FAA Exem ption Rulemaking

Section 333 Of The FAA Reform Act and Part 11 Prepared by Jack D Petersen, Jr April 28th, 2015 825 Great Northern Blvd. Suite 320 Helena, MT 59601 406

-461

-8883 pepper@coldwaterpr.com

Attention: United States Secretary of TransportationMr. Anthony R. Foxx

1200 New

Jersey Ave, SE Washington DC 20590
Re: Exem ption Request Section 333 of the FAA Reform Act and Part 11 of the Federal Aviation Regulations from 14 CFR 45.23(b); 14 CFR Part 21; 14 CFR 61.113 (a) & (b); 91.7 (a); 91.9 (b) (2); 91.103 (b); 91.109; 91.119; 91.121; 91.151 (a); 91.203 (a) & (b); 91.409 (a) (2); 91.417 (a) & (b)
Dear Mr. Secretary,
Pursuant to Section 333 of the FAA Modernization and ReformAct of 2012 (the Reform Act) and 14 CFR Part 11, Coldwater Group, LLC., a Montana Lim ited Liability Corporation, consultant, and operator of Small Unmanned Aircraft Systems (“sUASs”) equipped to conduct aerial photography and videography purposes, hereby applies for an exem ption from the listed Federal Aviation Regulations (“FARs”) to allow commercial operation of its sUASs, so long as such operations are conducted within and under the conditions outlined herein or as may be established by the FAA as required by Section 333.
As described more fully below, the requested exem ption would perm it the operation of small, unmanned and relatively inexpensive sUAS under controlled conditions in airspace that is 1) lim ited 2) predeterm ined and 3) controlled as to access. Approval of this exem ption would thereby fulfill the Secretary of Transportation’s (the responsibilities to “...establish requirements for the safe operation of such aircraft systems in the national airspace system .” Section 333 (c) of the Reform Act. Coldwater Group, LLC requests to use the DJI Inspre 1 for aerial imaging. The FAA has previously issued Grants of Exem ption in circumstances sim ilar in nearly all material respects to those presented in this petition. In previous Grants of Exemption [Nos. 11062 to Astraeus Aerial (see Docket No. FAA−2014−0352), 11109 to Clayco, Inc. (see Docket No. FAA−2014−0507), 11112 to VDOS Global, LLC (see Docket No. FAA−2014−0382), and 11213 to Aeryon Labs, Inc. (see Docket No. FAA−2014−0642)], the FAA found that the enhanced safety achieved using an unmanned aircraft with the specifications described by the petitioners, carrying no passengers or crew

—rather than a manned aircraft of far greater proportions, carrying crew and flammable fuel

—gave the FAA good cause to find that the UAS operations were in the public interest. Coldwater Group, LLC feels that the reasons stated by the FAA for granting Exem ption Nos. 11062, 11109, 11112, and 11213 would also reasonably apply to the situation presented by this petition. Additionally, we feel that considering the enhanced safety features provided by the DJI Inspire 1 (the “No

-Fly Zone” feature in particular), as well as the cost effectiveness of small UAS aerial photography, a grant of exem ption would be in the public interest.
The name and address of the applicant is: Coldwater Group, LLC Jack D Petersen, Jr Phone: 406

-461

-8883 Email: pepper@coldwaterpr.com Address: 825 Great Northern Blvd, Suite 320, Helena, MT, 59601.Regulations from which the exem ption is requested:

