Source: https://electricmotorglider.com/2015/01/01/preamble-part-103-ultralight-vehicles-operating-requirements/
Timestamp: 2019-04-23 14:32:50+00:00

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SUPPLEMENTARY INFORMATION:BackgroundThe FAA issued Advisory Circular No. 60-10, entitled “Recommended Safety Parameters for Operation of Hang Gliders” on May 16, 1974. That advisory circular contained recommended safety parameters for the operation of sport hang gliders, in lieu of formal Federal regulation. The advisory circular defined “hang glider” as “an unpowered, single place vehicle whose launch and landing capability depends on the legs of the occupant and whose ability to remain in flight is generated by natural air currents only.” The sport of hang gliding has advanced dramatically since Advisory Circular No. 60-10 was issued.
To establish regulations to deter flights which present a serious danger to aircraft and to provide a basis for necessary enforcement action the FAA published Notice of Proposed Rulemaking No 816 on July 27, 1981 (46 FR 38472). That Notice proposed to include both powered and unpowered hang gliders under the generic term “ultralight vehicle” and included proposed weight and fuel limitations for those vehicles. The Notice proposed a number of operational limitations for ultralight vehicles, while recognizing that the vehicles are used primarily for sport purposes. More than 2,500 persons and organizations submitted comments to that proposed rule. This rule is the result of FAA consideration of those comments in light of its responsibility for safety in the National Airspace System. Because of the growing significance of this segment of the aviation community, the new rules have been codified under a new Part of the Federal Aviation Regulations, Part 103.
THE RULESubpart A –GeneralSection 103.1 Applicability (proposed §101.1(a)(3)).This section defines the term “ultralight vehicle,” The proposed rule would have limited the term to single-occupant designs weighing less than 155 pounds, with a fuel capacity of 15 pounds or less, and which had no U.S. or foreign airworthiness certificate. The final rule expands the definition to differentiate between powered and unpowered ultralight vehicles. The 155-pound weight limitation has been retained for unpowered designs and is the only criterion for those vehicles. Those ultralights equipped with powerplants must weigh less than 254 pounds empty weight. In addition, powered ultralight vehicles must have a fuel capacity not exceeding 5 U.S. gallons and be incapable of more than 55 knots calibrated airspeed at full power in level flight. The power off stall speed of a powered ultralight must not exceed 24 knots calibrated airspeed.
Unpowered ultralight vehiclesA number of commenters, including the United States Hang Gliding Association (USHGA), object to the inclusion of “pure” hang gliders in the same definition as powered hang gliders. They raise the point that there are a number of distinctive operational differences between a pure hang glider and a powered vehicle which should be considered when assessing the necessity for regulations for these vehicles. The USHGA emphasizes its own self-regulation program and safety record.
The USHGA’s self-regulation program lacks the legal authority to enforce requirements to ensure the safety of others. There is no requirement for any hang glider operator to be a member of the USHGA.
Under this rule, those unpowered vehicles weighing 155 pounds or more must be certificated under the appropriate FAR’s. No specific comments were received which objected to the 155-pound limitation on unpowered vehicles.
Powered ultralight vehiclesA large number of commenters request that the proposed maximum empty weight of 155 pounds be raised for powered ultralight vehicles. The suggestions range from 180 to 350 pounds. The reasons offered include greater structural integrity, more opportunity for design innovations, and the fact that many of the vehicles presently operated exhibit all of the other characteristics generally attributed to ultralights but weigh more than the proposed weight limit.
Some commenters suggest that limitations of 220 pounds or 330 pounds be adopted because they are “international standards.” This is not correct. Canada, England, and Australia adopted 220 pounds as the maximum weight for a particular category of aircraft. In those countries, even if the weight limitation is met, the aircraft must be certificated and the pilots licensed. The 330-pound limit was established by the Federation Aeronautique Internationale for a category called “microlight aircraft.” That category was established merely for the purpose of recording performance achievements of a particular group of aircraft.
The FAA agrees that the weight limitation for powered ultralight vehicles should be raised from the proposed 155 pounds. The 254pound limitation was established because it closely corresponds to commenters’ recommendations that the weight limitation be raised to at least 115 kilos, and because the vast majority of current vehicles on the market weigh less than 254 pounds. This weight does not include floats or safety devices intended for deployment in an emergency situation, e.g., parachutes and the harnesses and ballistic package necessary for deployment.
