[Federal Register Volume 79, Number 221 (Monday, November 17, 2014)]
[Proposed Rules]
[Pages 68384-68388]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-27069]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2014-0773; Directorate Identifier 2014-NM-068-AD]
RIN 2120-AA64


Airworthiness Directives; the Boeing Company Airplanes

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Notice of proposed rulemaking (NPRM).

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SUMMARY: We propose to adopt a new airworthiness directive (AD) for all 
The Boeing Company Model 787-8

[[Page 68385]]

airplanes. This proposed AD was prompted by reports of a potential 
latent failure of the valve actuator circuitry, which was not 
identified during actuator development. This proposed AD would require 
replacing certain engine and auxiliary power unit (APU) fuel shutoff 
valve actuators with new actuators, and would also require revising the 
maintenance or inspection program to include a new airworthiness 
limitation into the Airworthiness Limitations Section (ALS) of the 
Instructions for Continued Airworthiness (ICA). We are proposing this 
AD to prevent latent failures of the fuel shutoff valve actuators, 
which could result in the inability to shut off fuel to the engine or 
APU in the case of an engine or APU fire. If the fuel cannot be shut 
off to a fire, the engine or APU fire could be uncontrollable, which 
could lead to structural failure.

DATES: We must receive comments on this proposed AD by January 2, 2015.

ADDRESSES: You may send comments, using the procedures found in 14 CFR 
11.43 and 11.45, by any of the following methods:
    <bullet> Federal eRulemaking Portal: Go to http://www.regulations.gov. Follow the instructions for submitting comments.
    <bullet> Fax: 202-493-2251.
    <bullet> Mail: U.S. Department of Transportation, Docket 
Operations, M-30, West Building Ground Floor, Room W12-140, 1200 New 
Jersey Avenue SE., Washington, DC 20590.
    <bullet> Hand Delivery: Deliver to Mail address above between 9 
a.m. and 5 p.m., Monday through Friday, except Federal holidays.
    For service information identified in this proposed AD, contact 
Boeing Commercial Airplanes, Attention: Data & Services Management, 
P.O. Box 3707, MC 2H-65, Seattle, WA 98124-2207; telephone 206-544-
5000, extension 1; fax 206-766-5680; Internet https://www.myboeingfleet.com. You may view this referenced service information 
at the FAA, Transport Airplane Directorate, 1601 Lind Avenue SW., 
Renton, WA. For information on the availability of this material at the 
FAA, call 425-227-1221.

Examining the AD Docket

    You may examine the AD docket on the Internet at http://www.regulations.gov by searching for and locating Docket No. FAA-2014-
0773; or in person at the Docket Management Facility between 9 a.m. and 
5 p.m., Monday through Friday, except Federal holidays. The AD docket 
contains this proposed AD, the regulatory evaluation, any comments 
received, and other information. The street address for the Docket 
Office (phone: 800-647-5527) is in the ADDRESSES section. Comments will 
be available in the AD docket shortly after receipt.

FOR FURTHER INFORMATION CONTACT: Rebel Nichols, Aerospace Engineer, 
Propulsion Branch, ANM-140S, FAA, Seattle Aircraft Certification 
Office, 1601 Lind Avenue SW., Renton, WA 98057-3356; phone: 425-917-
6509; fax: 425-917-6590; email: <a href="/cdn-cgi/l/email-protection#92c0f7f0f7febcdcfbf1fafdfee1d2f4f3f3bcf5fde4"><span class="__cf_email__" data-cfemail="7e2c1b1c1b125030171d1611120d3e181f1f50191108">[email protected]</span></a>.