14 CFR Part 21 14 CFR 45.23 (b) 14 CFR 61.113 (a) & (b) 14 CFR 91.7 (a) 14 CFR 91.9 (b) (2) 14 CFR 91.103 14 CFR 91.109 14 CFR 91.119 14 CFR 91.121 14 CFR 91.151 (a) 14 CFR 91.203 (a) & (b) 14 CFR 91.405 (a) 14 CFR 407 (a) (1) 14 CFR 409 (a) (2) 14 CFR 417 (a) & (b) This exem ption application is expressly subm itted to fulfill Congress’ goal in passing Section 333 (a) through (c) of the Reform Act. This directs the Secretary of Transportation to consider whether certain unmanned aircraft systems may operate safely in the national airspace system(NAS) before com pletion of the rulemaking required under Section 332 of the Reform Act. In making this determ ination, the Secretary is required to determ ine wh ich types of UASs do not create a hazard to users of the NAS or the public or pose a threat to national security in light of the following: • The UAS’s size, weight, speed, and operational capability • Operation of the UAS in close proxim ity to airports and populated areas; and • Operation of the UAS within Visual Line of Sight (VLOS) of the Pilot and Observers. Reform Act §333 (a). Lastly, if the Secretary determ ines that such vehicles “may operate safely in the national airspace system , the Secretary shall establish requirements for the safe operation of such aircraft in the national airspace system.” Id. §333 (c) (em phasis added). The Federal Aviation Act expressly grants the FAA the authority to issue exem ptions. This statutory authority by its terms includes exem pting civil aircraft, as the term is defined under §401 01 of the Act; that includes sUASs, from the requirement that all civil aircraft must have a current airworthiness certificate. The Adm inistrator may grant an exem ption from a requirement of aregulation prescribed under subsection (a) or (b) of this section or any sections 44702

-44716 of this title if the Adm inistrator finds the exem ption in the public interest. 49 U.S.C. §44704; 14 CFR §91.203 (a) (1). Coldwater Group’s UAS(s) are small rotorcraft aircraft, weighing less than 60oz including sensor payload. They operate their rotorcraft under normal conditions at a speed of no more than 17 knots, usually 0

-5 knots, and have the capability to hover, and move in the vertical and horizontal plane sim ultaneously. They will manually operate only in Visual Line of Sight and will operate only within the operating parameters as described in the Operating Manual attached as Attachment 1.
Adherence to the Operating Manual will insure that the sUAS will “not create a hazard to the national airspace system or the pu blic.”Given the small size and weight of the sUAS involved and the restricted sterile

environment within which they will operate, the applicant falls squarely within that zone of safety (an equivalent level of safety) in wh ich Congress envisioned that the FAA must, by exem ption, allow commercial operations of UASs to commence immediately. Also due to the size of the UASs and the areas in which the relevant sUAS will operate, approval of the application presents no national security issue. Given the clear direction in Section 333 of the Reform Act, the authority contained in the Federal Aviation Act, as amended; the strong equivalent level of safety, surrounding the proposed operations, and significant public benefit, including enhanced safety, reduction i n environmental im pact, including reduced em issions associated with allowing UASs for educational and marketing operations, (as opposed to full scale aircraft), the granting of the requested exem ptions is in the public interest. Accordingly, the applicant respectfully requests that the FAA grant the requested exem ption without delay. AIRCRAFT AND EQUIVALENT LEVEL OF SAFETY The applicant proposes that the exem ption requested herein apply to civil aircraft that have the characteristics and that operate with the lim itations listed herein. These lim itations provide for at least an equivalent or possibly higher level of safety to operations under the current regulator structure because the proposed operations represent a safety enhancement to the already safe filming operations conducted with conventional aircraft. These lim itations and condition to which Coldwater Group, LLC agrees to be bound when conducting commercial operations under an FAA issued exem ption include: 1. The sUAS will weigh less than 5 lbs. 2. Flights will be operated manually within visual line of sight (VLOS) of the Pilot and aircrew (Spotter / Observer). 3. Maxim umtotal flight time for each operational flight will be 25 mi nutes. Flights will be term inated at 25% battery power reserve should that occur prior to the 25 m inute lim it. 4. Flights wi ll be operated at an altitude of no more than 200 feet AGL, though most operations will be conducted within 50 feet of the ground 5. Minim umtwo (2) man crew for each sUAS operation will consist of the Pilot and Spotter / Observer. In most cases the third aircrew member will serve as the Safety Officer. 6. The sUAS Pilot will be an FAA licensed airman with a sports, private, or commercial certification and the Spotter/Observer will hold a valid thi rd class medical or driver’s license issued by a US State

