[Federal Register Volume 86, Number 119 (Thursday, June 24, 2021)]
[Rules and Regulations]
[Pages 33112-33116]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-13097]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2020-0680; Project Identifier 2020-NM-079-AD; Amendment 
39-21598; AD 2021-12-11]
RIN 2120-AA64


Airworthiness Directives; The Boeing Company Airplanes

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Final rule.

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SUMMARY: The FAA is superseding Airworthiness Directive (AD) 2016-25-
29, which applied to certain The Boeing Company Model 767-200 and -300 
series airplanes. AD 2016-25-29 required replacing the cargo 
compartment insulation blankets on the left and right sides with new 
insulation blankets that incorporate fire stops. This AD was prompted 
by a report of a fire in the bilge area of the cargo compartment that 
burned through the insulation blankets that were intended to prevent 
smoke from migrating behind the cargo compartment sidewall liners and 
upward into the main cabin. This AD continues to require the actions in 
AD 2016-25-29 for certain airplanes. This AD also adds airplanes to the 
applicability and requires a general visual inspection of the 
replacement insulation blankets to determine if the blankets are in 
serviceable condition and correctly installed, and applicable on-
condition actions. For certain airplanes, this AD also requires an 
inspection to determine the insulation blanket part number installed; 
replacement of additional insulation blankets; and applicable on-
condition actions. The FAA is issuing this AD to address the unsafe 
condition on these products.

DATES: This AD is effective July 29, 2021.
    The Director of the Federal Register approved the incorporation by 
reference of a certain publications listed in this AD as of July 29, 
2021.

ADDRESSES: For service information identified in this final rule, 
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 https://www.myboeingfleet.com. 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 
https://www.regulations.gov by searching for and locating Docket No. 
FAA-2020-0680.

Examining the AD Docket

    You may examine the AD docket at https://www.regulations.gov by 
searching for and locating Docket No. FAA-2020-0680; 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

[[Page 33113]]

final rule, any comments received, and other information. The address 
for Docket Operations is U.S. Department of Transportation, Docket 
Operations, M-30, West Building Ground Floor, Room W12-140, 1200 New 
Jersey Avenue SE, Washington, DC 20590.

FOR FURTHER INFORMATION CONTACT: Julie Linn, Aerospace Engineer, Cabin 
Safety and Environmental Systems Section, FAA, Seattle ACO Branch, 2200 
South 216th St., Des Moines, WA 98198; phone and fax: 206-231-3584; 
email: Julie.Linn@faa.gov.

SUPPLEMENTARY INFORMATION:

Background

    The FAA issued a notice of proposed rulemaking (NPRM) to amend 14 
CFR part 39 to supersede AD 2016-25-29, Amendment 39-18755 (81 FR 
94956, December 27, 2016) (AD 2016-25-29). AD 2016-25-29 applied to 
certain The Boeing Company Model 767-200 and -300 series airplanes, and 
required replacing the cargo compartment insulation blankets on the 
left and right sides with new insulation blankets that incorporate fire 
stops. The NPRM published in the Federal Register on August 10, 2020 
(85 FR 48122). The NPRM was prompted by a report of a fire in the bilge 
area of the cargo compartment that burned through the insulation 
blankets that were intended to prevent smoke from migrating behind the 
cargo compartment sidewall liners and upward into the main cabin. In 
the NPRM, the FAA proposed to continue to require the actions in AD 
2016-25-29 for certain airplanes. The NPRM also proposed to add 
airplanes to the applicability and proposed to require a general visual 
inspection of the replacement insulation blankets to determine if the 
blankets are in serviceable condition and correctly installed, and 
applicable on-condition actions. For certain airplanes, the NPRM also 
proposed to require an inspection to determine the insulation blanket 
part number installed; replacement of additional insulation blankets; 
and applicable on-condition actions. The FAA is issuing this AD to 
address a fire in the bilge area of the cargo compartment, which if not 
contained could lead to a possible smoke and fire event in the 
passenger compartment.

Discussion of Final Airworthiness Directive

Comments

    The FAA received comments from three commenters, including Aviation 
Partners Boeing, Delta Air Lines (DAL), and United Airlines (UAL). The 
following presents the comments received on the NPRM and the FAA's 
response to each comment.

Effect of Winglets on Accomplishment of the Proposed Actions

    Aviation Partners Boeing stated that the installation of winglets 
per Supplemental Type Certificate (STC) ST01920SE does not affect the 
accomplishment of the manufacturer's service instructions.
    The FAA agrees with the commenter that STC ST01920SE does not 
affect the accomplishment of the manufacturer's service instructions. 
Therefore, the installation of STC ST01920SE does not affect the 
ability to accomplish the actions required by this AD. The FAA has not 
changed this AD in this regard.