SUPPLEMENTARY INFORMATION:

Comments Invited

    We invite you to send any written relevant data, views, or 
arguments about this proposal. Send your comments to an address listed 
under the ADDRESSES section. Include ``Docket No. FAA-2014-0773; 
Directorate Identifier 2014-NM-068-AD'' at the beginning of your 
comments. We specifically invite comments on the overall regulatory, 
economic, environmental, and energy aspects of this proposed AD. We 
will consider all comments received by the closing date and may amend 
this proposed AD because of those comments.
    We will post all comments we receive, without change, to http://www.regulations.gov, including any personal information you provide. We 
will also post a report summarizing each substantive verbal contact we 
receive about this proposed AD.

Discussion

    We received reports on Model 787 airplanes of a potential latent 
failure of the valve actuator circuitry, which was not identified 
during actuator development. The fuel shutoff valve actuator circuit 
design provides common input power through micro-switches to both the 
motor and position indications. The latent failure condition has the 
potential for a stuck micro-switch, which could lead to a disagreement 
between the valve command and position indication. If a command is sent 
to change the valve position and one of the internal micro-switches is 
stuck in the depressed state, power would immediately provide 
indication that the valve transitioned to its commanded state, when the 
motor actually never received power to rotate. This condition, if not 
corrected, could result in the inability to shut off fuel to the engine 
or APU in the case of an engine or APU fire. If the fuel cannot be shut 
off to a fire, the engine or APU fire could be uncontrollable, which 
could lead to structural failure.

Relevant Service Information

    We reviewed Boeing Service Bulletin B787-81205-SB280015-00, Issue 
002, dated June 19, 2014. For information on the procedures and 
compliance times, see this service information at http://www.regulations.gov by searching for Docket No. FAA-2014-0773.

FAA's Determination

    We are proposing this AD because we evaluated all the relevant 
information and determined the unsafe condition described previously is 
likely to exist or develop in other products of the same type design.

Proposed AD Requirements

    This proposed AD would require airplanes with certain part number 
shutoff valves to revise the maintenance or inspection program to add 
airworthiness limitation number 28-AWL-ACT, ``Engine and APU Shut-Off 
Valve Actuator Test.'' This proposed AD would also require 
accomplishing the actions specified in the service information 
described previously, except as discussed under ``Difference Between 
this Proposed AD and the Service Information.''
    This proposed AD would require revisions to certain operator 
maintenance documents to include new inspections. Compliance with these 
inspections is required by section 91.403(c) of the Federal Aviation 
Regulations (14 CFR 91.403(c)). For airplanes that have been previously 
modified, altered, or repaired in the areas addressed by these 
inspections, an operator might not be able to accomplish the 
inspections described in the revisions. In this situation, to comply 
with 14 CFR 91.403(c), the operator must request approval of an 
alternative method of compliance (AMOC) in accordance with the 
provisions of paragraph (k) of this proposed AD. The request should 
include a description of changes to the required inspections that will 
ensure the continued operational safety of the airplane.

Explanation of ``RC'' Steps in Service Information

    The FAA worked in conjunction with industry, under the 
Airworthiness Directives Implementation Aviation Rulemaking Committee, 
to enhance the AD system. One enhancement was a new process for 
annotating which steps in the service information are required for 
compliance with an AD. Differentiating these steps from other tasks in 
the service information is expected to improve an owner's/operator's 
understanding of crucial AD

[[Page 68386]]

requirements and help provide consistent judgment in AD compliance. The 
actions specified in the service information described previously 
include steps that are labeled as RC (required for compliance) because 
these steps have a direct effect on detecting, preventing, resolving, 
or eliminating an identified unsafe condition.
    As noted in the specified service information, steps labeled as RC 
and all subordinate steps must be done to comply with the proposed AD. 
However, steps that are not labeled as RC are recommended. Those steps 
that are not labeled as RC may be deviated from, done as part of other 
actions, or done using accepted methods different from those identified 
in the service information without obtaining approval of an AMOC, 
provided the steps labeled as RC can be done and the airplane can be 
put back in a serviceable condition. Any substitutions or changes to 
steps labeled as RC will require approval of an alternative method of 
compliance.