Single OccupantThe rule limits both powered and unpowered ultralight vehicles to a single occupant. A few commenters suggest that two-seat versions be available for carrying passengers or for training purposes. The basis for allowing ultralight vehicles to operate under special rules which do not require pilot and aircraft certification is the “sport” aspect of the operation.
Because pilot qualifications are not controlled or monitored, the single-occupant requirement is a necessary component in the continuation of the policies which allow the operation of ultralight vehicles free from many of the restrictions imposed on aircraft. Persons wishing to operate two place vehicles have the availability of existing provisions of the FAR’s for conducting such operations.
Recreation or Sport Purposes OnlyRecent activities and advertisements in ultralight-oriented publications (included in the docket) imply that commercial operations may be conducted by an uncertificated pilot in an ultralight which has not been certificated as an aircraft. Those types of operations are not allowed under the rule.
Several commenters suggest that ultralight vehicles be limited to sport or recreational purposes only. The position of the FAA has consistently been that these vehicles may be operated for sport and recreation purposes only. The justification for allowing the operation of these vehicles without requiring aircraft and pilot certification has been that this activity is a ”sport” generally conducted away from concentrations of population and aircraft operations. Like any sport, the participants are viewed as taking personal risks which do not affect others not involved in the activity.
Section 103.3 Inspection requirements (proposed §101.55)This section ensures the FAA’s authority to inspect ultralight vehicles for compliance with the limits specified in §103.1 and is retained in the final rule as proposed in Notice No. 81-6. A large number of commenters object to the inspection requirements, believing that considerable FAA manpower and resources would be required in this effort. The USHGA and its membership contributed a majority of the objecting comments, citing the remoteness of hang gliding sites as impractical for the FAA to monitor.
Section 103.5 WaiversIn proposing to include ultralight operations under Part 101, ultralights would have been eligible for the waiver provisions applicable to all operations under that Part. By removing the ultralight proposal from Part 101, the waiver eligibility for ultralights would have been lost. The FAA has concluded that the ultralight industry and the public would be best served by retention of waiver eligibility for these vehicles.
Section 103.7 Certification and registrationThe intent of the FAA is to provide for safety in the national airspace with a minimum amount of regulation. Accordingly, those vehicles which meet the definition of “ultralight vehicle”‘ will be exempt from FAA certification and registration requirements. Similarly, pilots of ultralight vehicles, as defined in this Part, will not be required to possess FAA pilot certificates or airman medical certificates.
FAA will continue to monitor performance of the ultralight community in terms of safety statistics, growth trends and maturity and, if indicated, will take additional regulatory actions to preclude degradation of safety to the general public while allowing maximum freedom for ultralight operations. In summary, it should be emphasized that the individual ultralight operator’s support and compliance with national self-regulation programs is essential to the FAA’s continued policy of allowing industry self regulation in these areas.
Pilot CertificationA large number of commenters believe that there should be some requirement that pilots of ultralights be required to exhibit some knowledge and/or experience before being allowed to operate these vehicles. The suggestions range from no requirements to pilot certification under the requirements of Part 61. The general groupings of the comments are: (1) No certification; (2) required ground training on regulations and conventional aircraft operations; (3) required ground training and instructor sign-off for unsupervised solo operations: (4) successful passage of a written test, such as the FAA glider pilot written examination; (5) issuance of an Ultralight Pilot Certificate by the FAA based on satisfactory completion of a examination, and observed performance as the pilot of an ultralight; and (6) conforming to the certification requirements of Part 61 for student and private pilots.
The FAA endorses the ultralight community’s efforts to develop and administer, under FAA guidelines, a national pilot certification program. At this time, however, pilots of ultralight vehicles are not required by Federal regulation to be certificated.
Aircraft RegistrationSome commenters, primarily State and local governments, recommend that these vehicles be registered and be required to display their registration number. The reasons center around identification of any offenders. The FAA’s experience in identification of offenders and processing enforcement action validates their recommendations. The FAA endorses the ultralight community’s efforts to develop and maintain, under FAA guidelines, a national registration system which would be immediately accessible to the FAA. However, registration of ultralight vehicles will not be required by Federal regulation at this time.
