Source: https://ntsb.gov/safety/safety-recs/_layouts/ntsb.recsearch/Recommendation.aspx?Rec=A-95-113
Timestamp: 2019-06-27 04:03:06
Document Index: 32618436

Matched Legal Cases: ['art 91', 'art 121', 'art 91', 'art 121', 'art 121', 'art 91', 'art 121', 'art 121', 'art 91', 'art 12', 'art 117', 'art 121', 'art 121', 'art 121', 'art 121', 'art 121', 'art 121', 'art 91', 'art 121', 'art 117', 'art 91', 'art 117', 'art 121', 'art 91', 'art 121', 'art 91', 'art 91', 'art 121', 'art 91', 'art 91', 'art 121', 'art 121', 'art 121', 'art 11', 'art 121', 'art 121', 'arts 121', 'arts 121', 'arts 121', 'arts 121', 'arts 121']

Safety Recommendation A-95-113
Recommendation: TO THE FEDERAL AVIATION ADMINISTRATION: Finalize the review of current flight and duty time regulations and revise the regulations, as necessary, within 1 year to ensure that flight and duty time limitations take into consideration research findings in fatigue and sleep issues. The new regulations should prohibit air carriers from assigning flightcrews to flights conducted under 14 Code of Federal Regulations (CFR) Part 91 unless the flightcrews meet the flight and duty time limitations of 14 CFR Part 121 or other appropriate regulations.
Response: We note that you continue to develop the rulemaking project, “Applying the Flight, Duty, and Rest Requirements to Ferry Flights that Follow Domestic, Flag, or Supplemental All-Cargo Operations,” which, among other things, would require a flight crewmember who accepts an additional assignment for flying under Part 91 from the air carrier, or from any other carrier conducting operations under Part 121, to apply the period of the additional assignment toward any limitation applicable to the flight crewmember relating to duty periods or flight times. Although we remain concerned with the age of this recommendation, we believe that this rulemaking project is responsive. Pending timely issuance of a final rule, Safety Recommendation A-95-113 remains classified OPEN--ACCEPTABLE RESPONSE.
Response: -From Michael P. Huerta, Administrator: The Federal Aviation Administration (FAA) understands the importance of making part 121 flight. duty. and rest limits applicable to tail-end ferries that follow an all-cargo flight. Accordingly. we are continuing our rulemaking project titled, Applying the Flight, Duty, and Rest requirements to Ferry Flights that Follow Domestic, Flag. or Supplemental All-Cargo Operations (Reauthorization), to address part 91 ferry night operations. This rulemaking proposes to apply the flight. duty, and rest requirements of part 121 to ferry flights that follow a part 121 all-cargo operation. This rulemaking would also require a flightcrew member who accepts an additional assignment for flying under part 91 from the air carrier, or from any other carrier conducting operations under part 12 I, to apply the period of the additional assignment toward any limitation applicable to the tlightcrew member relating to duty periods or flight times. Under this proposal, a ferry flight that is not subject to part 117 and that follows a part 121 all-cargo operation would be subject to the same night, duty, and rest rules as that part 121 all-cargo operation. The FAA understands the importance and intent of this recommendation and believes that this rulemaking project is responsive. We are also encouraged that in the Board's comments to the proposed rule, it stated that these efforts would likely meet the intent of this recommendation. We anticipated publication of the notice of proposed rulemaking by June 2017. This rulemaking project is currently in executive review; however, in order to account for review and re-prioritization, rulemaking schedules are subject to revisions and are being evaluated in accordance with Executive Order 13771 , Reducing Regulation and Controlling Regulatory Costs (82 FR 9339), and Executive Order 13777, Enforcing the Regulatory Reform Agenda (82 FR 12285). As a result, the schedules for many ongoing rulemakings are still being determined, but the status of this rule can be tracked at the following Web site: https://www.transportation.gov/regulations/report-on-significant-rulemakings. I will keep the Board informed of the FAA's progress on this safety recommendation and provide an update by September 2018.