. 7. The sUAS Pilot will serve as Pilot in Command (PIC). If a pilot certificate holder, other than the sUAS Pilot, possesses the necessary PIC qualifications and is also present, that person can also be designated as PIC. 8. The sUAS will only operate within an area as defined in the Manual on pages 45

- 48. Additionally, the sUAS will only operate under 200ft AGL, and outside a 5 statute mi le radius of any airport. The sUAS will never enter any MOA or Restricted Airspace, nor shall it violate any TFR as outlined by the FAA. 9. A pre-flight briefing will be conducted in regard to the planned sUAS operation prior to each day’s flying / recording activities. It will be mandatory that all personnel who will be performing duties as “flight crew” be present for this briefing. 10. The Operator will obtain the consent of all persons involved in the film ing and ensure that only consenting persons will be allowed within 100 feet of the flight operation,and this radius may be reduced to 30 feet based upon an equivalent level of safety

determ ination. 11. Pilot, and Spotter (Observer) will have been trained in operation of sUAS generally and received up-to

-date information on the particular sUAS to be operated as required. 12. Spotter (Observer) and Pilot will at all times be able to communicate by voice or radio. 13. Written and/or oral perm ission from the relevant property holders will be obtained. 14. If the sUAS loses communications or loses its GPS signal, the UAS will have capability to return to a predeterm ined location and land. 15. The sUAS will have the capability to abort a flight in case of unpredicted obstacles or emergencies. **14 CFR Part 21, Subpart H: A irworthiness Certificates 14 CFR §91.203 (a) (1)**  Subpart H, entitled Airworthiness Certificates, establishes the procedural requirements for the issuance of airworthiness certificates as required by FAR §91.203 (a) (1). Given the size and lim ited operating area associated with the aircraft to be utilized by the Applicant, an exemption from Part 21 Subpart H meets the requirements of an equivalent level of safety under Part 11 and Section 333 of the Reform Act. The Federal Aviation Act (49 U.S.C. §44701 (f)) and Section 333 of the Reform Act both authorize the FAA to exem pt aircraft from the requirement capability, and proximity to airports and populated areas of the particular UAS. In all cases, an analysis of these criteria demonstrates that the UAS operated without an airworthiness certificate, in the restricted environment and under the conditions proposed will be at least as safe, or safer, than a conventional aircraft (fixed

-wing or rotorcraft) operating with an airworthiness certificate without the restrictions and conditions proposed.
The sUAS to be operated hereunder is less than 5 lbs. fully loaded, carries neither a pilot nor passenger, carries no explosive materials or flammable liquid fuels, and operates exclusively within a lim ited radius area as set out in the pre flight briefing / VLOS operations. Unlike other civil aircraft, operations under this exem ption will be tightly controlled and monitored by both the Operator, pursuant to safety requirements, and under the requirements and in compliance with local public safety requirements, to provide security for the area of operation as is now done with conventional aircraft. These safety enhancements, which already apply to civil aircraft operated in connection with video production, provide a greater degree of safety to the public and property owners than conventional operations conducted with airworthiness certificates issued under 14 C.F.R. Part 21, Subpart H. Lastly, application of these same criteria demonstrates that there is no credible threat to national security posed by the UAS, due to its size, speed of operation, location of operation, lack of explosive materials or flammable liquid fuels, and inability to carry a substantial external load. **14 CFR §45.23 (B):** Marking of the Aircraft The regulation requires: When marks include only the Roman capital letter “N” and the registration num ber is displayed on lim ited, restricted or light

-sportcategory 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 “lim ited,” “restricted”, “light

