Proposed Rule2022-13743
Airworthiness Directives; The Boeing Company Airplanes
Primary source
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Published
June 29, 2022
Issuing agencies
Transportation DepartmentFederal Aviation Administration
Abstract
The FAA proposes to supersede Airworthiness Directive (AD) 2020-24-04, which applies to all The Boeing Company Model 787-8, 787-9, and 787-10 airplanes. AD 2020-24-04 requires revising the existing airplane flight manual (AFM) to incorporate procedures for an approach with a localizer-based navigation aid, monitoring localizer raw data, calling out any significant deviations, and performing an immediate go around under certain conditions. Since the FAA issued AD 2020-24-04, the manufacturer has developed a modification to address the previously identified unsafe condition. The FAA has also identified a separate unsafe condition where misleading flight director (FD) guidance can be presented to the flightcrew under certain conditions. This proposed AD would continue to require the actions specified in AD 2020-24-04 and would require installing applicable software updates to the flight control module (FCM). Using updated software would terminate the retained AFM requirement in this AD. The FAA is proposing this AD to address the unsafe conditions on these products.
Full Text
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<title>Federal Register, Volume 87 Issue 124 (Wednesday, June 29, 2022)</title>
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[Federal Register Volume 87, Number 124 (Wednesday, June 29, 2022)]
[Proposed Rules]
[Pages 38682-38686]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2022-13743]
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DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
14 CFR Part 39
[Docket No. FAA-2022-0674; Project Identifier AD-2021-00373-T]
RIN 2120-AA64
Airworthiness Directives; The Boeing Company Airplanes
AGENCY: Federal Aviation Administration (FAA), DOT.
ACTION: Notice of proposed rulemaking (NPRM).
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SUMMARY: The FAA proposes to supersede Airworthiness Directive (AD)
2020-24-04, which applies to all The Boeing Company Model 787-8, 787-9,
and 787-10 airplanes. AD 2020-24-04 requires revising the existing
airplane flight manual (AFM) to incorporate
[[Page 38683]]
procedures for an approach with a localizer-based navigation aid,
monitoring localizer raw data, calling out any significant deviations,
and performing an immediate go around under certain conditions. Since
the FAA issued AD 2020-24-04, the manufacturer has developed a
modification to address the previously identified unsafe condition. The
FAA has also identified a separate unsafe condition where misleading
flight director (FD) guidance can be presented to the flightcrew under
certain conditions. This proposed AD would continue to require the
actions specified in AD 2020-24-04 and would require installing
applicable software updates to the flight control module (FCM). Using
updated software would terminate the retained AFM requirement in this
AD. The FAA is proposing this AD to address the unsafe conditions on
these products.
DATES: The FAA must receive comments on this proposed AD by August 15,
2022.
ADDRESSES: You may send comments, using the procedures found in 14 CFR
11.43 and 11.45, by any of the following methods:
<bullet> Federal eRulemaking Portal: Go to <a href="https://www.regulations.gov">https://www.regulations.gov</a>. Follow the instructions for submitting comments.
<bullet> Fax: 202-493-2251.
<bullet> Mail: U.S. Department of Transportation, Docket
Operations, M-30, West Building Ground Floor, Room W12-140, 1200 New
Jersey Avenue SE, Washington, DC 20590.
<bullet> Hand Delivery: Deliver to Mail address above between 9
a.m. and 5 p.m., Monday through Friday, except Federal holidays.
For service information identified in this NPRM, contact Boeing
Commercial Airplanes, Attention: Contractual & Data Services (C&DS),
2600 Westminster Blvd., MC 110-SK57, Seal Beach, CA 90740-5600;
telephone 562-797-1717; internet <a href="https://www.myboeingfleet.com">https://www.myboeingfleet.com</a>. You may
view this service information at the FAA, Airworthiness Products
Section, Operational Safety Branch, 2200 South 216th St., Des Moines,
WA. For information on the availability of this material at the FAA,
call 206-231-3195. It is also available at <a href="https://www.regulations.gov">https://www.regulations.gov</a>
by searching for and locating Docket No. FAA-2022-0674.