Differences Between This Proposed AD and the Service Information

    Although Boeing Service Bulletin B787-81205-SB280015-00, Issue 002, 
dated June 19, 2014, describes installing engine fuel shutoff valve and 
APU fuel shutoff valve actuators having part number (P/N) 53-0037, this 
proposed AD would prohibit installing valves having P/N 53-0037, and 
require installing certain other valves. We have coordinated this 
difference with Boeing.
    The applicability of this proposed AD includes all Model 787-8 
airplanes, which differs from the effectivity of the service 
information referenced previously. The parts are rotable, therefore, 
this proposed AD includes all Model 787-8 airplanes.

Costs of Compliance

    We estimate that this proposed AD affects 6 airplanes of U.S. 
registry.
    We estimate the following costs to comply with this proposed AD:

                                                 Estimated Costs
----------------------------------------------------------------------------------------------------------------
                                                                                     Cost per      Cost on U.S.
                Action                         Labor cost           Parts cost        product        operators
----------------------------------------------------------------------------------------------------------------
Maintenance program revision..........  1 work-hour x $85 per                 $0             $85            $510
                                         hour = $85.
Engine and APU fuel shutoff valve       10 work-hours x $85 per                0             850           5,100
 actuator replacement.                   hour = $850.
----------------------------------------------------------------------------------------------------------------

    According to the manufacturer, some of the costs of this proposed 
AD may be covered under warranty, thereby reducing the cost impact on 
affected individuals. We do not control warranty coverage for affected 
individuals. As a result, we have included all costs in our cost 
estimate.

Authority for This Rulemaking

    Title 49 of the United States Code specifies the FAA's authority to 
issue rules on aviation safety. Subtitle I, section 106, describes the 
authority of the FAA Administrator. Subtitle VII: Aviation Programs, 
describes in more detail the scope of the Agency's authority.
    We are issuing this rulemaking under the authority described in 
Subtitle VII, Part A, Subpart III, Section 44701: ``General 
requirements.'' Under that section, Congress charges the FAA with 
promoting safe flight of civil aircraft in air commerce by prescribing 
regulations for practices, methods, and procedures the Administrator 
finds necessary for safety in air commerce. This regulation is within 
the scope of that authority because it addresses an unsafe condition 
that is likely to exist or develop on products identified in this 
rulemaking action.

Regulatory Findings

    We determined that this proposed AD would not have federalism 
implications under Executive Order 13132. This proposed AD would not 
have a substantial direct effect on the States, on the relationship 
between the national Government and the States, or on the distribution 
of power and responsibilities among the various levels of government.
    For the reasons discussed above, I certify this proposed 
regulation:
    (1) Is not a ``significant regulatory action'' under Executive 
Order 12866,
    (2) Is not a ``significant rule'' under the DOT Regulatory Policies 
and Procedures (44 FR 11034, February 26, 1979),
    (3) Will not affect intrastate aviation in Alaska, and
    (4) Will not have a significant economic impact, positive or 
negative, on a substantial number of small entities under the criteria 
of the Regulatory Flexibility Act.

List of Subjects in 14 CFR Part 39

    Air transportation, Aircraft, Aviation safety, Incorporation by 
reference, Safety.

The Proposed Amendment

    Accordingly, under the authority delegated to me by the 
Administrator, the FAA proposes to amend 14 CFR part 39 as follows:

PART 39--AIRWORTHINESS DIRECTIVES

0
1. The authority citation for part 39 continues to read as follows:

    Authority:  49 U.S.C. 106(g), 40113, 44701.


Sec.  39.13  [Amended]

0
2. Amend Sec.  39.13 by adding the following new airworthiness 
directive (AD):

The Boeing Company: Docket No. FAA-2014-0773; Directorate Identifier 
2014-NM-068-AD.

(a) Comments Due Date

    We must receive comments by January 2, 2015.

(b) Affected ADs

    None.