-sport,” “experimental,” or “provisional,” as applicable. Even though the UAS will have no airworthiness certificate, an exemption may be needed as the UAS will have no entrance to the cabin, cockpit or pilot station on which the word “Experimental” can be placed. Given the size of the sUAV, two-inch lettering will be im possible. The word “Experimental” wi ll be placed on the fuselage in com pliance with §45.29 (f).
The equivalent level of safety wi ll be provided by having the sUAV marked on its fuselage as required by §45.29 (f) where the Pilot, Spotter (Observer) and others working with the sUAV will see the identification of the UAS as “Experimental.” The FAA has issued the following exem ptions to this regulation to Exem ptions Nos. 10700, 8738, 10167 and 10167A.
**14 CFR**  **§61.113 (a)**  **& (b):**  **Private Pilot**  **Privileges and**  **Limitations -**  **Pilot in**  **Command (PIC)**  Sections 61.113 (a) & (b) lim it private pilots to noncommercial operations. Because the UAS will not carry a pilot or passengers, the proposed operations can achieve the equivalent level of safety of

current operations by requiring the PIC operating the aircraft to have a private pilot’s license rather than a commercial pilot’s license to operate this small UAS. Unlike a conventional aircraft that carries the pilot and passengers, the sUAS is remotely controlled with no living thing on board. The area of operation is controlled and restricted, and all flights are planned and coordinated in advance as set forth in the Operating Manual. The level of safety provided by the requirements included in the Operating Manual meets that provided by single individual holding a commercial pilot’s certificate operating a conventional aircraft. The risks associated with commercial operations contem plated by Part 61 when drafted, that allowing operations of the sUAS as requested with a private pilot as the PIC exceeds the present level of safety achieved by 14 CFR §61.113 (a) & (b). **14 CFR §91.7 (a): Civil A ircraft A** **irworthiness**
The regulation requires that no person may operate a civil aircraft unless it is in airworthy condition. As there will be no airworthiness certificate issued for the aircraft, should this exem ption be granted, no FAA regulatory standard will exist for determining airworthiness. Given the size of the aircraft and the requirements contained in the Operating Manual for maintenance and use of safety checks prior to each flight, as set forth in the Operating Manual, an equivalent level of safety will be provided

. **14 CFR §91.9 (b) (2): Civil A ircraft Flight Manual in the A** **ircraft** Section 91.9 (b) (2) provides: No person may U.S.

-registered civil aircraft

... (2) For which an Airplane or Rotorcraft Flight Manual is not 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 com bination thereof.The sUAS, given its size and configuration has no ability or place to carry such a fl ight

manual on the aircraft, not only because there is no pilot on board, but because there is no roomor capacity to carry such an itemon the aircraft.
The equivalent level of safety will be maintained by keeping the Operating Manual at the ground control point where the pilot flying the sUAS will have immediate access to it. The FAA has issued the following exem ptions to this regulation: Exem ption Nos. 8607, 8737, 8738, 9299, 9299A, 9565, 9565B, 10167, 10167A 10602, 32827, and 10700 **14 CFR §91.103: Pr eflight A** **ction**
This regulation requires each pilot in command to take certain actions before flight to insure the safety of flight. As FAA approved rotorcraft flight manuals will not be provided for the aircraft an exem ption will be needed. An equivalent level of safety will be provided as set forth in the Operating Manual. The PIC will take all actions including reviewing weather, flight battery requirements, landing and takeoff distances and aircraft performance data before initiation of flight. **14 CF R §91.109: Flight Instruction**  Section 91.103 provides that no 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. SUASs and remotely piloted aircraft, by their design do not have fully functional dual controls. Flight control is accom plished through the use of a control box that communicates with the aircraft via radio communications. The FAA has approved exem ptions for flight training without fully functional dual controls for a num ber of aircraft and for flight instruction in experimental aircraft. See Exemptions Nos. 5778K & 9862A. The equivalent level of safety provided by the fact that aircraft will be piloted by a certified private pilot who has previously trained in remote flight areas before attem pting flight within filming distance of structures. **14 CFR §91.119: Minimum Safe A ltitudes**  Section 91.119 establishes safe altitudes for operation of civil aircraft. Section 91.119 (d) allows helicopters to be operated at less than the mi nim ums prescribed, provided the person operating the helicopter com plies with any route or altitudes prescribed for helicopters by the FAA. As this exem ption is for a sUAS, Coldwater Group, LLC requests authority to operate at altitudes up to 200 ft. AGL; an exem ption may be needed to allow such operations. As set forth herein, the UAS will never operate at higher than 200 ft. AGL. It will however be operated in a controlled area where buildings and people will not be exposed to operations without their pre

