[Federal Register Volume 88, Number 95 (Wednesday, May 17, 2023)]
[Notices]
[Pages 31593-31597]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-10448]


-----------------------------------------------------------------------

DEPARTMENT OF TRANSPORTATION

[Docket No. DOT-OST-2023-0079]


Request for Information on Advanced Air Mobility

AGENCY: Office of the Secretary, DOT.

ACTION: Notice and request for information.

-----------------------------------------------------------------------

SUMMARY: The Department of Transportation (DOT) is seeking public input 
on the development of a national strategy on Advanced Air Mobility as 
required by the Advanced Air Mobility Coordination and Leadership Act. 
DOT has formed a team composed of multiple executive agencies that is 
seeking input on a variety of topics as outlined below.

DATES: Respondents are invited to submit comments no later than July 
17, 2023.

ADDRESSES: You may submit responses and other comments identified by 
``RFI Response: Advanced Air Mobility'' and Docket No. DOT-OST-2023-
0079, by any of the following methods:
     Federal Rulemaking Portal: https://www.regulations.gov. 
Follow the instructions for submitting comments.
     Email: [email protected]. Include ``RFI Response: 
Advanced Air Mobility'' and Docket No. DOT-OST-2023-0079 in the subject 
line of the email.
     Mail/Hand Delivery/Courier: Docket Operations Office, U.S. 
Department of Transportation, 1200 New Jersey Ave. SE, West Building 
Room W12-140, Washington, DC 20590, between 9 a.m. and 5 p.m. Monday 
through Friday, except on Federal holidays. Include ``RFI Response: 
Advanced Air Mobility'' and Docket No. DOT-OST-2023-0079 on the cover 
page of the submission. Because paper mail in the Washington, DC, area 
is subject to delay, commenters are strongly encouraged to submit 
comments electronically.
    Any submissions received after the deadline may not be accepted or 
considered.
    Instructions: DOT encourages the early submission of comments. All 
submissions should include the docket number for this request for 
information. All comments received will be posted without change to 
https://www.regulations.gov. All comments, including attachments and 
other supporting material, will become part of the public record and 
subject to public disclosure. Comments generally will not be edited to 
remove any identifying or contact information.
    Confidential Business Information (CBI): CBI is commercial or 
financial information that is 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 in 
response to this RFI 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 RFI, it is important that 
you clearly designate the submitted comments as CBI. Please mark each 
page of your submission containing CBI as ``PROPIN'' to indicate that 
it contains proprietary information. DOT will treat such marked 
submissions as confidential under FOIA and not place them in the public 
docket of this RFI. Submissions containing CBI should be sent to the 
name and physical or email address listed below.

FOR FURTHER INFORMATION CONTACT: Lauralyn Jean Remo Temprosa, Associate 
Director, Office of Aviation Analysis, Office of the Secretary, U.S. 
Department of Transportation, 1200 New Jersey Avenue SE, West Building 
Room W86-310, Washington, DC 20590. [email protected], (202) 
366-5903.

SUPPLEMENTARY INFORMATION: 

I. Background

    Advanced Air Mobility (AAM) is an emerging field in which novel 
aircraft currently in design and testing could provide new levels of 
accessibility, convenience, and connectivity for people and cargo--and 
thus transform

[[Page 31594]]

our nation's transportation system to provide enhanced mobility for the 
traveling and shipping public. AAM aircraft--typically incorporating 
electric and hybrid-electric propulsion with vertical or short takeoff 
and landing capability--could greatly expand the reach and efficiency 
of current transportation networks by providing, among other things, 
shuttle services between airports and downtown locations, more dynamic 
and affordable medical evacuation and emergency response, rapid 
transportation of goods between cargo terminals and job sites, and on-
demand air services between regions without existing rapid, reliable 
transportation links.
    Provided that governments and industry work effectively together to 
deliver affordable and inclusive services to a broad range of the 
traveling and shipping public, the prospective benefits of this new and 
transformative technology could be significant,\1\ including expansion 
of existing aviation services nationwide, reduction in carbon emissions 
versus current forms of transportation, improved safety and simplicity 
of maintenance and operations of aircraft, new jobs and career fields 
in advanced technology, and reduced noise impacts versus traditional 
aviation. However, as with any new technology, AAM also introduces a 
series of challenges affecting multiple government and non-government 
stakeholders, such as ensuring the continued safety and security of the 
airspace, the security of aviation networks, fully understanding and 
developing infrastructure requirements, and ensuring input from local 
communities. The rapid emergence of AAM is already challenging existing 
regulations and practices of all Federal departments and agencies that 
are responsible for aviation, communications, defense and security, 
global affairs, and infrastructure development.
---------------------------------------------------------------------------

