Source: https://www.federalregister.gov/articles/2014/06/25/2014-14948/interpretation-of-the-special-rule-for-model-aircraft
Timestamp: 2016-05-01 15:34:34
Document Index: 78454961

Matched Legal Cases: ['§ 91', 'art 91', 'art 91', '§ 91', 'art 73', '§ 91', 'art 73']

Federal Register | Interpretation of the Special Rule for Model Aircraft
Comments Close: 07/25/2014
Action: Notice of interpretation with request for comment.
-36176 (6 pages)
Document Number: 2014-14948
Shorter URL: https://federalregister.gov/a/2014-14948 Regulations.gov Docket Info
Availability of This Interpretation Back to Top
Discussion of the Interpretation Back to Top
I. Background of FAA Oversight of Model Aircraft Operations Back to Top
Historically, the FAA has considered model aircraft to be aircraft that fall within the statutory and regulatory definitions of an aircraft, as they are contrivances or devices that are “invented, used, or designed to navigate, or fly in, the air.”See 49 U.S.C. 40102 and 14 CFR 1.1. As aircraft, these devices generally are subject to FAA oversight and enforcement. However, consistent with FAA's enforcement philosophy, FAA's oversight of model aircraft has been guided by the risk that these operations present. The FAA first recognized in 1981 that “model aircraft can at times pose a hazard to full-scale aircraft in flight and to persons and property on the surface,” and recommended a set of voluntary operating standards for model aircraft operators to follow to mitigate these safety risks. See Advisory Circular 91-57, Model Aircraft Operating Standards (June 9, 1981). These operating standards included restricting operations over populated areas, limiting use of the devices around spectators until after the devices had been flight tested and proven airworthy; restricting operations to 400 feet above the surface; requiring that the devices give right of way to, and avoid flying near manned aircraft, and using observers to assist in operations.
These guidelines were further clarified in 2007, when the FAA issued a policy statement regarding unmanned aircraft systems (UAS) operations in the NAS. See 72 FR 6689 (Feb. 13, 2007). In this policy statement, the FAA also recognized that UAS fall within the statutory and regulatory definition of “aircraft” as they are devices that are “used or [are] intended to be used for flight in the air with no onboard pilot.”Id.; see also 49 U.S.C. 40102; 14 CFR 1.1. The FAA noted that they can be “as simple as a remotely controlled model aircraft used for recreational purposes or as complex as surveillance aircraft flying over hostile areas in warfare.” The FAA then stated its current policy regarding UAS based on the following three categories: (1) UAS used as public aircraft; (2) UAS used as civil aircraft; and (3) UAS used as model aircraft.
II. Requirements To Qualify as a Model Aircraft Under the FAA Modernization and Reform Act of 2012 (Pub. L. 112-95, Section 336) Back to Top
By definition, a model aircraft must be “flown within visual line of sight of the person operating the aircraft.” Public Law 112-95, section 336(c)(2).
Based on the plain language of the statute, the FAA interprets this requirement to mean that: (1) The aircraft must be visible at all times to the operator; (2) that the operator must use his or her own natural vision (which includes vision corrected by standard eyeglasses or contact lenses) to observe the aircraft; and (3) people other than the operator may not be used in lieu of the operator for maintaining visual line of sight. Under the criteria above, visual line of sight would mean that the operator has an unobstructed view of the model aircraft. To ensure that the operator has the best view of the aircraft, the statutory requirement would preclude the use of vision-enhancing devices, such as binoculars, night vision goggles, powered vision magnifying devices, and goggles designed to provide a “first-person view” from the model.
The statute requires model aircraft to be flown strictly for hobby or recreational purposes. Because the statute and its legislative history do not elaborate on the intended meaning of “hobby or recreational purposes,” we look to their ordinary meaning and also the FAA's previous interpretations to understand the direction provided by Congress.
A definition of “hobby” is a “pursuit outside one's regular occupation engaged in especially for relaxation.” Merriam-Webster Dictionary, available at www.merriam-webster.com (last accessed June 9, 2014). A definition of recreation is “refreshment of strength and spirits after work; a means of refreshment or diversion.”Id. These uses are consistent with the FAA's 2007 policy on model aircraft in which the Agency stated model aircraft operating guidelines did not apply to “persons or companies for business purposes.”See 72 FR at 6690.
