Source: https://www.federalregister.gov/documents/2013/01/16/2013-00848/safety-enhancements-certification-of-airports
Timestamp: 2017-02-28 05:33:18
Document Index: 243180387

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:: Safety Enhancements, Certification of Airports
A Rule by the Federal Aviation Administration on 01/16/2013
A. Applicability of Part 139 (§ 139.1)
B. Certification and Falsification (§ 139.115)
C. SMGCS (§ 139.203)
D. Training (§§ 139.303 & 139.329)
E. Runway Pavement Surface Evaluation (§ 139.305)
F. Definition of Joint Use Airport (§ 139.5)
i. Applicability of Part 139 (§ 139.1)
ii. Certification and Falsification (§ 139.115)
iii. Amended Language in §§ 139.303 and 139.329
https://www.federalregister.gov/d/2013-00848
Start Printed Page 3311
Clarify that the applicability of part 139 is based only on passenger seats in passenger-carrying operations, as determined by either the regulations or the aircraft type certificate (§ 139.1);
Add a new § 139.115 that prohibits fraudulent or intentionally false statements concerning an airport operating certificate (AOC);
Amend language in § 139.303 and § 139.329 for consistency, or to codify existing industry practice; and
Amend the definition of joint-use airport in § 139.5 to correspond with statutory authority.
The comment period closed on April 4, 2011. On April 13, 2011, the FAA reopened the comment period until May 13, 2011, (76 FR 20570) because we learned that a number of airport operators were not aware that low-visibility approaches and departures had been approved for their airports. The FAA notified, by letter, those airports with approved low-visibility departures, and reopened the comment Start Printed Page 3312period to allow time for affected airports to receive notice from the FAA, review this NPRM, and adequately assess, prepare, and submit comments on the possible impact of this NPRM.
Safety enhancements part 139NPRMFinal ruleApplicability of Part 139YESYES.Certification and FalsificationYESYES.Surface Movement Guidance Control System (SMGCS)YESNO.Non-Movement Area Safety TrainingYESNO.Runway Pavement Surface EvaluationYESNO.
Currently, § 139.1(a)(1) states that an airport must be certificated under part 139 to host scheduled passenger carrying operations of an air carrier operating aircraft designed for more than nine passenger seats, as determined by the aircraft type certificate issued by a competent civil aviation authority. The current wording of § 139.1 has created confusion regarding the operation of a particular aircraft type, the Cessna 208B Caravan (the “Caravan”). The standard high-density airline configuration for the Caravan features four rows of 1-2 seating behind the two seats in the cockpit. The Caravan is certificated as a single-pilot aircraft, but has two pilot seats. In non-revenue service, the second pilot seat may be occupied by a passenger. However, in scheduled passenger-carrying operations, § 135.113 prohibits passengers from occupying the second pilot seat, which means there are not more than nine passenger seats during those operations.
In the NPRM, the FAA proposed to clarify § 139.1 to state that the applicability of part 139 is based only on passenger seats in passenger-carrying operations as determined by either the regulations under which the operation is conducted or the aircraft type certificate.
The FAA proposed a new § 139.115 that would prohibit fraudulent or intentionally false statements on an application for a certificate or other records required to be kept.
All comments regarding this section supported the FAA's proposal. To ensure the reliability of records maintained by a certificate holder and reviewed by the FAA, the FAA is adding a new § 139.115 that prohibits:
The FAA proposed to amend § 139.203 to require that airport certification manuals contain a SMGCS plan for airports approved for operations below 1,200 feet runway visual range. A SMGCS plan would facilitate the safe movement of aircraft and vehicles on the airport by establishing more rigorous control procedures and requiring enhanced visual aids. Additionally, the ability to conduct low visibility operations allows a certificate holder to stay open during poor weather conditions, thus reducing flight delays and cancellations.
Twelve commenters stated that either the cost calculations in our proposal were not realistic, or the amount of time in low-visibility conditions did not warrant the investment. Additionally, several comments contended that the burden to airports would not be beneficial, and would require a large Start Printed Page 3313infrastructure investment. Based on comments and further cost analysis, this section of the rule is not currently cost beneficial to implement and the FAA is withdrawing the SMGCS proposal. However, the FAA may propose rulemaking in the future if it is determined to be necessary.