    \1\ See for example, this private industry assessment: https://nexacapital.com/reports-and-commentary.
---------------------------------------------------------------------------

    In October 2022 Congress passed, and the President signed, the 
``Advanced Air Mobility Coordination and Leadership Act'' \2\ (``the 
Act''), which requires the Department of Transportation to form an 
interagency working group (IWG) to develop a national AAM strategy by 
2024. The purpose of the strategy is to ensure the Federal government, 
in partnership with State, local, and Tribal entities, is ready to work 
with and oversee the AAM industry, including developing new 
transportation options, amplifying economic activity and jobs, 
advancing environmental sustainability and new technologies, and 
supporting emergency preparedness and American competitiveness so that 
the United States continues to lead the world in aviation into the 21st 
century.\3\
---------------------------------------------------------------------------

    \2\ See Advanced Air Mobility Coordination and Leadership Act, 
Public Law 117-203, accessible at https://www.congress.gov/bill/117th-congress/senate-bill/516/text.
    \3\ Sec. 2(b) of the Act.
---------------------------------------------------------------------------

    The DOT established and is leading IWG as outlined in the Act. 
Safety is the highest priority of the DOT and the Federal Aviation 
Administration (FAA). Currently, DOT and FAA are working to develop and 
communicate to the public its regulatory concept of operations to 
safely enable AAM operations. AAM operations will typically start as 
piloted flights using traditional air traffic control procedures and 
existing regulatory structures. However, more ubiquitous and economical 
AAM operations are expected to require development of new technologies, 
procedures, and regulations that incorporate highly automated, 
unpiloted aircraft flying at lower altitudes with smaller areas of 
separation than in current operating environments. Given the importance 
of safety and security to the success of a future AAM system, the DOT 
requests comments on safety challenges and related subjects in response 
to this RFI. The DOT seeks comments specifically addressing public 
acceptance of AAM operations and the appropriate means of public 
engagement necessary to enable AAM operations in the future. The FAA 
will also continue to share information with industry and stakeholders 
to produce and iterate upon an AAM Concept of Operations for the 
national airspace. The AAM IWG will produce a comprehensive national 
strategy with a focus on interagency, multi-modal, global leadership, 
and intergovernmental cooperation issues, with the objective of 
identifying challenges that must be overcome by federal agencies for a 
successful AAM system to develop in the United States.
    For general awareness, the IWG has created subgroups with more 
specific sets of responsibilities and issues to explore:
    Automation Strategy, led by the National Aeronautics and Space 
Administration (NASA): Focused on understanding the acceleration of the 
desired transition from initial AAM operations with conventionally 
qualified, onboard pilots through advanced capabilities proposed by the 
AAM industry, such as simplified vehicle operations, remotely piloted 
operations, autonomous operations, and remotely supervised flight 
operations. This group is considering automation strategy with a 
comprehensive view related to vehicle, airspace, and enabling 
communication, navigation, and surveillance (CNS) capabilities to 
enable various automation/autonomy stages.
    Security Requirements, led by the Transportation Security 
Administration (TSA): Focused on resolving security concerns related to 
the introduction and expansion of AAM operations into the existing 
interconnected transportation domain, preventing the errant or 
malicious use of AAM systems, and identifying and mitigating potential 
security risks to AAM aircraft, operations, ground support systems, and 
other critical infrastructure.
    Air Traffic Federation, led by the FAA: Focused on identifying the 
requirements and operations management needed to ensure continued 
safety of the national airspace system (NAS).
    Infrastructure Development, led by the Federal Communications 
Commission and the FAA: Focused on understanding the aviation 
facilities needed to support AAM operations, including ground 
infrastructure; services, including emergency services; accessibility 
and competition; telecommunications; weather observation and 
prediction; utility resources; maintenance of vertiports; sensory 
systems needed for communications, navigation, and surveillance; and 
multimodal compatibility.
    Community Roles, led by NASA and the FAA: Focused on understanding 
the need for good public planning for these new technologies and issues 
such as land governance, transportation equity and accessibility, 
economic impacts, environmental issues, and workforce development.
    The IWG is aware that a national strategy for AAM may describe 
programs or plans that affect the equities of other aviation 
stakeholders and business models, including drone operators, who may 
use portions of the same airspace and may be undertaking some similar 
missions, such as transportation of cargo. While the Act focuses on 
AAM, the IWG welcomes comments from drone stakeholders insofar as a 
national AAM strategy should be aligned to achieve positive and 
consistent outcomes for all users of the national airspace. Section 
2(d) of the Act requires the IWG to coordinate with a variety of 
external stakeholders including: \4\ AAM manufacturers,

