[Federal Register Volume 84, Number 188 (Friday, September 27, 2019)]
[Notices]
[Pages 51222-51225]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-20986]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration


Notice of Submission Deadline for Schedule Information for 
Chicago O'Hare International Airport, John F. Kennedy International 
Airport, Los Angeles International Airport, and San Francisco 
International Airport for the Summer 2020 Scheduling Season

AGENCY: Federal Aviation Administration (FAA), Department of 
Transportation.

ACTION: Notice of submission deadline.

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SUMMARY: Under this notice, the FAA announces the submission deadline 
of October 3, 2019, for Summer 2020 flight schedules at Chicago O'Hare 
International Airport (ORD), John F. Kennedy International Airport 
(JFK), Los Angeles International Airport (LAX), and San Francisco 
International Airport (SFO). The deadline coincides with the schedule 
submission deadline for the International Air Transport Association 
(IATA) Slot Conference for the Summer 2020 scheduling season.

DATES: Schedules must be submitted no later than October 3, 2019.

ADDRESSES: Schedules may be submitted by mail to the Slot 
Administration Office, AGC-200, Office of the Chief Counsel, 800 
Independence Avenue SW, Washington, DC 20591; facsimile: 202-267-7277; 
or by email to: 7-AWA-slotadmin@faa.gov.

FOR FURTHER INFORMATION CONTACT: Al Meilus, Manager (Acting), Slot 
Administration, AJR-G, Federal Aviation Administration, 800 
Independence Avenue SW, Washington, DC 20591; telephone (202) 267-2822; 
email Al.Meilus@faa.gov.

SUPPLEMENTARY INFORMATION: This document provides routine notice to 
carriers serving capacity-constrained airports in the United States.

General Information for All Airports

    The FAA has designated LAX, ORD, and SFO as IATA Level 2 airports 
\1\ and JFK as an IATA Level 3 airport consistent with the Worldwide 
Slot Guidelines (WSG).\2\ The FAA currently limits scheduled operations 
at JFK by

[[Page 51223]]