The proposal also included substituting all “persons” for all “personnel” in § 139.303(c). We received no comments objecting to this change. The FAA adopts this change, and will also substitute all “persons” for “employee, tenant or contractor” in §§ 139.329 (b) and (e) for consistency. The FAA has determined this language provides greater clarity and is consistent with previous FAA interpretations.
Since 2007, the U.S. aviation community has initiated and completed significant short-term actions to improve safety at U.S. airports based on the FAA's “Call to Action.” [1] As part of the Call to Action, the FAA Office of Airport Safety and Standards issued a change to AC 150/5210-20, Ground Vehicle Operations on Airports, on March 31, 2008. The AC change strongly recommended regular recurrent driver training for all persons with access to the movement area. This included voluntarily conducting recurrent annual movement area driver's training for all personnel who enter the movement area. All certificated airports voluntarily developed plans to require annual recurrent training for all individuals with access to the movement areas. As a result of the Call to Action, in 2010 the Office of Airports recorded that all airports were requiring recurrent training for non-airport employees such as Fixed-Base Operators (FBO) or airline mechanics.[2] The FAA intended to propose a requirement in the NPRM that would make the existing industry practice mandatory. Given the universality of the training, the FAA has determined that it would be contrary to the public interest to initiate a separate rulemaking action just for this provision in order to provide an opportunity to comment. The existing level of training indicates that as a group certificated airports are willing to conduct the training, and that codifying existing industry practice adds no further costs.
This final rule now requires annual recurrent training for all persons in the movement and safety areas for Classes I through IV airports. Regulatory text is being added to § 139.329 to further clarify that all persons that have access to, and operate in, movement areas and safety areas require initial and recurrent drivers training (at least once every 12 consecutive calendar months). Additionally, since Class IV airports will be required to comply with this regulation, an “X” will be added in the Class IV column in § 139.203(b) manual element number 22.
In the NPRM, the FAA proposed amending § 139.305 to require airports to establish and implement a runway friction testing program for each runway used by jet aircraft. Under the proposal, a certificate holder would schedule periodic friction evaluations of each runway that accommodates jet aircraft. Components of the program would include a testing frequency that takes into consideration the volume and type of traffic as well as friction readings from continuous friction measuring equipment (CFME) operated by trained personnel. Corrective action would be required, as needed.
The FAA also proposed for § 139.305 that airport operators be required to locate potential hydroplaning areas as well as measure the depth and width of a runway's grooves to check for wear and damage. Airports would also establish and implement a program for testing performance of grooves and transverse slopes.
Based on comments and further analysis, the FAA is withdrawing the proposals for § 139.305. The FAA notes that guidance currently exists addressing these issues and it will conduct outreach with certificate holders. Guidance on runway friction testing frequency and friction levels is in Advisory Circular 150/5320-12C Measurement, Construction, and Maintenance of Skid-Resistant Pavement Surfaces. Guidance on the use of CFME in contaminated conditions for operational purposes is found in Advisory Circular 150/5200-30C, Airport Winter Safety and Operations. Finally, the FAA notes that current part 139 requirements require airports to inspect runways for ponding problems. However, the FAA may propose rulemaking in the future if it is determined to be necessary.Start Printed Page 3314
The FAA is changing the definition of “joint use airport” in § 139.5 to correspond with the definition provided by Congress in the FAA Modernization and Reform Act of 2012 (49 U.S.C. 47175 (2012)). This change is not subject to notice and comment procedures because it meets the Administrative Procedure Act's good cause exception (5 U.S.C. 553).
