Source: https://www.ntsb.gov/investigations/AccidentReports/_layouts/ntsb.recsearch/Recommendation.aspx?Rec=A-10-111
Timestamp: 2019-08-23 21:52:55
Document Index: 178393908

Matched Legal Cases: ['art 121', 'art 121', 'art 60', 'art 135', 'art 135', 'art 121', 'art 135', 'arts 135', 'art 60', 'art 135', 'arts 135', 'art 60', 'art 60', 'art 60', 'art 121', 'art 60', 'art 60', 'art 121', 'arts 135', 'arts 135', 'art 121', 'art 60', 'art 60', 'art 60', 'art 60', 'arts 135', 'art 60', 'art 135', 'art 121', 'art 135', 'arts 135', 'art 60', 'art 135', 'arts 135', 'art 135', 'art 60', 'art 60', 'arts 135', 'art 121', 'art 121', 'art 121', 'art 60', 'arts 135', 'art 60', 'art 60', 'art 121', 'art 121', 'arts 121', 'art 60', 'art 60', 'art 60', 'art 60', 'art 60', 'art 121']

Safety Recommendation A-10-111
Recommendation: TO THE FEDERAL AVIATION ADMINISTRATION: Require 14 Code of Federal Regulations Part 121, 135, and 91K operators to incorporate the realistic, gusty crosswind profiles developed as a result of Safety Recommendation A-10-110 into their pilot simulator training programs.
Response: -From Daniel K. Elwell, Acting Administrator: As we noted in our letter dated September 2, 2015, the FAA published the Qualification, Service and Use of Crewmembers and Aircraft Dispatchers Final Rule on November 12, 2013. In this final rule, we address this recommendation through amendments to Part 121 Appendix E and Appendix F, which include new requirements for crewmember training and evaluation in crosswind takeoff and crosswind landing with gusts. Furthermore, the FAA published the Flight Simulation Training Device Qualification Standards for Extended Envelope and Adverse Weather Event Training Tasks Final Rule on March 30, 2016 (81FR18177). This final rule incorporates changes into part 60 that improve existing, and introduce new, FSTD qualification performance standards for full stall and stick pusher maneuvers, upset recognition and recovery maneuvers, maneuvers conducted in airborne icing conditions, takeoff and landing maneuvers in gusting crosswinds, and bounced landing recovery maneuvers. We acknowledge the Board's clarification that part 135 and 91K operators using FSTDs in compliance with this final rule may constitute acceptable alternate action without a training requirement. We continue to evaluate options to include gusty crosswind scenarios in part 135 and 91K operators' pilot training programs, and will keep the Board informed of our progress. I will keep the Board informed of the FAA's progress on these safety recommendations, and anticipate providing an update by September 2020.
Response: We are aware that the November 13, 2013, final rule regarding crewmember and dispatcher training requires the training for Part 121 operators that we recommended. Before you can conduct this training, you will need to have FSTDs that comply with the requirements in the NPRM titled “Flight Simulation Training Device Qualification Standards for Extended Envelope and Adverse Weather Event Training Tasks.” We have indicated if the FSTDs used by Part 135 and 91K operators comply with the requirements proposed in the NPRM, we might be able to close this recommendation in an acceptable alternate status without your needing to also implement a training requirement for Parts 135 and 91K. Accordingly, pending your establishing requirements in Part 60 that require the inclusion of gusty crosswinds with the other capabilities for FSTDs used by Part 135 and 91K operators, and a non-regulatory approach that addresses this issue for Parts 135 and 91K by including gusty crosswind scenarios in those operators’ pilot training programs, Safety Recommendation A-10-111 remains classified OPEN—ACCEPTABLE ALTERNATE RESPONSE.