order that expires on October 24, 2020.\3\ The FAA has also designated 
Newark Liberty International Airport (EWR) as a Level 2 airport and 
intends to issue a separate schedule submission notice for EWR for the 
Summer 2020 season.
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    \1\ These designations remain effective until the FAA announces 
a change in the Federal Register. The FAA suspended Level 2 schedule 
review at ORD on a trial basis for the Winter 2019/2020 scheduling 
season only. 84 FR 18630 (May 1, 2019).
    \2\ The FAA applies the WSG to the extent there is no conflict 
with U.S. law or regulation. The FAA is reviewing recent substantive 
amendments to the WSG adopted in version 10 and considering whether 
to implement certain changes in the U.S.
    \3\ Operating Limitations at John F. Kennedy International 
Airport, 73 FR 3510 (Jan. 18, 2008), as amended 83 FR 46865 (Sep. 
17, 2018). The slot coordination parameters for JFK are set forth in 
this Order.
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    The FAA is primarily concerned about scheduled and other regularly 
conducted commercial operations during peak hours, but carriers may 
submit schedule plans for the entire day. The peak hours for the Summer 
2020 scheduling season are: At LAX and SFO from 0600 to 2300 Pacific 
Time (1300 to 0600 UTC), at ORD from 0600 to 2100 Central Time (1100 to 
0200 UTC), and at JFK from 0600 to 2300 Eastern Time (1000 to 0300 
UTC). These hours are unchanged from previous scheduling seasons. 
Carriers should submit schedule information in sufficient detail 
including, at minimum, the marketing or operating carrier, flight 
number, scheduled time of operation, frequency, aircraft equipment, and 
effective dates. IATA standard schedule information format and data 
elements for communications at Level 2 and Level 3 airports in the IATA 
Standard Schedules Information Manual (SSIM) Chapter 6 may be used. The 
WSG provides additional information on schedule submissions at Level 2 
and Level 3 airports.
    The U.S. summer scheduling season is from March 29, 2020, through 
October 24, 2020, in recognition of the IATA northern Summer scheduling 
period.
    As stated in the WSG, schedule facilitation at a Level 2 airport is 
based on the following: (1) Schedule adjustments are mutually agreed 
upon between the airlines and the facilitator; (2) the intent is to 
avoid exceeding the airport's coordination parameters; (3) the concepts 
of historic precedence and series of slots do not apply at Level 2 
airports; although WSG recommends giving priority to approved services 
that plan to operate unchanged from the previous equivalent season at 
Level 2 airports, and (4) the facilitator should adjust the smallest 
number of flights by the least amount of time necessary to avoid 
exceeding the airport's coordination parameters. Consistent with the 
WSG, the success of Level 2 in the U.S. depends on the voluntary 
cooperation of all carriers.
    The FAA considers several factors and priorities as it reviews 
schedule and slot requests at Level 2 and Level 3 airports, which are 
consistent with the WSG, including--historic slots or services from the 
previous equivalent season over new demand for the same timings, 
services that are unchanged over services that plan to change time or 
other capacity relevant parameters, introduction of year-round 
services, effective period of operation, regularly planned operations 
over ad hoc operations, and other operational factors that may limit a 
carrier's timing flexibility. In addition to applying these priorities 
from the WSG, the U.S. Government has adopted a number of measures and 
procedures to promote competition and new entry at U.S. slot controlled 
and schedule facilitated airports.
    At Level 2 airports, the FAA seeks to improve communications with 
carriers and terminal schedule facilitators on potential runway 
schedule issues or terminal and gate issues that may affect the runway 
times. The FAA also seeks to reduce the time that carriers consider 
proposed offers on schedules. Retaining open offers for extended 
periods of time may delay the facilitation process for the airport. 
Reducing this delay is particularly important to allow the FAA to make 
informed decisions at airports where operations in some hours are at or 
near the scheduling limits. The agency recognizes that there are 
circumstances that may require some schedules to remain open. However, 
the FAA expects to substantially complete the review process on initial 
submissions each scheduling season within 30 days of the end of the 
Slot Conference. After this time, the agency would confirm the 
acceptance of proposed offers, as applicable, or issue a denial of 
schedule requests.
    Slot management in the U.S. differs in some respect from procedures 
in other countries. In the United States, the FAA is responsible for 
facilitation and coordination of runway access for takeoffs and 
landings at Level 2 and Level 3 airports; however, the airport 
authority or its designee is responsible for facilitation and 
coordination of terminal/gate/airport facility access. The process with 
the individual airports for terminal access and other airport services 
is separate from, and in addition to, the FAA schedule review based on 
runway capacity. Approval from the FAA for runway availability and the 
airport authority for airport facility availability is necessary before 
implementing schedule plans. Carriers seeking terminal approval should 
contact the schedule facilitator for that airport.
    Generally, the FAA uses average hourly runway capacity throughput 
for airports and performance metrics in its schedule review at Level 2 
airports and determining the scheduling limits at Level 3 airports 
included in FAA rules or orders.\4\ The FAA also considers other 
factors that can affect operations, such as capacity changes due to 
runway, taxiway, or other airport construction, air traffic control 
procedural changes, airport surface operations, and historical or 
projected flight delays and congestion.
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    \4\ The FAA typically determines an airport's average adjusted 
runway capacity or typical throughput for Level 2 airports by 
reviewing hourly data on the arrival and departure rates that air 
traffic control indicates could be accepted for that hour, commonly 
known as ``called'' rates. The FAA also reviews the actual number of 
arrivals and departures that operated in the same hour. Generally, 
the FAA uses the higher of the two numbers, called or actual, for 
identifying trends and schedule review purposes. Some dates are 
excluded from analysis, such as during periods when extended airport 
closures or construction could affect capacity.
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    Finally, the FAA notes that the schedule information submitted by 
carriers to the FAA may be subject to disclosure under the Freedom of 
Information Act (FOIA). The WSG also provides for release of 
information at certain stages of slot coordination and schedule 
facilitation. In general, once it acts on a schedule submission or slot 
request, the FAA may release information on slot allocation or similar 
slot transactions or schedule information reviewed as part of the 
schedule facilitation process. The FAA does not expect that practice to 
change and most slot and schedule information would not be exempt from 
release under FOIA. The FAA recognizes that some carriers may submit 
information on schedule plans that is both customarily and actually 
treated as private. Carriers that submit such confidential schedule 
information should clearly mark the information as ``PROPIN''. The FAA 
will take the necessary steps to protect properly designated 
information to the extent allowable by law.