Aircraft CertificationThere are a small number of commenters who recommend additional Federal regulations requiring certification of ultralight vehicles to some design standards. The FAA has consistently refrained from the certification of these vehicles because they were occupied by a single occupant for sport or recreational purposes. This policy is in accord with Federal regulatory policies regarding other sport activities. The pilots of these vehicles accept the responsibility for assuring their personal safety much as the driver of a moped street vehicle or a scuba diver does when engaged in his sport. The FAA has noted and commends the efforts of the USHGA to establish design standards and flight testing of new hang glider designs. The FAA endorses the development of similar standards and testing of new powered designs by the ultralight community. However, the FAA presently has no intent to require certification of these vehicles by Federal regulation.
Subpart B-Operating Rules Section 103.9 Hazardous operations (proposed §101.7)This section prohibits any ultralight operator from engaging in activity which jeopardizes the safety of persons or property on the ground or in the air. The prohibition against hazardous flight or dropping of objects is common to the regulations pertaining to civil aircraft, and the FAA is addressing ultralight operations with equivalent stringency.
Section 103.11 Daylight operations (proposed §101.43).The proposed rule would have limited the operation of ultralights to the hours between official sunrise and official sunset. The limitation on daytime operations was retained with an added provision for twilight operations under certain conditions. Other night-time operations are not allowed.
There are some commenters who believe that operations in Alaska should be excluded from the daylight operations section. They allude to the uniqueness of their “normal” day and how ultralight operations would be adversely affected.
Several comments support the original proposal and do not want operations during the nighttime hours. The primary concern centers around the difficulty in seeing these vehicles, especially at the higher altitudes, and the perceived inability of these operations to be conducted safely. The FAA has observed ultralight operations during the twilight periods and has found the light available for such operations to be adequate in many instances. Operators were able to maneuver safely to avoid each other and also effect safe takeoffs and landings. Since most vehicles are operated at nearly the same altitude, they could be easily seen silhouetted against the lighted sky. Operations were conducted in relatively close proximity to each other, and each operator was readily aware of the others’ presence. The mild weather conditions which generally prevailed during the twilight periods combined with the controllability and maneuverability of these vehicles to enhance the safety factor for flight.
The FAA has adopted an alternative which provides an acceptable level of safety to aircraft while still allowing ultralights to operate in uncontrolled airspace during this period of the day. The FAA’s conclusion on this issue is to disallow ultralight operations in controlled airspace during the period from sunset to sunrise. This affords aircraft operators the margin of safety to which they are entitled and, at the same time, leaves adequate airspace to the ultralight operator during a 30-minute twilight period.
The FAA has determined that the occasional aircraft operation in uncontrolled airspace during the twilight period should not entirely preclude ultralight operations. The visibility from above of ultralights operating at very low levels can be significantly enhanced by the addition of an anticollision light on these vehicles. Such a light would provide the descending aircraft pilot with a distinct indication of the ultralight’s presence. Additionally, it would enable ultralight operators to better see and avoid each other.
Section 103.13 Operations near aircraft and other ultralight vehicles;Right-of-way rules (proposed § 101.49).The proposed regulations with respect to ultralight vehicle right-of-way are adopted. An additional provision is added to clarify the right-of-way requirements in situations involving powered and unpowered ultralight vehicles.
Section 103.15 Operations over congested areas (proposed §101.47).The proposed prohibition of ultralight vehicle operations over congested areas is retained in the final rule. The comments favoring an easing of the proposed rule focus on three main areas: (1) Those who favor permitting operations with a minimum altitude ranging from 1,000 to 3,000 feet AGL; (2) those requesting that the minimum altitude requirements of §91.79 be allowed: and (3) those who believe that no minimum altitude should be specified, especially for unpowered vehicles, due to the short field ability and small size of the vehicles.
The FAA’s position is based on the fact that ultralight vehicles are not certificated as airworthy by any approved method and are flown by uncertificated pilots for sport or recreational purposes only. Similar limitations apply to the operations of experimental and restricted category aircraft based on catastrophic incidents which have occurred in the past. The potential for such an incident makes the general issuance of the suggested authorization unacceptable. The FAA believes that concentrations of the general public must be protected from the possible dangers inherent in the operations of vehicles of uncertificated, possibly unproven designs. In specific limited instances, with appropriate operational limitations, ultralight operations may be approved over congested areas, through the waiver provisions of §103.5.