Examining the AD Docket
You may examine the AD docket at <a href="https://www.regulations.gov">https://www.regulations.gov</a> by
searching for and locating Docket No. FAA-2022-0674; or in person at
Docket Operations between 9 a.m. and 5 p.m., Monday through Friday,
except Federal holidays. The AD docket contains this NPRM, any comments
received, and other information. The street address for Docket
Operations is listed above.
FOR FURTHER INFORMATION CONTACT: Hassan Ibrahim, Aerospace Engineer,
Systems and Equipment Section, FAA, Seattle ACO Branch, 2200 South
216th St., Des Moines, WA 98198; phone and fax: 206-231-3653; email:
<a href="/cdn-cgi/l/email-protection#4008213333212e6e0d6e0922322128292d002621216e272f36"><span class="__cf_email__" data-cfemail="a2eac3d1d1c3cc8cef8cebc0d0c3cacbcfe2c4c3c38cc5cdd4">[email protected]</span></a>.
SUPPLEMENTARY INFORMATION:
Comments Invited
The FAA invites you to send any written relevant data, views, or
arguments about this proposal. Send your comments to an address listed
under ADDRESSES. Include ``Docket No. FAA-2022-0674; Project Identifier
AD-2021-00373-T'' at the beginning of your comments. The most helpful
comments reference a specific portion of the proposal, explain the
reason for any recommended change, and include supporting data. The FAA
will consider all comments received by the closing date and may amend
the proposal because of those comments.
Except for Confidential Business Information (CBI) as described in
the following paragraph, and other information as described in 14 CFR
11.35, the FAA will post all comments received, without change, to
<a href="https://www.regulations.gov">https://www.regulations.gov</a>, including any personal information you
provide. The agency will also post a report summarizing each
substantive verbal contact received about this proposed AD.
Confidential Business Information
CBI is commercial or financial information that is both customarily
and actually treated as private by its owner. Under the Freedom of
Information Act (FOIA) (5 U.S.C. 552), CBI is exempt from public
disclosure. If your comments responsive to this NPRM contain commercial
or financial information that is customarily treated as private, that
you actually treat as private, and that is relevant or responsive to
this NPRM, it is important that you clearly designate the submitted
comments as CBI. Please mark each page of your submission containing
CBI as ``PROPIN.'' The FAA will treat such marked submissions as
confidential under the FOIA, and they will not be placed in the public
docket of this NPRM. Submissions containing CBI should be sent to
Hassan Ibrahim, Aerospace Engineer, Systems and Equipment Section, FAA,
Seattle ACO Branch, 2200 South 216th St., Des Moines, WA 98198; phone
and fax: 206-231-3653; email: <a href="/cdn-cgi/l/email-protection#327a534141535c1c7f1c7b5040535a5b5f725453531c555d44"><span class="__cf_email__" data-cfemail="ca82abb9b9aba4e487e483a8b8aba2a3a78aacababe4ada5bc">[email protected]</span></a>. Any commentary
that the FAA receives which is not specifically designated as CBI will
be placed in the public docket for this rulemaking.
Background
The FAA issued AD 2020-24-04, Amendment 39-21334 (85 FR 77991,
December 3, 2020; corrected December 14, 2020 (85 FR 80589)) (AD 2020-
24-04); for all The Boeing Company Model 787-8, 787-9, and 787-10
airplanes. AD 2020-24-04 was prompted by reports that the autopilot
flight director system (AFDS) failed to transition to the instrument
landing system localizer (LOC) beam after the consistent localizer
capture (CLC) function in the FCMs initiated a transition to capture
LOC during approach. AD 2020-24-04 requires revising the existing AFM
to incorporate procedures for conducting an approach with a localizer-
based navigation aid, monitoring localizer raw data, calling out any
significant deviations, and performing an immediate go around if the
airplane has not intercepted the final approach course as shown by the
localizer deviation. The agency issued AD 2020-24-04 to address the
AFDS failing to transition, which could result in localizer overshoot
leading to glideslope descent on the wrong heading. Combined with a
lack of flight deck effects for a consistent localizer capture mode
failure, this condition could result in controlled flight into terrain.