Level 2, FAA Designation Review

    In the previous Notice of Submission Deadline published for the 
Winter 2019/2020 scheduling season, the FAA advised it was reviewing 
the Level 2 runway designations at LAX, ORD, and SFO to determine if 
the designations at these airports continue to be necessary for future 
scheduling seasons and announced a suspension on a trial basis of the 
Level 2 runway designation at ORD for Winter 2019/2020 schedules.\5\

[[Page 51224]]

The FAA also indicated it would engage with the airport operators, 
carriers, and other stakeholders to determine whether the FAA 
designation provides substantive benefits to the traveling public by 
reducing potential runway congestion and delay. The FAA reiterates that 
its review at LAX, ORD, and SFO was for runway purposes only as the 
separate airport facility designations are made by the local airport 
operator.
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    \5\ Notice of Submission Deadline for Schedule Information for 
John F. Kennedy International Airport, Los Angeles International 
Airport, Newark Liberty International Airport, and San Francisco 
International Airport for the Winter 2019/2020 Scheduling Season; 
Suspension of Level 2 at Chicago O'Hare International Airport, 84 FR 
18630 (May 1, 2019).
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    The FAA held discussions with the airport operators of LAX, ORD, 
and SFO as well as various airlines serving the airports to obtain 
their views on whether Level 2 remains appropriate and whether the 
FAA's advance review of scheduled demand can yield improved 
performance. The FAA discussed the Level 2 review with airlines and 
airport operators in meetings at the 144th IATA Slot Conference, the 
domestic slot conference hosted by Airlines for America, as well as 
other individual meetings. No formal written comments were received. 
The FAA reviewed air traffic operations and constraints, performance 
metrics, and airport/airfield construction plans at the individual 
airports that might impact airport operations or capacity. The Air 
Traffic Organization and other FAA offices also regularly meet with 
stakeholders on national and local levels to address operational issues 
and ways to improve efficiency.
    The FAA has determined that a Level 2 designation for LAX, ORD, and 
SFO remains appropriate at this time and these designations will remain 
in effect until the FAA announces a change in the Federal Register. The 
results of the FAA review for the individual airports are discussed 
below. The FAA will continue to monitor operations and demand at the 
airports and regularly consult with the airport operators and 
stakeholders to determine if a level change is warranted in the future.