Operationsthat meet the section 336 definition of “model aircraft” must also meet the five additional criteria for model aircraft established in section 336(a) to be exempt from future rulemaking regarding model aircraft. These criteria, with the exception of the hobby and recreation standard that was previously addressed, are explained below.
of an airport to notify the airport operator and control tower, where applicable, prior to operating. 10
If the model aircraft operator provides notice of forthcoming operations which are then not authorized by air traffic or objected to by the airport operator, the FAA expects the model aircraft operator will not conduct the proposed flights. The FAA would consider flying model aircraft over the objections of FAA air traffic or airport operators to be endangering the safety of the NAS. Additionally, we note that following this 5-mile notification procedure would be read in conjunction with FAA rules governing airspace usage discussed below.
III. Scope of FAA's Enforcement Authority Back to Top
Through this language, Congress specifically recognized the FAA's existing authority to take enforcement action to protect the safety of the NAS.
Moreover, it did not limit the FAA's authority to take enforcement action where a violation of a regulation results in the endangerment of the NAS. As demonstrated by the FAA's statutory and regulatory authorities, our charge to protect the safety of the NAS is not only intended to protect users of the airspace, but is also intended to protect persons and property on the ground.
For example, the FAA regulates low-altitude operations to protect people and property on the ground. The FAA permits aircraft operations below 500 feet when flown over open water and in sparsely populated areas. 14 CFR 91.119(c). Such operations may not be conducted “closer than 500 feet to any person, vessel, vehicle, or structure.”Id. Therefore, although such low-altitude operations may pose a lower risk to aircraft flying much higher, the operation may still pose a risk to persons and property on the ground warranting enforcement action when conducted unsafely. See, e.g., Adm'r v. Kachalsky, NTSB Order No. EA-4847, 2000 WL 1072332 (July 24, 2000) (affirming a violation of § 91.119(c) for operating within 500 feet of a dwelling in a sparsely populated area); Adm'r v. Beissel, NTSB Docket No. SE-19436, 2013 WL 7809754 (Dec. 11, 2014) (ordering suspension of a pilot certificate when pilot flew a helicopter less than 40 feet above the surface of a lake).
IV. Examples of Regulations That Apply to Model Aircraft Back to Top
The FAA could apply several regulations in part 91 when determining whether to take enforcement action against a model aircraft operator for endangering the NAS. The FAA's general operating and flight rules are housed in part 91 of the FAA's regulations. These rules are the baseline rules that apply to all aircraft operated in the United States with limited exceptions,
Rules governing operations in designated airspace are found in §§ 91.126 through 91.135. In general, those rules establish requirements for operating in the various classes of airspace, and near airports in non-designated airspace to minimize risk of collision in higher traffic airspace. Generally, if an operator is unable to comply with the regulatory requirements for operating in a particular class of airspace, the operator would need authorization from air traffic control to operate in that area. See, e.g., 14 CFR 91.127(a), 91.129(a). Operations within restricted areas designated in part 73 would be prohibited without permission from the using or controlling agency. Accordingly, as part of the requirements for model aircraft operations within 5 miles of an airport set forth in section 336(a)(4) of Public Law 112-95, the FAA would expect modelers operating model aircraft in airspace covered by §§ 91.126 through 91.135 and part 73 to obtain authorization from air traffic control prior to operating.
5. A commercial operator is a “person, who, for compensation or hire, engages in the carriage by aircraft in air commerce of persons or property. . . .”See 14 CFR 1.1. The FAA would therefore not consider a commercial operation to be “flown strictly for hobby or recreation purposes” because it would be conducted for compensation or hire.
12. The NAS is broadly described as “the common network of U.S. airspace; air navigation facilities, equipment and services, airports or landing areas; aeronautical charts, information and services; rules, regulations and procedures, technical information, and manpower and material. Included are system components shared jointly with the military.”See FAA Aeronautical Information Manual (Apr. 3, 2014), available at http://www.faa.gov/air_traffic/publications/media/AIM_Basic_4-03-14.pdf.