists designed to 

identify any defects or inoperable components, which cover pre-flight, take-off, landing and 

post-flight procedures. The PIC will also be required to review weather, flight requirements, 

battery charge, landing and takeoff distance, UA performance data, and contingency landing 

areas—before initiation of flight. Petitioner's operating documents will be kept at the ground 

control station and will be accessible to the PIC at all times while operating the UAS.

G. 91.109(a): Flight Instruction

Petitioner seeks an exemption from 14 C.F.R. § 91.109(a), which provides in pertinent 

part that "[n]o person may operate a civil aircraft (except a manned free balloon) that is being 

used for flight instruction unless that aircraft has fully functioning dual controls." UAS and 

remotely piloted aircraft, by their design, do not have functional dual controls. Instead, flight 

control is accomplished through the use of a device that communicates with the aircraft via radio 

communications. Accordingly, an exemption will be required for the flight instruction 

requirements of 14 C.F.R. § 91.109(a).

Given the size and speed of the UAS that Petitioner intends to use, an equivalent level of 

safe training can still be achieved without dual controls because no pilot or passengers are aboard 

the UAS, and as required by the operating documents, all persons will be a safe distance away in 

 

9

See also Exemption No. 11213 to Aeryon Labs, Inc. at pg. 11:

The petitioner requested relief from 14 CFR § 91.9(b)(2): Civil aircraft flight 

manual, marking, and placard requirements and § 91.203(a) and (b): Civil 

aircraft: Certifications required. The FAA has previously determined that relief 

from these sections is not necessary. See Exemption No. 11062. Relevant 

materials may be kept in a location accessible to the PIC in compliance with the 

regulations.
 

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the event that the UAS experiences any difficulties during flight instruction. Moreover, all flight 

training will be conducted in controlled and sterile environment. As a whole, the procedures 

provided for in the operating documents ensure that UAS flight instruction can be performed 

safely.

H. 91.119(c): Minimum Safe Altitudes Over Other Than Congested Areas

Flares & Stacks requests an exemption from the minimum safe altitude requirements of 

14 C.F.R. § 91.119(c).10 Section 91.119 prescribes the minimum safe altitudes under which 

aircraft may not operate, including 500 feet above the surface and away from any person, vessel, 

vehicle, or structure in non-congested areas. See 14 C.F.R. § 91.119(c).

An exemption is required because the proposed UAS operations will normally need to 

occur below 400 feet AGL. Additionally, due to the nature of the proposed operations, the PIC 

and/or Observers may need to be less than 500 feet away from the UAS. Compared to flight 

operations with rotorcraft weighing far more than the maximum weights proposed herein, and 

given the lack of flammable fuel with the UAS, any risk associated with these operations is far 

less than those that presently exist with conventional aircraft.

An equivalent level of safety will be achieved given the size, weight, and speed of the 

UAS, as well the controlled location where the operations will occur. In order to avoid any risk 

to manned aircraft, flight operations will be restricted to below 400 feet AGL. As set forth in the 

operating documents, the UAS will be operated in a controlled environment, and all flights will 

occur at a lateral distance of at least 500 feet from nonparticipating persons, unless that person is 

in a position where he or she is shielded from the UAS and any possible debris resulting from 

UAS failure. Procedures will be in place to ensure flight operations can be safely terminated if a 

nonparticipating person within 500 feet of the UAS leaves a shielded position. Further, UAS 

operations will occur at least 500 feet away from vehicles or structures unless the property 

owner/controller has granted permission and the PIC has made a safety assessment of the risk of 

operating closer to those objects, and operations near the PIC or Observer will not present an 

undue hazard per § 91.119(a). Adherence to these restrictions in Flares & Stacks' operating 

documents will ensure the proposed operations can be conducted without compromising safety to 

persons or property on the ground. 

 

10 Relief from § 91.119(a) will not be necessary because Petitioner will be able to perform an 

emergency landing without undue hazard to persons or property on the ground in the event of a 

failure. Petitioner's proposed UAS operations will not occur over congested areas, and therefore 

an exemption from § 91.119(b) will not be necessary. See e.g., Grant of Exemption No. 11157 to 

Slugwear, Inc., dba Likeonatree Aerial at pg. 15 (Docket No. FAA-2014-0534 ). 
 

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I. 91.121: Altimeter Settings

To the extent necessary for Flares & Stacks to conduct the proposed operations, 

Petitioner requests an exemption from 14 C.F.R. § 91.121, which requires a person operating an 

aircraft to maintain cruising altitude or flight level by reference to an altimeter that is set to the 

elevation of the departure airport or barometric pressure.

The FAA has stated that an equivalent level of safety to the requirements of 14 C.F.R. § 

91.121 can be achieved in circumstances where: (1) the UAS will be operated 400 feet AGL or 

below, (2) within VLOS, (3) where GPS based altitude information is relayed in real time to the 

operator at a ground-based on-screen display and, (4) where prior to each flight, a zero altitude 

initiation point is established for the PIC to confirm accuracy of the onboard GPS.