-obtained consent.
The equivalent level of safety will be achieved given the size, weight, speed of the UAS as well as location where it is operated. No flight will be taken without the perm ission of the property owner. Because of the advance notice to the property owner and participants in the photographic activity, all affected individuals wi ll be aware of the planned flight operations as set forth in the Operating Manual. Com pared to flight operations with aircraft or rotorcraft weighing far more than the maximum 5 lbs. proposed herein and the lack of flammable fuel,any risk associated with these operations is far less than those presently presented with

conventional aircraft operating at or below 500 ft. AGL. In addition, the low

-altitude operations of the sUAS will ensure separation between these small UAS operations and the operations of conventional aircraft that m ust comply with Section 91.119. **14 CFR §91.121: Altimeter Settings**
This regulation requi res each person operating an aircraft to maintain cruising altitude by reference to an altimeter that is set “...to the elevation of the departure airport or an appropriate altimeter setting available before departure.” As the sUAS will not have a barometric altimeter, but instead a GPS altitude read out, an exemption may be needed. An equivalent level of safety will be achieved by the operator, pursuant to the Operating Manual and Safety Check list, confirm ing the altitude of the launch site shown on the G PS altitude indicator before flight. **14 CFR §91.151 (a): Fuel Requirements for Flight in VFR Conditions** Section 91.151 (a) prohibits an individual from beginning “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, assum ing 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.” The battery powering the sUAS provides approximately 25 minutes of powered flight. To meet the 30 minute reserve requirement in 14 CFR §91.151, sUAS flights would be im possible. Given the lim itations on the UAS’s proposed flight area and the location of its proposed operations within a predeterm ined area, a longer time framefor flight in daylight or night VFR conditions is reasonable. Applicant believes that an exem ption from14 CFR §91.151 (a) falls within the scope of prior exem ptions. See Exemption 10673 (allowing Lockheed Martin Corporation to operate without com pliance with FAR 91.151 (a)). Operating the small UAS, i n a tightly controlled area where only people and property owners or official representatives who have signed waivers will be allowed, with less than 30 mi nutes of reserved fuel, does not engender the type of risks that Section 91.151 (a) was intended to alleviate given the size and speed of the small UAS. Additionally, lim iting sUAS flights would greatly reduce the utility for which the exem ption will be granted. Applicant believes that an equivalent level of safety can be achieved by lim iting flights to 25 minutes or 25% of

battery power whichever happens first. This restriction would be more than adequate return the sUAS to its planned landing zone from anywhere in its lim ited operating area. Sim ilar exem ptions have been granted to other operations, including Exem ptions 2689F, 5745, 10673, and 10808. **14 CFR §91.203 (a) and (b): Carry ing Civil A** **ircraft Certification and Registration**
The regulation provides in pertinent part: (a) Except as provided in §91.715, no person may operate a civil aircraft un less 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 (b) 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