(c) Applicability

    This AD applies to all The Boeing Company Model 787-8 airplanes, 
certificated in any category.

(d) Subject

    Air Transport Association (ATA) of America Code 28, Fuel.

(e) Unsafe Condition

    This AD was prompted by a report of an error in the valve 
actuator design. We are issuing this AD to prevent latent failures 
of the fuel shutoff valve actuators, which could result in the 
inability to shut off fuel to the engine or APU in the case of an 
engine or APU fire. If the fuel cannot be shut off to a fire the 
engine or APU fire could be uncontrollable which could lead to 
structural failure.

(f) Compliance

    Comply with this AD within the compliance times specified, 
unless already done.

(g) Maintenance or Inspection Program Revision

    Within 30 days after the effective date of this AD, revise the 
maintenance or inspection

[[Page 68387]]

program, as applicable, to add airworthiness limitation number 28-
AWL-ACT, by incorporating the information specified in figure 1 to 
paragraph (g) of this AD into the Airworthiness Limitations Section 
of the Instructions for Continued Airworthiness. This may be 
accomplished by inserting a copy of airworthiness limitation number 
28-AWL-ACT into the maintenance or inspection program, as 
applicable. For the airplanes identified in the applicability note 
of airworthiness limitation number 28-AWL-ACT, the initial 
compliance time for accomplishing the actions specified in figure 1 
to paragraph (g) of this AD is within 10 days after accomplishment 
of the maintenance or inspection program revision required by this 
paragraph. When the engine and APU fuel shutoff valve actuators have 
been replaced as required by paragraph (i) of this AD, the 
airworthiness limitation number 28-AWL-ACT required by this 
paragraph may be removed from the maintenance or inspection program, 
as applicable.