The UAS that Petitioner intends to use for performing the proposed operations meet all 

these operational characteristics. Moreover, the operating documents require the PIC to calibrate 

the aircraft's GPS compass prior to each flight operation. As the FAA has determined in 

circumstances similar to this Petition for Exemption, Petitioner's UAS and the safety mitigation 

procedures contained in the operating documents, ensure that an equivalent level of safety will 

be achieved, and a grant of exemption to the requirements of § 191.121 is therefore 

appropriate.11

J. 91.151(a): Fuel Requirements for Flight in VFR Conditions

Flares & Stacks requests an exemption from 14 C.F.R. § 91.151(a)'s fuel requirements for 

flight in Visual Flight Rules (VFR) conditions. Section 91.151 states:

(a) No person may begin a flight in an airplane under VFR conditions unless 

(considering wind and forecast weather conditions) there is enough fuel to fly to 

the first point of intended landing and, assuming normal cruising speed –

(1) During the day, to fly after that for at least 30 minutes; or

(2) At night, to fly after that for at least 45 minutes.

Here, the technological limitations on UAS battery power means that no meaningful 

flight operations can be conducted while still maintaining a 30-minute battery reserve. An 

exemption from the fuel requirements of 14 C.F.R. § 91.151(a) is therefore required.

The FAA has previously granted relief from the fuel requirements of § 91.151(a) for 

flight in daytime VFR conditions in circumstances similar to those presented in this Petition for 

 
 

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Exemption.

12 In Exemption No. 11213 to Aeryon Labs, Inc.13, the FAA determined that a 

requirements prohibiting the PIC from beginning a UAS flight unless (considering wind and 

forecast weather conditions) there was enough available power for UAS to operate for the 

intended operational time and to operate after that for at least five minutes or with the reserve 

power recommended by the manufacturer if greater, would ensure an equivalent level of safety 

to the fuel requirements of § 91.151(a).14 Petitioner's operating documents impose this same 

requirements and an exemption from § 91.151(a)'s fuel requirements for flight in VFR conditions 

is therefore appropriate. 

VI. DRUG AND ALCOHOL PROGRAM

Flares & Stacks has established policies to ensure that no person may participate in UAS 

flight operations if they are under the influence of alcohol or any drug.

VII. PUBLIC INTEREST

The public interest will be served by granting Flares & Stacks' Petition for Exemption.

Congress has established a national policy that favors early integration of UAS into the National 

Air Space (NAS) in controlled, safe working environments such as those proposed in this 

Petition. Granting this Petition for Exemption helps fulfill Congress' goal in passing Section 

333(a) through (c) of the Reform Act—the FAA Administrator's assessment of whether certain 

UAS may operate safely in the NAS before completion of the statutorily required rulemaking. 

The proposed UAS operations in this Petition for Exemption significantly improve safety 

and reduce risk by alleviating the public's exposure to danger associated with traditional aerial 

data collection methods, namely, full size fixed-wing aircraft and rotorcraft. The UAS that Flares 

& Stacks intends to use is light weight, are battery powered, and create no emissions. Moreover, 

in the unlikely event that one of Petitioner's UAS crash, there is no fuel to ignite and explode.

Any accident involving Petitioner's small lightweight UAS will present significantly less danger 

to the pilot and other individuals on the ground than one involving a full size helicopter.

VIII. PRIVACY

The proposed operations will be conducted in accordance with applicable federal, state, 

or local laws regarding privacy. Flares & Stacks will not conduct flight operations over property 

that it does not own or control without the prior consent and knowledge of the property owner. 

 

12 See e.g., Exemption Nos. 8811, 10808, and 10673.

13 Docket No. FAA-2014-0642.

14 Exemption No. 11213 at pg. 12.
 

U.S. Department of Transportation

June 15, 2015

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IX. FEDERAL REGISTER SUMMARY

Pursuant to 14 C.F.R. Part 11, the following summary is provided for publication in the

FEDERAL REGISTER, should it be determined that publication is needed:

Petitioner seeks an exemption from the following rules in Title 14 of the Code of 

Federal Regulations:

45.23(b); 45.27(a); 61.23(a) and (c); 61.113; 61.101(e)(4) and (5); 61.315;

91.7(a); 91.9(b)(2); 91.9(c); 91.103; 91.109(a); 91.119(b); 91.121; 91.151(a); 91.203 (a) 

& (b); 91.405(a); 91.407(a)(1); 91.409(a)(1) & (2); 91.417 (a) & (b). 

The exemption will enhance safety by reducing risk to the general public and property 

owners from the substantial hazards associated with using conventional fixed-wing aircraft or, 

rotorcraft for aerial data collection.

X. CONCLUSION

The proposed operations in this Petition for Exemption satisfy the criteria articulated in 

Section 333 of the Reform Act and the FAA has issued grants of exemption in circumstances 

similar in all respects to those presented by Flares & Stacks in this Petition for Exemption. In 

consideration of the foregoing, this Petition for Exemption provides the FAA with all the 

necessary justification for granting the requested exemptions allowing Flares & Stacks to operate 

small UAS for the purpose of aerial data collection.

 

We thank you for your prompt consideration of our requested exemptions. Should you 

have any questions, or if you need additional information to support the requested exemptions, 

please do not hesitate to contact us.

Very truly yours,

Mark E. McKinnon

Counsel for Flares & Stacks, Inc.