Actions Since AD 2020-24-04 Was Issued
The preamble to AD 2020-24-04 explains that the FAA considers the
requirements ``interim action'' and that the manufacturer is developing
a modification to address the unsafe condition. That AD explains that
the FAA might consider further rulemaking if a modification is
developed, approved, and available. Since the FAA issued AD 2020-24-04,
the manufacturer has developed software updates for the FCM, and the
FAA has determined that further rulemaking is indeed necessary; this
proposed AD follows from that determination.
Further, the FAA has since identified a separate unsafe condition
where in certain scenarios, misleading FD guidance can be presented to
the flightcrew during approach. Operators may experience misleading FD
guidance after disengaging the autopilot due to a ``mode fail'' caused
by glideslope beam anomaly during instrument landing system (ILS)
approach and may lead to
[[Page 38684]]
controlled flight into terrain (CFIT) or a runway overrun.
New software developed by Boeing addresses the autopilot logic for
the transition from CLC to LOC during approach. Also, during ILS signal
fluctuations, changes in the new software reduce potential deviation
from desired glidepath, and eliminates the potential for misleading FD
guidance subsequent to autopilot disconnect.
FAA's Determination
The FAA is issuing this NPRM after determining that the unsafe
conditions described previously are likely to exist or develop on other
products of the same type design.
Related Service Information Under 1 CFR Part 51
The FAA reviewed Boeing Alert Requirements Bulletin B787-81205-
SB270053-00 RB, Issue 002, dated May 6, 2021. This service information
specifies procedures for updating flight control electronics (FCE)
software to install common block point (CBP) 5.1 operational program
software (OPS) having part number HNP5A-AL01-5041 in the FCM, and doing
a software configuration check.
Boeing Alert Requirements Bulletin B787-81205-SB270053-00 RB, Issue
002, dated May 6, 2021, specifies prior or concurrent accomplishment of
Boeing Alert Service Bulletin B787-81205-SB270044-00, Issue 003, dated
July 7, 2020; or Boeing Service Bulletin B787-81205-SB270046-00, Issue
002, dated October 24, 2019; as applicable, which specify procedures
for installing FCE software update CBP 5.0.
This service information is reasonably available because the
interested parties have access to it through their normal course of
business or by the means identified in the ADDRESSES section.
Proposed AD Requirements in This NPRM
This proposed AD would retain all requirements of AD 2020-24-04.
This proposed AD would also require accomplishing the actions specified
in the service information described previously. For information on the
procedures and compliance times, see this service information at
<a href="https://www.regulations.gov">https://www.regulations.gov</a> by searching for and locating Docket No.
FAA-2022-0674.
Costs of Compliance
The FAA estimates that this AD, if adopted as proposed, would
affect 214 airplanes of U.S. registry. The FAA estimates the following
costs to comply with this proposed AD:
Estimated Costs *
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Cost per Cost on U.S.
Action Labor cost Parts cost product operators
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Revising the AFM (retained actions from 1 work-hour x $85 per hour $0 $85 $18,190
AD 2020-24-04). = $85.
Updating the software.................. Up to 4 work-hours x $85 (*) * 340 * 72,670
per hour = $340.
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* The table does not include the parts cost for the software.
The FAA has determined that updating the software requires
installing up to 8 software loads, at $300 per load, per operator. For
the parts cost, the FAA has determined that a per-operator estimate is
more accurate than a per-airplane estimate. Therefore, the FAA
estimates the total cost for software to be $2,400 per operator.