Response: The January 2012 final rule fully addressed this recommendation except that, as described above, it excluded cargo operations. However, we were pleased to learn from the FAA’s letter that the agency is currently engaged in a rulemaking project to apply the new flight, duty, and rest requirements of Part 121 to ferry flights that follow a Part 121 all-cargo operation. Although we are concerned with the age of this recommendation (now more than 17 1/2 years old), Safety Recommendation A-95-113 is classified OPEN—ACCEPTABLE RESPONSE pending timely issuance of a final rule.
Response: -From Michael P. Huerta, Administrator: On January 4, 2012, the Federal Aviation Administration (FAA) published the Flightcrew Member Duty and Rest Requirements Final Rule (FAA Docket No. F AA-2009-1093). The new requirements eliminate the current distinctions between domestic, flag, and supplemental passenger operations. The requirements prescribe flight and duty limitation and rest requirements for all flightcrew members and certificate holders conducting passenger operations under part 121. Additionally, the final rule applies to part 121 certificate holders and flightcrew members while conducting flights under part 91. Therefore, each holder of a part 121 certificate and flightcrew member conducting passenger operations would be required to comply with the limitations prescribed in part 117 while conducting all operations under part 91 . Title 14 CFR section 117.1 of the final rule states that part 117 applies to all operations directed by part 121 certificate holders even if the flights are flown under part 91. Sections 117.1 (b) and (c), which specifically address these operations, are below: (b) This part applies to all operations directed by part 121 certificate holders under part 91 , other than subpart K. of this chapter if any segment is conducted as a domestic passenger, flag passenger, or supplemental passenger operation. (c) This part applies to all flightcrew members when participating in an operation under part 91, other than subpart K of this chapter, on behalf of the part 121 certificate holder if any flight segment is conducted as a domestic passenger, flag passenger, or supplemental passenger operation. Additionally, 14 CFR section 117.3 defines "Hight duty period" to include positioning and ferry flights as part of the flight duty period for the purposes of this part. Positioning and ferry flights are common operations conducted under part 91 by 121 certificate holders. Under the rule, these flights would count as part of the flight duty period for the purposes of total flight duty time and rest requirements. Currently, the FAA is engaged in a rulemaking project to address part 91 ferry flight operations conducted by part 121 certificate holders. Specifically, this rulemaking proposes to apply the flight, duty, and rest requirements of part 121 to ferry flights that follow a part 121 all-cargo operation. Under this proposal, a ferry flight that is not subject to part 11 7 and that follows a part 121 all-cargo operation would be subject to the same flight, duty, and rest rules as that part 121 all-cargo operation. The FAA notes that in the Board's comments to the proposed rule, dated November 15, 2010, it stated that the proposed rule would likely meet the intent of this recommendation. I will update the Board as soon as the final rule goes into effect.
Response: The FAA described a number of its current activities and initiatives related to flight crew fatigue. Of particular relevance to these recommendations, on July 15, 2009, the FAA established the Flight and Duty Time Limitations and Rest Requirements Aviation Rulemaking Committee (ARC). The ARC developed recommended rulemaking on flight time limitations, duty period limits, and rest requirements for pilots operating under Parts 121 and 135. On September 1, 2009, the ARC submitted its recommendations, which the FAA is currently evaluating and intends to publish as a notice of proposed rulemaking (NPRM) in early 2010. After many years of inaction, the FAA now appears to be on the verge of taking the actions recommended. If the NPRM addresses the issues raised in Safety Recommendations A-94-194, A-95-113, and A-06-10, it will represent considerable progress The NTSB notes the aggressive schedule the FAA has proposed for publishing the NPRM, but we have not been informed of specific revisions that the NPRM will include, so we are unable to determine as yet whether these proposed revisions would fully satisfy Safety Recommendations A-94-194, A-95-113, and A-06-10. Accordingly, pending publication of an NPRM proposing to mandate the actions recommended, Safety Recommendations A 94 194, A 95 113, and A 06 10 remain classified OPEN -- UNACCEPTABLE RESPONSE.