[[Page 31595]]

commercial air carriers, potential AAM operators, labor 
representatives, state and local governments, and others.
---------------------------------------------------------------------------

    \4\ See Public Law 117-203.
---------------------------------------------------------------------------

II. Request for Information

    The DOT, working with its federal interagency partners, wishes to 
hear from the public and any stakeholders on the critical issues of 
importance in drafting a national AAM strategy. DOT will share and 
discuss this information with the other federal agencies participating 
in the IWG. Respondents may provide information for any topic or 
question below. There is no requirement to address any particular issue 
or question. Through this RFI, DOT primarily seeks information 
regarding:
     what should be addressed in the AAM national strategy,
     what respondents believe are existing barriers to success 
of AAM implementation; and
     what steps should the Federal Government focus on in the 
short (2-3 years), medium (4-8 years), and long term (8+ years) in 
order to maximize the potential for successful AAM implementation in 
the United States. Commenters may wish to identify specific steps for 
specific federal agencies.
    Comments on ongoing rulemaking actions at DOT or other federal 
agencies should be made to those respective dockets. This request for 
information will support the AAM IWG's high-level efforts to draft a 
national AAM strategy.
    In addition to the above, DOT welcomes further and more detailed 
input on all subjects outlined in Section 2(e) of the Act,\5\ as well 
as the more specific subjects listed below. The topics below were 
identified by the AAM IWG subgroups as important, although many of 
them, such as cybersecurity, overlap between more than one subgroup.
---------------------------------------------------------------------------

    \5\ Sec. 2(e) Review and Examination. Not later than 1 year 
after the working group is established under subsection (a), the 
working group shall complete a review and examination of, at a 
minimum--(1) the steps that will mature AAM aircraft operations, 
concepts, and regulatory frameworks beyond initial operations; (2) 
the air traffic management and safety concepts that might be 
considered as part of evolving AAM to higher levels of traffic 
density; (3) current Federal programs and policies that could be 
leveraged to advance the maturation of the AAM industry; (4) 
infrastructure, including aviation, cybersecurity, 
telecommunication, multimodal, and utility infrastructure, necessary 
to accommodate and support expanded operations of AAM after initial 
implementation; (5) steps needed to ensure a robust and secure 
domestic supply chain; (6) anticipated benefits associated with AAM 
aircraft operations, including economic, environmental, emergency 
and natural disaster response, and transportation benefits; (7) the 
interests, roles, and responsibilities of Federal, State, local, and 
Tribal governments affected by AAM aircraft operations; and (8) 
other factors that may limit the full potential of the AAM industry, 
including community acceptance or restrictions of such operations.
---------------------------------------------------------------------------