Changes to Federal regulations must undergo several economic analyses. First, Executive Orders 12866 and 13563 direct that each Federal agency shall propose or adopt a regulation only upon a reasoned determination that the benefits of the intended regulation justify its costs. Second, the Regulatory Flexibility Act of 1980 (Pub. L. 96-354) requires agencies to analyze the economic impact of regulatory changes on small entities. Third, the Trade Agreements Act (Pub. L. 96-39) prohibits agencies from setting standards that create unnecessary obstacles to the foreign commerce of the United States. In developing U.S. standards, this Trade Act requires agencies to consider international standards and, where appropriate, that they be the basis of U.S. standards. Fourth, the Unfunded Mandates Reform Act of 1995 (Pub. L. 104-4) requires agencies to prepare a written assessment of the costs, benefits, and other effects of proposed or final rules that include a Federal mandate likely to result in the expenditure by State, local, or tribal governments, in the aggregate, or by the private sector, of $100 million or more annually (adjusted for inflation with base year of 1995). This portion of the preamble summarizes the FAA's analysis of the economic impacts of this final rule.
Clarify that the applicability of part 139 is based only on passenger seats in passenger-carrying operations, as determined by the regulations or the aircraft type certificate (§ 139.1);
Add a new § 139.115 that prohibits fraudulent or intentionally false statements concerning an AOC or other record required to be maintained;
Amend language in §§ 139.303 and 138.329 for consistency or to codify current industry practice; and
The qualitative benefit of this portion of this final rule will be to provide consistent language within and between §§ 139.303 and 138.329. However, the FAA cannot provide a quantitative estimate of these benefits.
However, if an agency determines that a proposed or final rule is not expected to have a significant economic impact on a substantial number of small entities, section 605(b) of the RFA provides that the head of the agency Start Printed Page 3315may so certify and a regulatory flexibility analysis is not required. The certification must include a statement providing the factual basis for this determination, and the reasoning should be clear.
2. Visit the FAA's Regulations and Policies Web page at http://www.faa.gov/​regulations_​policies/​; orStart Printed Page 3316
3. Access the Government Printing Office's Web page at http://www.gpo.gov/​fdsys.
Start Amendment Part1. The authority citation for part 139 continues to read as follows:End Amendment Part
Start Amendment Part2. Amend § 139.1 by revising paragraph (a) to read as follows:End Amendment Part
§ 139.1 Applicability.
Start Amendment Part3. Amend § 139.5 to revise the definition of the term “Joint-use airport” to read as follows:End Amendment Part
Start Amendment Part4. Add § 139.115 to subpart B to read as follows:End Amendment Part
§ 139.115 Falsification, reproduction, or alteration of applications, certificates, reports, or records.
(a) No person shall make or cause to be made: (1) Any fraudulent or intentionally false statement on any application for a certificate or approval under this part.
(4) Any alteration, for a fraudulent purpose, of any certificate or approval issued under this part. (b) The commission by any owner, operator, or other person acting on behalf of a certificate holder of an act prohibited under paragraph (a) of this section is a basis for suspending or revoking any certificate or approval issued under this part and held by that certificate holder and any other certificate issued under this title and held by the person committing the act.
Start Amendment Part5. Amend § 139.203 by revising paragraph (b)(22) to read as follows:End Amendment Part
Manual elementsAirport certificate classClass IClass IIClass IIIClass IV * * * * * * *22. Procedures for controlling pedestrians and ground vehicles in movement areas and safety areas, as required under § 139.329XXXX * * * * * * *
Start Amendment Part6. Amend § 139.303 by revising the introductory text of paragraph (c) to read as follows:End Amendment Part
§ 139.303 Personnel.
Start Amendment Part7. Amend § 139.329 by revising paragraph (b) and paragraph (e) to read as follows:End Amendment Part
§ 139.329 Pedestrians and ground vehicles.
(b) Establish and implement procedures for the safe and orderly access to and operation in movement Start Printed Page 3317areas and safety areas by pedestrians and ground vehicles, including provisions identifying the consequences of noncompliance with the procedures by all persons;
See FAA Fact Sheet at
www.faa.gov/​news/​fact_​sheets/​news_​story.cfm?​newsId=​10133.
See FAA Annual Runway Safety Report 2010, at www.faa.gov/​airports/​runway_​safety/​news/​publications/​media/​Annual_​Runway_​Safety_​Report_​2010.pdf.