Response: Letter Mail Controlled 9/15/2009 4:02:14 PM MC# 2090585: - From J. Randolph Babbitt, Administrator: Over the past year the Federal Aviation Administration has worked with three major airlines, employee groups, and other industry organizations to develop an operations specification that requires a fatigue risk management approach to mitigating fatigue for flights that exceed 16 hours. The work done by these groups highlighted not only the need for using fatigue risk management principles in ultra long range flights, but other commercial flight operations. The FAA also held a 3-day fatigue symposium that presented the most current scientific knowledge of fatigue in aviation. The symposium was attended by over 300 industry personnel who are involved in managing fatigue in commercial flight operations. The information contained in the symposium is the cornerstone for the FAA's efforts to apply the latest science to aviation fatigue and alertness. The FAA has developed a plan that includes: Publishing the fatigue symposium proceedings; Developing an Advisory Circular (AC), Fatigue in Aviation Operations; Collecting and analyzing crewmember fatigue data during actual flight operations; Providing guidance for determining adequate rest periods; Developing an AC that provides guidance for including a Fatigue Risk Management System within air carriers' Safety Management Systems; and Developing a notice of proposed rulemaking (NPRM) on flight time limitations, duty period limits and rest requirements for pilots in operations under parts 121 and 135. The FAA recognizes that the effects of fatigue are universal, and the profiles of operations occurring under parts 121 and 135 are similar enough that the same fatigue mitigations should be applied across operations for flightcrew members. On July 15, 2009, the FAA established the Flight and Duty Time Limitations and Rest Requirements Aviation Rulemaking Committee (ARC). The ARC developed recommendations regarding rulemaking on flight time limitations, duty period limits and rest requirements for pilots in operations under parts 121 and 135 to: Consolidate and replace existing regulations for parts 121 and 135; Apply current fatigue science and information on fatigue; Address the development of fatigue risk management systems; and Harmonize with international fatigue mitigation initiatives. The ARC submitted its recommendations, in the form of a draft NPRM, which we are currently evaluating. We plan to publish the NPRM in December 2009.
Response: In its 3/1/2006 annual report to Congress, Regulatory Status of the National Transportation Safety Board's "Most Wanted" Recommendations to the Department of Transportation, the DOT wrote: The FAA issued an NPRM in 1995 proposing to amend existing regulations to establish one set of duty period limitations, flight time limitations, and rest requirements for flight crewmembers engaged in air transportation. The FAA encountered a number of technical and operational issues as a result of the NPRM and is presently looking at alternatives.
Response: In its 2/1/2005 annual report to Congress, Regulatory Status of the National Transportation Safety Board's "Most Wanted" Recommendations to the Department of Transportation, the DOT wrote: The FAA issued an NPRM proposing to amend existing regulations to establish one set of duty period limitations, flight time limitations, and rest requirements for flight crewmembers engaged in air transportation. The FAA encountered a number of technical and operational issues as a result of the NPRM and is presently looking at alternatives.
Response: The Safety Board has for many years documented the safety problem caused by operator fatigue in aviation and is frustrated by the FAA's lack of progress concerning this safety issue. The issue of human fatigue, specifically Safety Recommendations A-94-194, A-95-113, and A-99-45, is on the Board's list of Most Wanted Transportation Safety Improvements. The FAA's December 1995 NPRM addressed many, but not all, of the issues on this subject that concerned the Board. The Board notes that the FAA indicates that the SNPRM will address fatigue issues that the December 1995 NPRM did not address. The FAA indicates that the SNPRM will address circadian rhythm disruption, which was not addressed in the NPRM, as well as extended duty time, another important issue. The Board recognizes the large number of comments that have been submitted concerning these regulations and the contentious nature of the associated discussion. The Board is pleased that the FAA is taking action to develop and implement these regulations and urges the FAA to move expeditiously to complete this action. However, in the 5 years since the NPRM was issued and the 1 1/2 years since the FAA indicated to the Board that an SNPRM was needed, the FAA has not taken action. Pending issuance of the SNPRM and expeditious action to implement a final rule addressing the issues in these recommendations, Safety Recommendations A-94-194, A-95-113 and -125, and A-99-45 remain classified OPEN -- UNACCEPTABLE RESPONSE.