    1. Most Likely Use Cases: Descriptions of the most likely use cases 
for AAM in the short, medium, and long term along with high-level 
estimations of when these use cases may come to market. Also, what 
government actions could enhance or inhibit those market timelines? Are 
there use cases that are a national priority? Please include 
descriptions of the operating areas, other transportation options 
available in the operating area, the supporting infrastructure for the 
conceptual ecosystem, and the roles and expected involvement that 
private industry as well as the federal, state, local, tribal, and 
territorial governments would have in AAM integration.
    2. Safety Enhancements: Understanding that safety must be the key 
component of any future AAM operations, provide information on how new 
concepts in aviation, such as third-party service providers, 
automation, and new forms of navigation-enabling infrastructure, 
provide for, or even enhance, the level of safety of operations.
    3. Expected Customer Experience: Information about AAM regarding 
scheduling and ticketing a flight, arrival at a vertiport, passenger 
and baggage screening, flights boarding, and flight and postflight 
experience. This information should include procedures passengers 
should expect to encounter prior to boarding; assistance available for 
passengers (either on board the aircraft or on the ground); how 
passengers communicate problems in the cabin; expected levels of 
comfort in terms of vibration, transition phases (in/out of hover), 
cabin noise, heat ventilation and air conditioning air quality; how 
stowage of cargo is achieved including essential items such as 
wheelchairs; and divisions of responsibility between vertiport and 
operations personnel. Any comments specific to cargo or other types of 
AAM operations are also welcome.
    4. Research, Development, and Testing Environment: Information 
about the current status, accessibility, and adequacy of policies and 
institutions to promote research and development that enable a world-
class AAM industry in the United States. Please comment on the adequacy 
and suitability of existing, congressionally directed test sites. The 
AAM IWG is also interested in the processes for enabling testing of 
these technologies and systems, and suggested expansions or 
improvements of testing locations, platforms, or other suggestions to 
better enable testing of emerging aviation technologies and highly 
automated systems. As part of the comprehensive testing options, the 
AAM IWG is interested in understanding simulation, demonstrations, and 
validation capabilities that must be available to conduct demonstration 
and validation activities to accelerate maturity.
    5. Statutory and Regulatory Scheme: Information about specific 
statutes, federal regulations, or other legal authorities that could be 
created or updated to support AAM in the United States and maintain the 
regulatory agility necessary to safely enable this new form of 
transportation.
    6. Role of State, Local, Tribal, and Territorial Governments: 
Information about the role that state, local, tribal, and territorial 
governments should play in enabling AAM in the United States.
    7. Anticipated Power Requirements: Information about the 
anticipated demand on power grids by AAM, the ability of municipal 
power grids to accommodate this anticipated demand, and improvements or 
investments in power infrastructure needed to enable such operations. 
This also includes information on how AAM could generally assist in 
achieving long-term energy sustainability and efficiency goals, such as 
using alternative forms of energy for propulsion (e.g., hydrogen), and 
the infrastructure requirements that would accompany these alternative 
power structures.
    8. Supply Chain: Information about existing or planned supply chain 
requirements for current AAM manufacture, including traceability of 
components and potential vulnerabilities in the event of possible 
international supply chain disruptions such as what occurred during the 
COVID pandemic. To ensure that the AAM industry at large will be 
supported in the entire life cycle without causing undue security risks 
and ensuring U.S. competitiveness, the original equipment manufacturers 
(OEMs) as well as suppliers, are encouraged to provide inputs related 
to the challenges and gaps they may experience in future AAM supply 
chains. This includes supply chain challenges related to the entire 
life cycle, from mining, materials, processing, manufacturing 
capabilities, and limited/few suppliers. In particular, dependencies on 
foreign entities that could cause security risks must be clearly 
understood.
    9. Privacy: Information about the technologies, data systems, 
software, or other products that can be used in conjunction with 
emerging technologies that potentially impact the privacy of the 
public.

[[Page 31596]]

    10. Workforce Development: Information about the knowledge, skills, 
and abilities needed in the working population to accelerate AAM in the 
United States, including federal labor policies that could assist or 
expand the populations available to support the AAM industry. What can 
federal agencies do, working together, to build a skilled labor force 
in the United States to support the growth of this industry? This 
inquiry also includes information about educational pathways and 
training programs necessary to produce a workforce competent to 
operate, manage, fix, improve, and regulate emerging aviation 
technologies, associated infrastructure, and underlying policies.
    11. Global Leadership and International Practices: Information 
about the steps that the United States needs to take to become a 
durable global leader in AAM and safe automated technologies, from 
establishing regulatory standards and practices that will enable the 
industry to safely develop the engagements necessary that support 
international AAM services in North America and beyond. In addition, 
the AAM IWG seeks information about the impact of foreign government 
approaches to regulate emerging airspace technologies, including 
recommended practices the U.S. government should consider adopting as 
well as practices the U.S. government should avoid.
    12. National Security and Aviation Security Implications: 
Information about the national security implications of accelerating 
AAM in the United States, specifically how physical security of 
passengers and cargo should be addressed and who should bear 
responsibility for security assurances, security and system resilience, 
and what threats exist in considering the growth of counter-drone 
capabilities that will operate in similar low-altitude airspace. 
Information on these and other security issues should include the dual-
use nature of any emerging airspace technologies and any opportunities 
or vulnerabilities created by emerging technologies and associated risk 
mitigation recommendations.
    13. Vertiport Development and Operations: Information about the 
expected role of governments and private industries at all levels as to 
the development, funding, and operation of vertiports. The term 
``vertiport'' in this capacity is meant to describe a range of 
specialty landing, boarding, and takeoff areas designed for AAM 
operations, including single-operation vertiports, vertiports 
integrated into existing airports and heliports today, as well as 
sprawling, multi-operation, multi-purpose, and multi-transportation 
option vertiports that act as commercial and transportation hubs. The 
AAM IWG seeks information on whether system planning similar to the 
National Plan of Integrated Airport Systems \6\ should exist for 
vertiports, and what level of coordination is required for effective 
vertiport planning and use.
---------------------------------------------------------------------------