Response: -From Michael P. Huerta, Administrator: As we reported in our September 6, 2013, letter, while some simulators are programmed for gusty crosswind profiles, it is not a minimum requirement for Flight Simulator Training Device qualification under part 60. The Federal Aviation Administration (FAA) intends to define such minimum requirements in the upcoming proposed changes to part 60. We approved the part 60 rulemaking action plan, "Flight Simulation Training Device Qualification Standards for Extended Envelope and Adverse Weather Event Training," on May 1, 2012, and published the notice of proposed rulemaking (NPRM) on July 10, 2014. The comment period closed on January 6, 2015, and the team is reviewing and dispositioning the comments in preparation of drafting the final rule. On November 12, 2013, the FAA published a final rule, titled •'Qualification, Service and Use of Crewmembers and Aircraft Dispatchers." It is also known as the Crewmember and Dispatcher Training 'final rule. In this final rule, the FAA addressed NTSB Safety Recommendation A-10-111 through amendments to Part 121 Appendix E and Appendix F, which include new requirements for crewmember training and evaluation in crosswind takeoff and crosswind landing with gusts. As mentioned in the preamble to the Crewmember and Dispatcher Training final rule, the FAA recognizes that not all full flight simulators are currently capable of replicating wind gusts and the agency is "... reviewing simulator capabilities as part of a separate rulemaking." The part 60 NPRM fully addresses simulator capabilities with regards to wind gusts and proposes simulator fidelity requirements that would directly support the training tasks required by the Crewmember and Dispatcher Training final rule. I believe these rulemaking efforts are responsive to the intent of these recommendations and will provide an update to the part 60 rulemaking by February 2016.
Response: We have reviewed the Federal Aviation Administration’s (FAA) notice of proposed rulemaking (NPRM) titled “Flight Simulation Training Device Qualification Standards for Extended Envelope and Adverse Weather Event Training Tasks,” published at Federal Register 39462-39753 on July 10, 2014. The November 13, 2013, crewmember and dispatcher training final rule requires the training discussed in Safety Recommendation A-10-111, though only for Part 121 operators. In order to conduct this training, FSTDs compliant with requirements in the NPRM will be needed. With regard to Parts 135 and 91K operators, included in this recommendation, we have indicated that if the FSTDs used by these operators are compliant with the proposed requirements in the NPRM, this may be an alternative basis for closing this recommendation acceptably without a requirement for the training in Parts 135 and 91K. This recommendation is currently classified “Open—Acceptable Alternate Response.”
Response: We note that appendices E and F of the November 12, 2013, final rule include a requirement for training and evaluation in crosswind takeoff and crosswind landing with gusts for Part 121 operators. We further note that you intend to satisfy the actions specified in Safety Recommendation A-10-110 as part of a separate rulemaking to revise Part 60, which contains the requirements for flight simulator training devices (FSTD). The revisions to Part 60 must be completed before the requirements for the November 12, 2013, final rule can be fully implemented. As a result, we understand that a notice of proposed rulemaking for the needed Part 60 revisions should be issued shortly. When Part 60 is revised to include gusty crosswinds in pilot simulator training programs, the requirements specified in the November 12, 2013, final rule will require the action specified in Safety Recommendation A-10-111. We note, however, that you do not intend to pursue rulemaking or any other action to address Safety Recommendation A-10-111 for Parts 135 and 91K. We believe that the Part 60 revisions will address requirements for FSTDs used by Part 135 and 91K operators as well as by Part 121 operators. If FSTDs with the needed capabilities are available, we believe that Part 135 and 91K operators may readily incorporate gusty crosswind scenarios into their training programs, and that a non regulatory approach for Parts 135 and 91K operators, similar to your action discussed above in response to Safety Recommendation A 07-44, may constitute an acceptable alternate response. Accordingly, pending your establishing requirements in Part 60 that require the inclusion of gusty crosswinds with the other capabilities for FSTDs used by Part 135 and 91K operators, and a non-regulatory approach that addresses Parts 135 and 91K by including gusty crosswind scenarios in those operators’ pilot training programs, Safety Recommendation A-10-111 is classified OPEN—ACCEPTABLE ALTERNATE RESPONSE.