The FAA has included all known costs in its cost estimate.
According to the manufacturer, however, some of the costs of this
proposed AD may be covered under warranty, thereby reducing the cost
impact on affected operators.
Authority for This Rulemaking
Title 49 of the United States Code specifies the FAA's authority to
issue rules on aviation safety. Subtitle I, Section 106, describes the
authority of the FAA Administrator. Subtitle VII, Aviation Programs,
describes in more detail the scope of the Agency's authority.
The FAA is issuing this rulemaking under the authority described in
Subtitle VII, Part A, Subpart III, Section 44701, General requirements.
Under that section, Congress charges the FAA with promoting safe flight
of civil aircraft in air commerce by prescribing regulations for
practices, methods, and procedures the Administrator finds necessary
for safety in air commerce. This regulation is within the scope of that
authority because it addresses an unsafe condition that is likely to
exist or develop on products identified in this rulemaking action.
Regulatory Findings
The FAA has determined that this proposed AD would not have
federalism implications under Executive Order 13132. This proposed AD
would not have a substantial direct effect on the States, on the
relationship between the national Government and the States, or on the
distribution of power and responsibilities among the various levels of
government.
For the reasons discussed above, I certify that the proposed
regulation:
(1) Is not a ``significant regulatory action'' under Executive
Order 12866,
(2) Would not affect intrastate aviation in Alaska, and
(3) Would not have a significant economic impact, positive or
negative, on a substantial number of small entities under the criteria
of the Regulatory Flexibility Act.
List of Subjects in 14 CFR Part 39
Air transportation, Aircraft, Aviation safety, Incorporation by
reference, Safety.
The Proposed Amendment
Accordingly, under the authority delegated to me by the
Administrator, the FAA proposes to amend 14 CFR part 39 as follows:
PART 39--AIRWORTHINESS DIRECTIVES
0
1. The authority citation for part 39 continues to read as follows:
Authority: 49 U.S.C. 106(g), 40113, 44701.
Sec. 39.13 [Amended]
0
2. The FAA amends Sec. 39.13 by:
0
a. Removing Airworthiness Directive (AD) 2020-24-04, Amendment 39-21334
(85 FR 77991, December 3, 2020; corrected December 14, 2020 (85 FR
80589)); and
0
b. Adding the following new AD:
The Boeing Company: Docket No. FAA-2022-0674; Project Identifier AD-
2021-00373-T.
(a) Comments Due Date
The FAA must receive comments on this airworthiness directive
(AD) action by August 15, 2022.
[[Page 38685]]
(b) Affected ADs
This AD replaces AD 2020-24-04, Amendment 39-21334 (85 FR 77991,
December 3, 2020; corrected December 14, 2020 (85 FR 80589)) (AD
2020-24-04).
(c) Applicability
This AD applies to all The Boeing Company Model 787-8, 787-9,
and 787-10 airplanes, certificated in any category.
(d) Subject
Air Transport Association (ATA) of America Code 22, Auto flight.
(e) Unsafe Condition
This AD was prompted by reports indicating that the autopilot
flight director system (AFDS) failed to transition to the instrument
landing system localizer (LOC) beam after the consistent localizer
capture function in the flight control modules initiated a
transition to capture LOC during approach. The FAA is issuing this
AD to address the AFDS failing to transition, which could result in
localizer overshoot leading to glideslope descent on the wrong
heading. Combined with a lack of flight deck effects for a
consistent localizer capture mode failure, this condition could
result in a controlled flight into terrain (CFIT) or a runway
overrun. This AD was further prompted by reports of misleading
flight director guidance that in certain scenarios can be presented
to the flightcrew during approach and could lead to CFIT or a runway
overrun.
(f) Compliance
Comply with this AD within the compliance times specified,
unless already done.