    \6\ Accessible at https://www.faa.gov/airports/planning_capacity/npias.
---------------------------------------------------------------------------

    14. Electromagnetic Spectrum: Information on the electromagnetic 
spectrum and telecommunications infrastructure needs of piloted and 
autonomous AAM applications in the near, medium, and long term, 
including what spectrum-using applications (e.g. communications, 
navigation, radar, command and control, payload, telemetry, or others) 
should be considered necessary components of an AAM ecosystem and what 
the state of development of such applications is in the near, medium, 
and long term; what spectrum bands are being considered or tested to 
support such applications; any specific spectral characteristics needed 
to support various AAM applications (e.g. bandwidth, propagation 
characteristics, and reliability); network infrastructure deployment 
scenarios under development for functions such as command and control; 
network architecture needed for local/regional/nationwide flights; 
additional systems or capacities needed; forecasting of expected demand 
in the near, medium, and long-term for frequencies; risks associated 
with integrating AAM into existing navigation, communication, and other 
systems; and any statutory, legal or policy changes related to 
electromagnetic spectrum use that would facilitate AAM.
    15. System Resilience: Information about how the AAM industry plans 
to secure critical systems by integrating cybersecurity and identifying 
critical systems in the design of overall architecture of the sector as 
it evolves. Furthermore, include what tools are available or must be 
developed to identify critical AAM systems and ensure that those 
systems have the necessary measures in place to identify, detect, and 
mitigate potential software intrusions. The government also seeks 
information about how overall transportation system resilience will be 
affected by AAM.
    16. Environmental Impacts and Public Involvement. Information 
regarding the reasonably foreseeable environmental benefits and costs 
of integrating AAM operations into the U.S. airspace and broader 
transportation system, including the application of any standard 
methodologies to identify, investigate, and evaluate (either 
qualitatively or quantitatively) potential environmental impacts and 
available mitigation measures. Information regarding opportunities to 
synchronize, sequence, or coordinate applicable permitting/licensing 
and public involvement/consultation requirements or processes across 
Federal, State, local, or Tribal government to minimize duplication and 
improve efficiency and effectiveness.
    17. Alternative Means of Navigation Beyond GPS: Given that these 
vehicles are expected to operate in urban, suburban, and remote places, 
reliable and persistent GPS may not be always available. Additionally, 
AAM are expected to operate in areas where today's radar arrays do not 
or cannot provide service. What are the most efficient, reliable, and 
readily available means to provide communication, navigation, and 
surveillance for AAM in a way that will not disrupt other modes of 
transportation? Please provide thorough information on alternative 
options to ensure continuity of navigation using alternative position, 
navigation, and timing capabilities.
    18. Overall Functional Architecture: Given that AAM is an ecosystem 
consisting of aircraft, airspace, enabling communication, navigation, 
and surveillance technologies, as well as infrastructure, it is 
important to ensure consistency of assumptions about functions and 
requirements from each of these components. Please provide information 
regarding your assumptions about functional capabilities needed for 
infrastructure, communication, navigation, and surveillance 
technologies. This will enable the development of afunctional 
architecture consisting of comprehensive functional requirements and 
their performance, information exchanges, and various assumptions about 
roles and responsibilities.
    19. Automation Standards: Information on needed consensus areas, 
standards, and design guidelines related to automation; critical 
integration challenges with the national airspace system; and data 
needed or available to inform standards, safety tools, and artificial 
intelligence/machine learning enabled systems.
    20. Other Areas of Interest: Respondents are encouraged to identify 
areas that are not directly identified or not adequately expressed for 
which inter-governmental coordination is critical to the success of AAM 
ecosystem.


[[Page 31597]]


    Issued in Washington, DC, on May 11, 2023.
Carlos Monje,
Under Secretary for Policy, Department of Transportation.
[FR Doc. 2023-10448 Filed 5-16-23; 8:45 am]
BILLING CODE 4910-9X-P