Response: -From Michael P. Huerta, Administrator: The rule provisions that pertain to A-07-44 and A-10-111 are contained in Appendices E and F of the '•Qualification, Service, and Use of Crewmembers and Aircraft Dispatchers final rule. The FAA is still working on incorporating the content of Notice 8900.118 into Order 8900.1, as discussed in our last response to A-07-44. In its letter dated June 11, 2013, the Board stated that this would be an acceptable alternate response for part 135 and 91 subpart K (91 K) operations. With regard to A-10-111, the FAA recognizes that not all full flight simulators are capable of replicating wind gusts and is reviewing simulator capabilities as part of a separate rulemaking on part 60. While the part 60 rulemaking effort was discussed in our letter to the Board dated September 6, 2013, the FAA notes that A-10-111 requires the incorporation of gusty crosswinds into pilot simulator training programs. The final rule published in November 2013 requires this training and meets the intent of A-10-111. Due to other rulemaking priorities, an expressed commitment cannot be made at this time to pursue rulemaking to address recommendation A-10-111 for parts 135 and 91 K. I believe that the FAA has effectively addressed this safety recommendation as it pertains to part 121 operations. I consider our actions complete and plan no further action on this recommendation. I will keep the Board informed of the FAA's progress on Safety Recommendation A-07-44 and provide an update by January 2015.
Response: On November 12, 2013, the FAA published 14 Code of Federal Regulations Part 121 “Qualification, Service, and Use of Crewmembers and Aircraft Dispatchers; Final Rule.” We note that in the final rule, the FAA has amended appendices E and F to include a requirement for training and evaluation in crosswind takeoff and crosswind landing with gusts. We are encouraged to learn that, although the final rule affects only Part 121 operators, the FAA plans to consider similar training for other operators in the future, if the cost of such training can be justified. We also note that, as part of a separate rulemaking, the FAA intends to include gusty crosswind profiles as a minimum requirement for Flight Simulator Training Device qualification in Part 60. We point out that, to fully address Safety Recommendation A-10-111, the training profiles developed in response to Safety Recommendation A-10-110 must replicate the ground level disturbances and gusting crosswinds that often occur at, or near, the runway surface, similar to those encountered by the accident pilots. Pending completion of both the training profile and the recommended requirement for Parts 135 and 91K operators, Safety Recommendation A-10-111 remains classified OPEN—ACCEPTABLE RESPONSE.
Response: -From Michael P. Huerta, Administrator: As the Federal Aviation Administration (FAA) reported in its November 6, 2012, letter to the Board, while some simulators are programmed for gusty crosswind profiles, it is not a minimum requirement for Flight Simulator Training Device (FSTD) qualification in part 60. The FAA intends to define such minimum requirements in the upcoming proposed changes to part 60; the anticipated publication date of the notice of proposed rulemaking is December 2013 with a final rule anticipated in 2015. In its March 13, 2013, letter, the Board requested additional details about the data contained in the Windshear Training Aid (WTA). The WTA contains several simulator wind models that are derived from estimated wind data associated -wil'l1 windshear related accidents and incidents. These data were compared with Doppler radar measurements of micro bursts as part of the Joint Airport Weather Studies project to confirm the shear rate, shear magnitude, wind duration, and overall shape of the wind model. Section 4.3.5 of the WTA (enclosed) concerning the development of wind models and related substantiation contains additional details. While the basic WTA simulator wind models are generally used to provide longitudinal and vertical wind components to achieve the windshear recovery training objectives, this data can also be used to build baseline gusty crosswind profiles by simply realigning the direction and adjusting the variability of the wind models. Furthermore, the WT A contains additional "complex" wind models with varying crosswind components which can also be adjusted for use during takeoff roll wind encounters. These baseline wind models, combined with subjective tuning of the models for the desired characteristics (taking positive action to avoid runway departure during the takeoff roll), should be sufficient to achieve the required training objectives. This methodology for tuning representative wind models from the WT A has been used very successfully for a number of years to qualify FSTDs for windshear training. The Qualification, Service, and Use of Crewmembers and Aircraft Dispatchers Supplemental Notice of Proposed Rulemaking (SNPRM) proposes to require part 121 operators to train in gusty wind scenarios, including crosswinds with gusts (76 FR 29335). The FAA reviewed the comments submitted to the SNPRM and the final rule is in executive review. We will consider requiring this training for additional rule parts in the future if they become cost justified. I will keep the Board informed of the FAA's progress on these recommendations and provide an update by September 30, 2014.