. The UAS fully loaded weighs no more than 5 lbs. and is operated without an onboard Pilot. As such, there is no ability or place to carry certification and registration documents or to display themon the sUAS.
An equivalent level of safety will be achieved by keeping these documents at the ground control point where the Pilot flying the sUAS will have immediate access to them, to the extent they are applicable to the sUAS, and should they be issued. The FAA has issued numerous exem ptions to this regulation. A representative sample of other exceptions includes Exem ption Nos. 9565, 9665, 9789, 9789A, 9797, 9797A, 9816A, and 10700. **14 CFR §91.405 (a); 407 (a) (2); 417 (a) & (b): Maintenance Inspections** 
These regulations require that an aircraft operator or owner “shall have that aircraft inspected as prescribed in subpart E of this part and shall between required inspections, except as provided in paragraph C of this section, have discrepancies repaired as prescribed in Part 43 of this chapter...,” and others shall inspect or maintain the aircraft in com pliance with Part 43. Given that these section and Part 43 apply only to aircraft with an airworthiness certificate, these sections will not apply to the applicant. Maintenance will be accom plished by the operator; pursuant to the Operating manual. An equivalent level of safety wi ll be achieved because these small UASs are very lim ited in size and will carry a small payload and operate only in restricted areas for lim ited periods of time. If mechanical issues arise the UAS can land immediately and will be operating from no higher than 200 ft. AGL. As provided in the Operating Manual, the PIC (operator) wi ll ensure that the UAS is in working order prior to initiating flight, and performrequired maintenance. Moreover, the operator is the person most familiar with the aircraft and best suited to maintain the aircraft in an airworthy condition to provide the equivalent level of safety.
********* Pursuant to 14 CFR summary is provided for publication in the Federal Register, should it be determ ined that publication is needed: Applicant seeks an exem ption fromthe following rules: 14 CFR § 21, subpart H; 14 CFR § 45.23 (b); 14 CFR § 61.113 (a) & (b); 91.7 (a); 91.9 (b) (2); 91.103 (b); 91.109; 91.119; 91.121; 91.151 (a); 91.203 (a) & (b); 91.405 (a); 91.407 (a) (1); 91.409 (a) (2) and 91.417 (a) & (b) to operate commercially a small unmanned vehicle (5lbs or less) in photography and videography operations. **Privacy** All flights will occur over private or controlled access property with the property owner’s prior consent and knowledge, or over remote public land. Image capture of people will rarely take place, but in the event they are, they will have consented prior to being filmed or otherwise have agreed to be in the area where data collection will take place.**Airborne Image Capture**

With regard to airborne film ing, Coldwater Group, LLC adheres to all FAA regulations. Further Coldwater Group, LLC airborne teams operate under the principles of: Safety First, Quality Assurance, Accountability, Reporting, and Training. When approved by the FAA it is Coldwater Group, LLC’s mandate to treat all sUAS operations the exact same level of professionalism and seriousness as that of conventional aircraft. Approval of exem ptions allowing commercial operations of sUASs in our industry will enhance safety by reducing risk. Conventional operations, using turbine or piston powered aircraft present the risks associated with vehicles that weigh in the neighborhood of 2,000lbs.+, carrying large amounts of Jet A or 100LL. Such aircraft must fly to and from location. In contrast, a sUAS weighing fewer than 5 lbs, and powered by batteries, elim inates virtually all of the risk, given the substantial reduced mass and lack of combustible fuel carried on board. The sUAS is typically transported to the location via auto, or cargo van, in a medium sized case and is never flown to the site. The sUAS will carry no passengers or crew and, therefore, wi ll not expose them to the risks associated with manned aircraft.
The operation of small UASs, weighing less than 5lbs., conducted in the strict conditions outlined above, will provide an equivalent level of safety supporting the grant of the exem ptions requested herein, including exempting the applicant from the requirements of Part 21 and allowing commercial operations. These lightweight aircraft operate at slow speeds, close to the ground, and in a sterile environment. As a result, they are far safer than conventional operations conducted with piston helicopters, or fixed wing aircraft operating in relatively close proxim ity to the ground and people.
The primary market of interest for Coldwater Group, LLC utilizing sUASs is aerial videography and photography.
It is anticipated that the airborne image capture process will be accomplished exclusively in daytime VFR environments. To capture the highest quality of resolution the ma jority of airborne data collections will take place during the 10:00am

– 4:00pm window

. **Summary** Satisfaction of the criteria provided in Section 333 of the Reform Act of 2012

– size, weight, speed, operating capabilities, proxim ity to airports and populated areas and operation within visual line of sight and national security

– provide more than adequate justification for the grant of the requested exem ptions allowing commercial operation of applicant’s sUAS for aerial videography and photography Operating Manual appended hereto. Coldwater Group, LLC is eagerly standing by to support the FAA and sUAS community in its quest to establish proper regulations and protocols for the safe introduction of unmanned aircraft into the national airspace. Sincerely, Jack D Petersen, Jr Coldwater Group, LLC. 825 Great Northern Blvd. Suite 320Helena, MT 59601

406

-461

-8883 pepper@coldwaterpr.com