LAX

    LAX was designated Level 2 in 2015 based on multiple runway 
construction projects that were planned through 2018.\6\ Since that 
time, other runway and taxiway have been planned by the Los Angeles 
World Airports (LAWA), including a closure of Runway 7R/25L during 
parts of the Winter 2020/2021 and Summer 2021 scheduling seasons, and 
construction of taxiway exits on Runways 6L/24R and 6R/24L in the 
planning stages for 2022.
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    \6\ Notice of Submission Deadline for Schedule Information for 
Los Angeles International Airport for the Summer 2015 Scheduling 
Season, 80 FR 12253 (Mar. 6, 2015).
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    The FAA reviewed the recent scheduled demand at LAX, the typical 
airport arrival and departure rates with four available runways, how 
runway capacity was impacted with the series of runway construction 
projects since 2015, and the anticipated impacts when Runway 7R/25L 
closes for construction. Surface operations at LAX present a 
challenging air traffic operational environment with limited movement 
and holding areas, multiple taxiway and runway restrictions based on 
aircraft types and operating characteristics, and limitations due to 
the distance between the north runways. The airfield construction over 
the last few years and continuing with current and upcoming taxiway and 
terminal construction increases the operational complexity for runway 
configuration and surface movements.
    Stakeholders did not have strong views on whether the FAA's 
schedule review is needed in the long term as LAWA is also actively 
managing gates and terminal access for international passenger flights, 
has relocated terminals and gates for multiple airlines to improve 
efficiency and better match airport facilities with airline operations, 
and recently deployed surface management tools. Stakeholders 
acknowledged LAWA efforts and some international operators viewed 
LAWA's schedule facilitation for terminal access as sufficient. Some 
airlines expressed concern that the airport has been under construction 
for significant portions of the past several years with ongoing taxiway 
and terminal construction and this has increased delays and operational 
challenges. Some expressed concern that it may not be appropriate to 
change the airport level and that it should be considered after the 
next runway closure and major construction projects are done. Some 
airlines indicated that they wanted to grow their operations at LAX in 
the future and the airport could benefit from Level 2 to help prevent 
delays through facilitation of voluntary schedule adjustments while 
others were concerned that under Level 2 they might not be able to 
operate at their preferred times. The airlines generally indicated 
there is minimal burden associated with providing schedules noting that 
they were already providing information to the airport for terminal 
planning purposes or that providing information to the FAA was largely 
an automated process. Airlines noted that providing schedule 
information to the FAA before it is final and, in many cases, before it 
is publicly available, allows the FAA to identify periods of potential 
congestion. Several airlines stated that if changes were needed to 
avoid or reduce delays, they would rather know as early as possible in 
the planning process when it is easier to adjust schedules.
    The FAA has determined that Level 2 at LAX remains appropriate 
given the airport demand and the potential capacity impacts and 
anticipated operational impacts from the upcoming airport construction. 
The aircraft fleet mix includes a significant percentage of heavy 
aircraft that require additional spacing in the air and specific 
routings or other limitations on the surface. Multiple airlines operate 
at LAX as a hub airport or focus city and plan schedules independently. 
There are periods when scheduled demand is relatively high such as the 
morning and evening hours and excessive demand has the potential to 
increase air traffic delays. The schedule facilitation and cooperation 
by airlines to voluntarily make necessary schedule changes would 
continue to provide an opportunity to manage scheduled demand during 
upcoming construction.

ORD

    The FAA designated ORD as Level 2 in 2008 to allow for a smoother 
transition as slot control under Level 3 was phased out with the 
opening of a new runway in November 2008.\7\ The FAA concluded that 
Level 2 was necessary to facilitate the scheduling of operations so 
that the airport would not suffer from periods of overscheduling as it 
adjusts to new capacity and as modernization plans continued.
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    \7\ Notice of Submission Deadline for Schedule Information for 
O'Hare International, John F. Kennedy International, and Newark 
Liberty International Airport for the Summer 2009 Scheduling Season, 
73 FR 54659 (Sep. 22, 2008).
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    While it conducted its review of the ORD Level 2 designation, the 
FAA suspended the runway schedule review on a trial basis for the 
Winter 2019/2020 scheduling season noting that demand is typically 
within the airport's runway capacity. This suspension was for Winter 
2019/2020 only and does not change the designation for any other 
scheduling season unless a subsequent change is announced. The FAA also 
indicated it would publish the findings of its broad review of the ORD 
Level 2 designation in the notice for the Summer 2020 scheduling 
season. The FAA noted when it announced the trial suspension that it 
was not aware of any major schedule or hub structure changes planned 
for the Winter 2019/2020 season and none are apparent based on 
currently published schedules. The FAA will continue to monitor 
schedules