Response: We are encouraged that, although the supplemental notice of proposed rulemaking you described would affect only Part 121 operators, the FAA plans to consider similar training for other operators as well, if the cost of such training can be justified. Pending completion of both the training profile and the recommended requirement for Parts 121, 135, and 91K operators, Safety Recommendation A-10-111 remains classified “Open—Acceptable Response.”
Response: -From Michael P. Huerta, Acting Administrator: Since our October 14, 2010, letter, the Federal Aviation Administration (FAA) has reviewed the existing wind data available. The FAA believes that adequate data is available in the public domain (e.g . in the publicly available Windshear Training Aid, available through the National Technical Information Service) to enable the development of realistic. Gusty crosswind profiles by simulator operators that are tailored to their particular training program requirements. Combined with subjective assessment and tuning with a competent subject matter expert pilot, the FAA believes such crosswind profiles should be adequate to accomplish the intended training objectives. While some simulators are programmed for gusty crosswind profiles, it is not a minimum requirement for Flight Simulator Training Device (FSTD) qualification in part 60. The FAA intends to define such minimum requirements in a proposed change to part 60. A part 60 application for rulemaking was approved by the FAA Rulemaking Council on November 1, 2011, to address this and other FSTD technical qualification requirements. A Rulemaking Action Plan for part 60 was approved by the FAA Rulemaking Council on May 1, 2012. In accordance with this rulemaking action plan, we anticipate publishing a notice of proposed rulemaking for part 60 in 2013. To require operators training under part 121 to train in gusty wind scenarios, the Qualification, Service, and Use of Crew members and Aircraft Dispatchers Supplemental Notice of Proposed Rulemaking (SNPRM), published for public comment on May 20, 2011, includes crosswinds with gusts as a training element. The comment period for the SNPRM originally closed on July 19, 2011, but was extended to September 19, 2011. We are still reviewing comments received to the SNPRM, and anticipate publishing a final rule in late 201 3. The FAA will consider requiring this training for additional rule parts if they become cost justified. We believe these rules will be responsive to the intent of these recommendations. I will keep the Board informed of the FAA's progress on these recommendations and will provide an update by September 30, 2013.
Response: The FAA indicated that flight simulators have the technical capability, correct programming, and data input to handle wind profiles with gusts, and the agency plans to work with the aviation industry to develop methods to collect and use data to create wind profiles that include gusts. Accordingly, pending completion of the recommended actions, Safety Recommendations A-10-110 and -111 are classified OPEN—ACCEPTABLE RESPONSE.
Response: Notation 8106A: The National Transportation Safety Board (NTSB) has reviewed the Federal Aviation Administration's (FAA) supplemental notice of proposed rulemaking (SNPRM) titled "Qualification, Service, and Use of Crewmembers and Aircraft Dispatchers," published at 76 Federal Register 29336-29526 on May 20, 2011. The notice proposes to amend the regulations for flight and cabin crewmember and aircraft dispatcher training programs in domestic, flag, and supplemental operations. The proposed regulations are intended to contribute significantly to reducing aviation accidents by requiring the use of flight simulation training devices (FSTD) for flight crewmembers and including additional training and evaluation requirements for all crewmembers and aircraft dispatchers in areas that are critical to safety. The proposal also reorganizes and revises the qualification, training, and evaluation requirements. The SNPRM is based on the FAA's review of comments submitted in response to the January 12, 2009, notice of proposed rulemaking (NPRM) on these issues and its determination that the NPRM did not adequately address or clarify some topics; it is also based on provisions of the Airline Safety and Federal Aviation Administration Extension Act of 2010. The NTSB did not find any provisions in the proposed training subjects that would address training for high gusty crosswinds. The NTSB believes this rulemaking to be appropriate for the subjects and urges the FAA to include them.
Response: CC#201000393: - From J. Randolph Babbitt, Administrator: Current simulators do allow for training profiles that include wind gusts if the wind data are available and the simulator software is programmed for it. The FAA will work with industry to determine how sample wind data could be collected and the feasibility of using that data for the development of wind profiles that include gusts.