(g) Retained Revision of the Existing Airplane Flight Manual (AFM),
With New Terminating Action
This paragraph restates the requirements of paragraph (g) of AD
2020-24-04, with new terminating action. Within 14 days after
December 18, 2020 (the effective date of AD 2020-24-04), revise the
Operating Procedures chapter of the existing AFM and applicable
corresponding operational procedures to incorporate the procedures
specified in figure 1 to paragraph (g) of this AD. Revising the
existing AFM to include the changes specified in paragraph (g) of
this AD may be done by inserting a copy of figure 1 to paragraph (g)
of this AD into the existing AFM. Installing the software required
by paragraph (h) of this AD terminates the requirement for revising
the existing AFM in this paragraph.
[GRAPHIC] [TIFF OMITTED] TP29JN22.000
(h) New Required Actions
For airplanes identified in paragraph A, ``Effectivity,'' of
Boeing Alert Requirements Bulletin B787-81205-SB270053-00 RB, Issue
002, dated May 6, 2021: Except as specified by paragraph (i) of this
AD, at the applicable times specified in the ``Compliance''
paragraph of Boeing Alert Requirements Bulletin B787-81205-SB270053-
00 RB, Issue 002, dated May 6, 2021, do all applicable actions
identified in, and in accordance with, the Accomplishment
Instructions of Boeing Alert Requirements Bulletin B787-81205-
SB270053-00 RB, Issue 002, dated May 6, 2021.
Note 1 to paragraph (h): Guidance for accomplishing the actions
required by paragraph (h) of this AD can be found in Boeing Alert
Service Bulletin B787-81205-SB270053-00, Issue 002, dated May 6,
2021, which is referred to in Boeing Alert Requirements Bulletin
B787-81205-SB270053-00 RB, Issue 002, dated May 6, 2021.
(i) Concurrent Actions
For airplanes identified as Group 1, Configuration 1, and as
Group 2, Configuration 1, in paragraph A, ``Effectivity,'' of Boeing
Alert Requirements Bulletin B787-81205-SB270053-00 RB, Issue 002,
dated May 6, 2021: Prior to or concurrently with accomplishing the
actions required by paragraph (h) of this AD, do all applicable
actions identified as ``RC'' (required for compliance) in, and in
accordance with, the applicable service information identified in
paragraphs (i)(1) and (2) of this AD.
(1) Boeing Alert Service Bulletin B787-81205-SB270044-00, Issue
003, dated July 7, 2020.
(2) Boeing Service Bulletin B787-81205-SB270046-00, Issue 002,
dated October 24, 2019.
(j) Exception to Service Information Specifications
Where the Compliance Time columns of the tables in the
``Compliance'' paragraph of Boeing Alert Requirements Bulletin B787-
81205-SB270053-00 RB, Issue 002, dated May 6, 2021, use the phrase
``the Issue 001 date of Requirements Bulletin B787-81205-SB270053-00
RB,'' this AD requires using ``the effective date of this AD.''
(k) Terminating Action for AFM Revision
Installation of the software update specified in the
Accomplishment Instructions of Boeing Alert Requirements Bulletin
B787-81205-SB270053-00 RB, Issue 002, dated May 6, 2021, terminates
the AFM revision required by paragraph (g) of this AD, and the AFM
revision may be removed, provided that this software update has been
installed on all affected airplanes in an operator's fleet.
(l) Credit for Previous Actions
(1) This paragraph provides credit for the actions specified in
paragraph (h) of this AD, if those actions were performed before the
effective date of this AD using Boeing Alert Requirements Bulletin
B787-81205-SB270053-00 RB, Issue 001, dated February 19, 2021.
(2) This paragraph provides credit for the actions specified in
paragraph (i)(1) of this AD, if those actions were performed before
the effective date of this AD using Boeing Alert Service Bulletin
B787-81205-SB270044-00, Issue 001, dated December 18, 2018; or
Boeing Alert Service Bulletin B787-81205-SB270044-00, Issue 002,
dated November 20, 2019.