Section 103.19 Operations in prohibited or restricted areas.In the NPRM, requirements for operations of ultralights were included under the provisions of §101.5. In the final rule, the requirement for ultralight operators to obtain authorization prior to operating in prohibited or restricted areas is retained and restated under §103.19. Prohibited areas have been developed to provide for the safety and security of operations being conducted and to segregate activities considered to be hazardous to non-participating aircraft. Such operations in these areas include military and presidential security, flight training and testing, experimental weapons testing, and the launch and recovery of rocket-powered vehicles.
Section 103.21 Visual reference to the surface (proposed §101.51).NPRM No. 81 – 6 proposed that ultralight operators be required to maintain visual reference to the surface during all flight operations. This would ensure that the operator of an ultralight would have the opportunity to descend and land safely at any time without entering obscuring weather phenomena. Many commenters support the proposal as reasonable and representative of normal ultralight operations. They recognize the possibility of being caught “on top” and the danger, both to themselves and to other airspace users, of trying to descend through a layer of clouds. A few commenters believe that visual reference to the surface is necessary only while climbing or descending and not while in level flight.
The FAA has determined that visual reference with the surface is necessary at all times. Experience with certificated aircraft has shown that many pilots, with fully instrumented aircraft, have been caught “on top” and have required assistance from Air Traffic Control to descend safely. Flying “on top” or between cloud layers often presents visual illusions which cannot be verified without instrumentation. The effect of these illusions is to disorient the airman spatially, with a resulting loss of control of the aircraft. It takes a well-trained and disciplined pilot to ignore what information the human senses are providing and rely on the instrumentation aboard the aircraft.
In the case of ultralights, there is relatively little, if any, instrumentation with which to confirm the flight attitude of the vehicle. Further, if the ultralight operator should get caught “on top” there is no alternative available but to descend unannounced through the clouds. The ultralight operator would be risking not only his own life, but the lives of persons who rely on the safeguards inherent in certificated aviation.
Section 103.21 Flight visibility and cloud clearance requirement (proposed § 101.53). The flight visibility and cloud clearance requirements proposed in the NPRM are the same as those under §91.105, the basic minimums for VFR flight operations by fixed-wing aircraft. Since ultralight vehicles will be sharing the same airspace, the FAA has determined it is practical to apply the same operating minimums.
Some commenters believed that the distance from clouds should be reduced to “clear of clouds.” Their basis for such a change centers around the difficulty in determining actual distances from clouds.
Other commenters suggest that hang gliders be allowed to continue their practice of operating near and in the base of clouds. Their rationale is based on the added lift available from being in close proximity to cumulous clouds. Some hang glider operators fear that the restriction on in-cloud operations would eliminate their ability to vie for long-distance and high-altitude records. The FAA cannot support the operation of ultralights in or near clouds. A specific distance from clouds is required when operating in controlled airspace, primarily due to the presents of aircraft conducting instrument flight operations through the clouds. The cloud clearance requirements serve as a practical buffer to reduce the possibility of having an aircraft exit the clouds on an unalterable collision course. Operations too close to clouds does, in effect, cause a blind side in the aviator’s vision. Operation in and near clouds severely restricts the ultralight operator’s ability to see and avoid, an ability that is paramount in allowing ultralight operations to take place.
Adoption of the AmendmentAccordingly, the Federal Aviation Regulations (14 CFR Chapter 1) are amended, effective October 4, 1982, by adding to Subchapter F (14 CFR Chapter 1) a new Part 103. (Secs. 307,313(a), 601(a), 602 and 603, Federal Aviation Act of 1958 (49 U.S.C. §§ 1348, 1354(a), 1421(a), 1422, and 1423; sec. 6(c), Department of Transportation Act (49 U.S.C. § 1655(c)).
NOTE: The FAA has determined that this regulation is not a major rule under executive Order 12291. Because the rule will regulate a new user segment and because of substantial public interest, it has been determined that it is a significant rule pursuant to the Department of Transportation Regulatory Policies and Procedures (44 FR 11034; February 26, 1979). The total projected costs of this rule may be found in a copy of the regulatory evaluation contained in the public docket. A copy of that evaluation may be obtained by contacting the person identified above under the caption “FOR FURTHER INFORMATION CONTACT.” It is certified under the criteria of the Regulatory Flexibility Act that this rule will not have a significant economic impact on a substantial number of small entities. There are very few small entities involved in ultralight vehicle activities and the majority of those will be unaffected by the implementation of this rule.

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