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and operational data to assess if there are significant impacts or 
other issues related to the trial suspension that might inform future 
decisions.
    The City of Chicago is continuing plans to improve the airport's 
throughput, efficiency, and terminal access. New construction of Runway 
9C/27C is expected to continue through 2020. An extension of Runway 9R 
by about 3,000 feet and shortening of Runway 27L by about 300 feet and 
Terminal 5 expansion are in progress. Both projects are expected to 
continue into late 2021. Various taxiway construction projects are 
underway or planned for the next few years. Some of these projects, 
especially runway closures, impact capacity while others such as 
taxiway and terminal construction may limit surface movements and 
options for holding aircraft, or increase operational complexity in the 
short term. There is currently Level 2 schedule facilitation for 
Terminal 5 and the terminal is constrained at peak times.
    Several airlines and the airport operator expressed support for 
continuation of Level 2 to address potential congestion issues over the 
next few years. Many of the statements made by airlines summarized in 
the LAX section of this Notice on submitting schedules for review, 
including a preference for early notice of adjustments, were also 
expressed with regard to ORD. No airlines expressed a preference for a 
change to Level 1 in the near term. Additionally, the FAA notes that 
ORD is uniquely situated as one of the few airports in the U.S. that is 
a major hub for two airlines, each of which has a substantial portion 
of the total operations at the airport. Currently, there is a degree of 
separation between the arrival and departure banks of the hub airlines 
that limits schedule peaking. There have been occasions when one or 
both airlines have changed schedule banks and overlapped schedules 
causing demand to exceed capacity. The resulting in delays and flight 
cancellations impacted ORD and other airports in the National Airspace 
System (NAS). The FAA worked with airlines to revise schedules. Until 
the changes were effective, there was significant impact to the 
operation and disruption to airline networks and passengers. The FAA 
finds that given ORD's demand and the importance of the airport to the 
NAS, the Level 2 process provides an opportunity to try to work with 
airlines to voluntarily adjust schedules before they take effect and 
reduce potential delays.

SFO

    The FAA designated SFO as Level 2 effective in 2012 as a result of 
low on-time performance relative to other airports, expected growth in 
scheduled demand, and runway construction.\8\ Separately, the airport 
also had planned runway construction after the Level 2 designation was 
effective, which contributed to congestion. Today, the airport 
continues to have high demand in certain hours even with Level 2 and is 
limited in some cases by gate availability during peak hours. SFO 
continues to be one of the more delay-prone airports in the U.S. Since 
2012, operations at SFO have increased about 10%, and the proportion of 
flights delayed has increased about one percentage point.\9\
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    \8\ Submission Deadline for Schedule Information for San 
Francisco International Airport for the Summer 2012 Scheduling 
Season, 76 FR 64163 (Oct. 17, 2011).
    \9\ Source: OPSNET data based on 12-month rolling averages.
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    Stakeholders generally expressed support for retaining the Level 2 
designation to help facilitate the movement of scheduled flights into 
less congested periods. Operationally, surface constraints limit 
holding and staging areas for aircraft and demand for gates remains 
high. Terminal 1 construction is underway and expected to be completed 
in 2022. SFO facilitates international passenger flights under the 
Level 2 process, which is complementary to the FAA runway review. As 
with LAX and ORD, airlines generally favored retaining the FAA's Level 
2 designation. Some opined that SFO's runway layout limits the airport 
capacity, especially in adverse weather conditions, and the delays and 
performance strongly support continuing efforts under Level 2 to manage 
schedules and reduce delays. The FAA finds that the Level 2 process 
should be retained at SFO in order to facilitate voluntary schedule 
adjustments in an effort to reduce potential delay associated with 
growing scheduled demand.

    Issued in Washington, DC, on September 24, 2019.
Michael C. Artist,
Vice President, System Operations Services.
[FR Doc. 2019-20986 Filed 9-26-19; 8:45 am]
 BILLING CODE 4910-13-P