(3) This paragraph provides credit for the actions specified in
paragraph (i)(2) of this AD, if those actions were performed before
the effective date of this AD using Boeing Service Bulletin B787-
81205-SB270046-00, Issue 001, dated November 30, 2018.
(m) Alternative Methods of Compliance (AMOCs)
(1) The Manager, Seattle ACO Branch, FAA, has the authority to
approve AMOCs for this AD, if requested using the procedures found
in 14 CFR 39.19. In accordance with 14 CFR 39.19, send your request
to your principal inspector or responsible Flight Standards Office,
as appropriate. If sending information directly to the manager of
the
[[Page 38686]]
certification office, send it to the attention of the person
identified in paragraph (n) of this AD. Information may be emailed
to: <a href="/cdn-cgi/l/email-protection#e7decaa6a9aacab4828693938b82caa6a4a8caa6aaa8a4cab582969282949394a7818686c9808891"><span class="__cf_email__" data-cfemail="192034585754344a7c786d6d757c34585a56345854565a344b7c686c7c6a6d6a597f7878377e766f">[email protected]</span></a>.
(2) Before using any approved AMOC, notify your appropriate
principal inspector, or lacking a principal inspector, the manager
of the responsible Flight Standards Office.
(3) An AMOC that provides an acceptable level of safety may be
used for any repair, modification, or alteration required by this AD
if it is approved by The Boeing Company Organization Designation
Authorization (ODA) that has been authorized by the Manager, Seattle
ACO Branch, FAA, to make those findings. To be approved, the repair
method, modification deviation, or alteration deviation must meet
the certification basis of the airplane, and the approval must
specifically refer to this AD.
(4) AMOCs approved for AD 2020-24-04 are approved as AMOCs for
the corresponding provisions of paragraph (g) of this AD.
(5) Except as specified by paragraph (j) of this AD: For service
information that contains steps that are labeled as Required for
Compliance (RC), the provisions of paragraphs (m)(5)(i) and (ii) of
this AD apply.
(i) The steps labeled as RC, including substeps under an RC step
and any figures identified in an RC step, must be done to comply
with the AD. If a step or substep is labeled ``RC Exempt,'' then the
RC requirement is removed from that step or substep. An AMOC is
required for any deviations to RC steps, including substeps and
identified figures.
(ii) Steps not labeled as RC may be deviated from using accepted
methods in accordance with the operator's maintenance or inspection
program without obtaining approval of an AMOC, provided the RC
steps, including substeps and identified figures, can still be done
as specified, and the airplane can be put back in an airworthy
condition
(n) Related Information
(1) For more information about this AD, contact Hassan Ibrahim,
Aerospace Engineer, Systems and Equipment Section, FAA, Seattle ACO
Branch, 2200 South 216th St., Des Moines, WA 98198; phone and fax:
206-231-3653; email: <a href="/cdn-cgi/l/email-protection#e2aa839191838cccafccab8090838a8b8fa2848383cc858d94"><span class="__cf_email__" data-cfemail="723a130101131c5c3f5c3b1000131a1b1f321413135c151d04">[email protected]</span></a>.
(2) For service information identified in this AD, contact
Boeing Commercial Airplanes, Attention: Contractual & Data Services
(C&DS), 2600 Westminster Blvd., MC 110-SK57, Seal Beach, CA 90740-
5600; telephone 562-797-1717; internet <a href="https://www.myboeingfleet.com">https://www.myboeingfleet.com</a>. You may view this referenced service
information at the FAA, Airworthiness Products Section, Operational
Safety Branch, 2200 South 216th St., Des Moines, WA. For information
on the availability of this material at the FAA, call 206-231-3195.
Issued on June 6, 2022.
Gaetano A. Sciortino,
Deputy Director for Strategic Initiatives, Compliance & Airworthiness
Division, Aircraft Certification Service.
[FR Doc. 2022-13743 Filed 6-28-22; 8:45 am]
BILLING CODE 4910-13-P
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