Response: Letter Mail Controlled 12/08/2000 5:00:13 PM MC# 2001766 - From Jane F. Garvey, Administrator: In December 1995, the Federal Aviation Administration (FAA) issued Notice of Proposed Rulemaking (NPRM) 95-18, Flight Crewmember Duty Period Limitations, Flight Time Limitations and Rest Requirements. The NPRM proposes to amend existing regulations to establish one set of duty period limitations, flight time limitations, and rest requirements for flight crewmembers engaged in air transportation. The FAA encountered a number of technical and operational issues as a result of the NPRM and tasked the Aviation Rulemaking Advisory Committee (ARAC) to review reserve issues related to the NPRM. Although the ARAC was unable to reach consensus on a recommendation, it did provide the FAA with a better understanding of the issues affecting industry. Consequently, the FAA plans to issue a Supplemental NPRM (SNPRM) that takes into consideration the technical and operational concerns that were raised during the NPRM comment period. The SNPRM prescribes a maximum duty period linked to a maximum flight time restriction that is associated with a minimum rest period based on the number of pilots. The FAA anticipates issuing the SNPRM by spring 2001. The Board asked for an explanation as to why the FAA believed it was necessary to issue an SNPRM as opposed to a final rule. In view of the numerous comments received as a result of the 1995 NPRM, the FAA has reevaluated its proposal and intends to issue a new proposal that best addresses the fatigue issue concretely, while at the same time gives the airlines the flexibility they need to operate. I have been advised by counsel that, because the FAA has some new proposals and because the FAA must solicit the views of the public on the new proposals, the agency must issue another proposal for comment. I will provide the Board with a copy of the SNPRM as soon as it is issued.
Response: The Safety Board would appreciate periodic updates of the FAA's activities to enforce these existing regulations. In May 1999, the Safety Board issued a safety report, evaluation of United States Department of Transportation efforts in the 1990's to address operator fatigue, that provided an update on the activities and efforts by the U.S. Department of Transportation (DOT) and the modal administrations to address operator fatigue and, consequently, the progress that had been made in the past 10 years to implement actions called for in recommendations related to operator fatigue, including recommendations to revise the hours-of-service regulations in all modes of transportation. In the safety report, the Safety Board expressed extreme disappointment in the lack of rulemaking by the DOT and the modal administrations to change the current hours-of-service regulations, despite their efforts to conduct extensive research on fatigue and to develop educational materials on the detrimental effects of fatigue in the transportation environment. The Safety Board recommended that the DOT require the modal administrations to modify the appropriate CFR to establish scientifically based hours-of-service regulations that set limits on hours of service, provide predictable work and rest schedules, and consider circadian rhythms and human sleep and rest requirements (A-99-45). Further, because the FAA's efforts had not resulted in any changes to the flight and duty time regulations, the Safety Board reclassified A-95-113 and A-95-125 OPEN – UNACCEPTABLE RESPONSE. These recommendations were also reiterated in the Board's safety report. The FAA's July response has provided no new evidence to indicate that the intent of these recommendations is being acted upon. Consequently, the status of A-95-113 and A-95-125 remains OPEN – UNACCEPTABLE RESPONSE.