                                    Figure 1 to Paragraph (g) of This AD: Engine and APU Shut-Off Valve Actuator Test
--------------------------------------------------------------------------------------------------------------------------------------------------------
            AWL No.                            Task                           Interval                      Applicability                Description
--------------------------------------------------------------------------------------------------------------------------------------------------------
28-AWL-ACT.....................  ALI............................  10 Days NOTE...................  ALL NOTE.......................  Engine and APU Shut-
                                                                                                                                     Off Valve Actuator
                                                                                                                                     Test.
                                                                                                                                    Concern: The fuel
                                                                                                                                     shutoff valve
                                                                                                                                     actuator design can
                                                                                                                                     result in airplanes
                                                                                                                                     operating with a
                                                                                                                                     failed fuel shutoff
                                                                                                                                     actuator that is
                                                                                                                                     not reported. A
                                                                                                                                     latently failed
                                                                                                                                     fuel shutoff
                                                                                                                                     actuator would
                                                                                                                                     prevent fuel shut
                                                                                                                                     off to an engine.
                                                                                                                                     In the event of
                                                                                                                                     certain engine
                                                                                                                                     fires, the
                                                                                                                                     potential exists
                                                                                                                                     for an engine fire
                                                                                                                                     to be
                                                                                                                                     uncontrollable.
                                                                                                                                    Perform the
                                                                                                                                     following tests in
                                                                                                                                     accordance with
                                                                                                                                     Boeing Service
                                                                                                                                     Bulletin B787-81205-
                                                                                                                                     SB280015-00, Issue
                                                                                                                                     002, dated June 19,
                                                                                                                                     2014.
                                                                                                                                    1. Do PART 1: ENGINE
                                                                                                                                     FUEL SHUTOFF VALVE
                                                                                                                                     ACTUATOR TEST as
                                                                                                                                     described in Boeing
                                                                                                                                     Service Bulletin
                                                                                                                                     B787-81205-SB280015
                                                                                                                                     -00, Issue 002,
                                                                                                                                     dated June 19,
                                                                                                                                     2014.
                                                                                                                                      a. If the left
                                                                                                                                       engine fuel
                                                                                                                                       shutoff valve
                                                                                                                                       actuator has Part
                                                                                                                                       Number 53-0037,
                                                                                                                                       perform the left
                                                                                                                                       engine fuel
                                                                                                                                       shutoff valve
                                                                                                                                       actuator test.
                                                                                                                                      b. If the right
                                                                                                                                       engine fuel
                                                                                                                                       shutoff valve
                                                                                                                                       actuator has Part
                                                                                                                                       Number 53-0037,
                                                                                                                                       perform the right
                                                                                                                                       engine fuel
                                                                                                                                       shutoff valve
                                                                                                                                       actuator test.
                                                                                                                                      c. If either test
                                                                                                                                       fails, repair
                                                                                                                                       faults as
                                                                                                                                       required (refer
                                                                                                                                       to Boeing
                                                                                                                                       Airplane
                                                                                                                                       Maintenance
                                                                                                                                       Manual 28-22-02).
                                                                                                                                    2. Do PART 2: APU
                                                                                                                                     FUEL SHUTOFF VALVE
                                                                                                                                     ACTUATOR TEST as
                                                                                                                                     described in Boeing
                                                                                                                                     Service Bulletin
                                                                                                                                     B787-81205-SB280015
                                                                                                                                     -00, Issue 002,
                                                                                                                                     dated June 19,
                                                                                                                                     2014.
                                                                                                                                      a. If the APU fuel
                                                                                                                                       shutoff valve
                                                                                                                                       actuator has part
                                                                                                                                       number 53-0037,
                                                                                                                                       perform the APU
                                                                                                                                       fuel shutoff
                                                                                                                                       valve actuator
                                                                                                                                       test.
                                                                                                                                      b. If the test
                                                                                                                                       fails, before
                                                                                                                                       further flight
                                                                                                                                       requiring APU
                                                                                                                                       availability,
                                                                                                                                       repair If the
                                                                                                                                       test fails,
                                                                                                                                       before further
                                                                                                                                       flight requiring
                                                                                                                                       APU availability,
                                                                                                                                       repair faults as
                                                                                                                                       required (refer
                                                                                                                                       to Boeing
                                                                                                                                       Airplane
                                                                                                                                       Maintenance
                                                                                                                                       Manual 28-25-03).
                                                                                                                                    NOTE: Dispatch may
                                                                                                                                     be permitted per
                                                                                                                                     MMEL 28-25-03 if
                                                                                                                                     APU is not required
                                                                                                                                     for flight.
                                                                                                                                    INTERVAL NOTE: Not
                                                                                                                                     required on days
                                                                                                                                     when the airplane
                                                                                                                                     is not used in
                                                                                                                                     revenue service.
                                                                                                                                     Must be done before
                                                                                                                                     further flight if
                                                                                                                                     it has been 10 or
                                                                                                                                     more calendar days
                                                                                                                                     since last
                                                                                                                                     inspection
                                                                                                                                    APPLICABILITY NOTE:
                                                                                                                                     This AWL applies to
                                                                                                                                     airplanes with
                                                                                                                                     Eaton Aerospace Ltd
                                                                                                                                     fuel shutoff valve
                                                                                                                                     actuators having
                                                                                                                                     Part Number 53-0037
                                                                                                                                     installed at the
                                                                                                                                     engine or APU spar
                                                                                                                                     shutoff location.
--------------------------------------------------------------------------------------------------------------------------------------------------------

(h) No Alternative Actions and Intervals

    Except as specified in paragraph (i) of this AD: After 
accomplishment of the maintenance or inspection program revision 
required by paragraph (g) of this AD, no alternative actions (e.g., 
inspections) or intervals may be used unless the actions or 
intervals are approved as an alternative method of compliance (AMOC) 
in accordance with the procedures specified in paragraph (k) of this 
AD.

(i) Replacement

    Within 36 months after the effective date of this AD, replace 
the engine and APU fuel shutoff valve actuators having part number 
(P/N) 53-0037 with P/N 53-0049, in accordance with Part 5 or Part 6 
of the Accomplishment Instructions of Boeing Service Bulletin B787-
81205-SB280015-00, Issue 002, dated June 19, 2014, as applicable. 
When all the engine and APU fuel shutoff valve actuators have been 
replaced as required by this paragraph, the airworthiness limitation 
number 28-AWL-ACT required by paragraph (g) of this AD may be 
removed from the maintenance or inspection program, as applicable.

(j) Parts Installation Prohibition

    As of the effective date of this AD, no person may install a 
motor operated valve actuator having P/N 53-0037 on any airplane in 
the following locations: Engine fuel shutoff valve, APU fuel shutoff 
valve, crossfeed valve, and defuel/isolation valve.

[[Page 68388]]

(k) Alternative Methods of Compliance (AMOCs)

    (1) The Manager, Seattle Aircraft Certification Office (ACO), 
FAA, has the authority to approve AMOCs for this AD, if requested 
using the procedures found in 14 CFR 39.19. In accordance with 14 
CFR 39.19, send your request to your principal inspector or local 
Flight Standards District Office, as appropriate. If sending 
information directly to the manager of the ACO, send it to the 
attention of the person identified in paragraph (l)(1) of this AD. 
Information may be emailed to: <a href="/cdn-cgi/l/email-protection#7f46523e3132522c1a1e0b0b131a523e3c30523e32303c522d1a0e0a1a0c0b0c3f191e1e51181009"><span class="__cf_email__" data-cfemail="84bda9c5cac9a9d7e1e5f0f0e8e1a9c5c7cba9c5c9cbc7a9d6e1f5f1e1f7f0f7c4e2e5e5aae3ebf2">[email protected]</span></a>.
    (2) Before using any approved AMOC, notify your appropriate 
principal inspector, or lacking a principal inspector, the manager 
of the local flight standards district office/certificate holding 
district office.
    (3) If the service information contains steps that are labeled 
as RC (Required for Compliance), those steps and all subordinate 
steps must be done to comply with this AD; any steps that are not 
labeled as RC are recommended. Those steps that are not labeled as 
RC may be deviated from, done as part of other actions, or done 
using accepted methods different from those identified in the 
specified service information without obtaining approval of an AMOC, 
provided the steps labeled as RC can be done and the airplane can be 
put back in a serviceable condition. Any substitutions or changes to 
steps labeled as RC require approval of an AMOC.

(l) Related Information

    (1) For more information about this AD, contact Rebel Nichols, 
Aerospace Engineer, Propulsion Branch, ANM-140S, FAA, Seattle 
Aircraft Certification Office, 1601 Lind Avenue SW., Renton, WA 
98057-3356; phone: 425-917-6509; fax: 425-917-6590; email: 
<a href="/cdn-cgi/l/email-protection#42102720272e6c0c2b212a2d2e31022423236c252d34"><span class="__cf_email__" data-cfemail="6537000700094b2b0c060d0a0916250304044b020a13">[email protected]</span></a>.
    (2) For service information identified in this AD, contact 
Boeing Commercial Airplanes, Attention: Data & Services Management, 
P.O. Box 3707, MC 2H-65, Seattle, WA 98124-2207; telephone 206-544-
5000, extension 1; fax 206-766-5680; Internet https://www.myboeingfleet.com. You may view this referenced service 
information at the FAA, Transport Airplane Directorate, 1601 Lind 
Avenue SW., Renton, WA. For information on the availability of this 
material at the FAA, call 425-227-1221.

    Issued in Renton, Washington, on November 5, 2014.
Jeffrey E. Duven,
Manager, Transport Airplane Directorate, Aircraft Certification 
Service.
[FR Doc. 2014-27069 Filed 11-14-14; 8:45 am]
BILLING CODE 4910-13-P


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