Date: 7/30/1999
Response: Letter Mail Controlled 8/4/99 12:19:58 PM MC# 990843 - From Jane F. Garvey, Administrator: On 12/11/95, the FAA issued NPRM 95-18, Flight Crewmember Duty Period Limitations, Flight Time Limitations and Rest Requirements. The NPRM proposes to amend existing regulations to establish one set of duty period limitations, flight time limitations, and rest requirements for flight crewmembers engaged in air transportation. The NPRM also takes into consideration scientific data contained in studies conducted by the National Aeronautics and Space Administration relating to flight crewmember duty periods, flight times, and rest. The Aviation Rulemaking Advisory Committee was tasked to review reserve issues related to the NPRM, but was unable to reach consensus on a recommendation. The FAA is presently conducting a risk assessment to determine the probability of preventing future incidents related to fatigue. In the meantime, the FAA published a Notice of intent in the Federal Register on 6/15/99, announcing the FAA's intent to enforce the regulations concerning flight time limitations and rest requirements. This Notice informs affected certificate holders and flight crewmembers of the FAA's intent to enforce its rules and provides them with the opportunity to review their practices and, if necessary, come into full regulatory compliance. I have enclosed a copy of the Notice of intent for the Board's information. I will provide the board with a copy of the supplemental NPRM as soon as it is issued.
Response: From the study Evaluation of U.S. Department of Transportation Efforts in the 1990s to Address Operator Fatigue (issued 6/1/1999): Scientific research has shown that certain sleep factors can affect fatigue and performance: insufficient sleep, irregular and unpredictable schedules, working during low points in the circadian rhythm. The current hours-of-service regulations do not accommodate these concerns. The Safety Board believes these factors should be considered when revising the hours-of-service regulations. Therefore, the Safety Board recommends that the DOT require the modal administrations to modify the appropriate Codes of Federal Regulations to establish scientifically based hours-of-service regulations that set limits on hours of service, provide predictable work and rest schedules, and consider circadian rhythms and human sleep and rest requirements. The Safety Board also recommends that the DOT seek Congressional authority, if necessary, for the modal administrations to establish these regulations. Based on the issuance of this new recommendation, Safety Recommendation I-89-3 is being classified “Closed Unacceptable Action/Superseded.” The Safety Board is also recommending separately that each modal administration—the FAA, FHWA, FRA, USCG, and RSPA—establish, within 2 years, scientifically based hours-of-service regulations that set limits on hours of service, provide predictable work and rest schedules, and consider circadian rhythms and human sleep and rest requirements. Further, because the FAA’s efforts have not resulted in any changes to the flight and duty time regulations, the Safety Board has reclassified Safety Recommendations A-95-113 and A-95-125 “Open—Unacceptable Response.” These recommendations are being reiterated in conjunction with this report. For the FHWA, the revised regulations, at a minimum and as recommended by the Safety Board in 1995, should also (a) require sufficient rest provisions to enable drivers to obtain at least 8 continuous hours of sleep after driving for 10 hours or being on duty for 15 hours, and (b) eliminate 49 CFR 395.1 paragraph (h), which allows drivers with sleeper berth equipment to cumulate the 8 hours of off-duty time in two separate periods. As a result of this new recommendation to the FHWA, Safety Recommendations H-95-1 and -2 are being classified “Closed— Unacceptable Action/Superseded.”
Response: The Board notes that the FAA issued Notice of Proposed Rulemaking (NPRM) 95-18, "Flight Crewmember Duty Period Limitations, Flight Time Limitations and Rest Requirements," on 12/11/95, which, when finalized, will fulfill the intent of the recommendation. Therefore, pending issuance of the final rule, the Board classifies A-95-113 OPEN – ACCEPTABLE RESPONSE.
Response: MC# 960153: - From David R. Hinson, Administrator: On 12/11/95, the FAA issued Notice of Proposed Rulemaking (NPRM ) 95-18, flight crewmember duty period limitations, flight time limitations and rest requirements. This NPRM proposes to amend existing regulations to establish one set of duty period limitation, flight time limitations, and rest requirements for flight crewmembers engaged in air transportation. The NPRM takes into consideration scientific data contained in recent National Aeronautics and Space Administration studies relating to flight crewmember duty periods, flight times, and rest.