Request To Delay Rule Pending Revised Referenced Service Information

    UAL concurs with the NPRM and requested that the FAA delay issuance 
of the final rule until the referenced Illustrated Parts Catalog (IPC) 
and airplane maintenance manual (AMM) specified in Boeing Service 
Bulletin 767-25-0550, Revision 1, dated December 4, 2019, are revised 
to ensure continued airworthiness and safety. UAL stated that the 
referenced service information will provide proper documentation 
support to maintain the insulation blanket changes specified in Boeing 
Service Bulletin 767-25-0550, Revision 1, dated December 4, 2019, prior 
to the release of the final rule. UAL also commented that the revised 
referenced service information can mitigate incorrect repairs and 
blanket installation, and minimize future alternative methods of 
compliance (AMOC) requests.
    The FAA disagrees with delaying the final rule. Since the 
publication of the NPRM, the operator's existing IPC and AMM have been 
revised and provide accurate part numbers and corrective action 
procedures for missing insulation blankets. In addition, an operator 
unable to accomplish the actions in this AD for any reason may request 
approval of an AMOC under the provisions of paragraph (i)(1) of this 
AD, if sufficient data are submitted to substantiate that the change 
would provide an acceptable level of safety. The FAA has not changed 
this AD in this regard.

Request To Identify Proper Insulation Blankets

    UAL expressed concern about the post-compliance maintenance 
configuration using Boeing Service Bulletin 767-25-0550, Revision 1, 
dated December 4, 2019, in the absence of a revised Boeing 767 IPC 
(i.e., Boeing 767 IPC sections 25-21-05; 25-52-03; 25-52-52; 25-52-62; 
25-55-01) to identify the proper insulation blankets with integrated 
fire stops. UAL described disagreements in the service information for 
the identity of the insulation blanket installations and corresponding 
part numbers in the aft and forward cargo compartment of post-
modification airplanes and missing insulation blankets from certain 
appendixes and figures. UAL stated that it is essential to identify 
post-service bulletin configurations in certain Boeing 767 IPCs to 
ensure that AD compliance is maintained and to avoid inadvertent 
demodification by maintenance technicians. UAL commented that the 
configuration control for the airplane is the IPC, which maintenance 
technicians use for proper part replacement, and would alert 
maintenance personnel of insulation blankets having the integrated fire 
stops to ensure continued airworthiness.
    As the FAA stated previously, since the NPRM was issued, relevant 
sections of the IPC have been revised. The operator's existing IPC 
contains the accurate part numbers and corrects missing insulation 
blankets. For clarification, the part numbers for the insulation 
blankets specified in Boeing Special Attention Service Bulletin 767-25-
0550, dated January 15, 2015, and Boeing Special Attention Service 
Bulletin 767-25-0550, Revision 1, dated December 4, 2019, are 
acceptable for installation; the new part numbers requires less work to 
install. The FAA has revised paragraph (h)(4) of this AD accordingly.
    In addition, Boeing found that the insulation blankets at certain 
locations were not affected by the integrated fire stop issue that are 
addressed in Boeing Special Attention Service Bulletin 767-25-0550, 
Revision 1, dated December 4, 2019. Therefore, these insulation 
blankets were removed from Boeing Special Attention Service Bulletin 
767-25-0550, Revision 1, dated December 4, 2019. Boeing Special 
Attention Service Bulletin 767-25-0550, Revision 1, dated December 4, 
2019, includes work to re-inspect the installation of the insulation 
blankets that were installed in Boeing Special Attention Service 
Bulletin 767-25-0550, dated January 15, 2015. Since those insulation 
blankets that are not affected by the fire stop issue were removed from 
Boeing Special Attention Service Bulletin 767-25-0550, Revision 1, 
dated December 4, 2019, there is no need for instructions in Revision 1 
to inspect the work that was performed in Boeing Special Attention 
Service Bulletin 767-25-0550, dated January 15, 2015. The FAA has not 
changed this AD in this regard.

[[Page 33114]]

Request To Correct the Date of the Service Information

    UAL commented that, in the toolbox on https://www.myboeingfleet.com, there are two versions of Boeing Special 
Attention Service Bulletin 767-25-0550, Revision 1: One version is 
dated December 4, 2019, and one version is dated December 5, 2019. UAL 
also commented that the header of the toolbox states that Boeing 
Special Attention Service Bulletin 767-25-0550, Revision 1, dated 
December 4, 2019, is not the current version. UAL stated that the 
proper service information date needs to be addressed in the NPRM.
    The FAA has confirmed that the correct date of the service 
information is December 4, 2019, and that there is currently only one 
version of the service information cited on https://www.myboeingfleet.com. The FAA has not changed this AD in this regard.

Request for Correct Figure Reference

    DAL commented that figure 42-A of Boeing Special Attention Service 
Bulletin 767-25-0550, Revision 1, dated December 4, 2019, refers to 
item 4 between stations 434 through 456, but it should be item 3. DAL 
stated this citation has been confirmed by Boeing in Service Request 3-
4634446605.
    The FAA agrees that the correct reference for figure 42-A between 
stations 434 through 456 of Boeing Special Attention Service Bulletin 
767-25-0550, Revision 1, dated December 4, 2019, is item 3. In 
addition, figure 42 is a RC step. The FAA has added paragraph (h)(2) of 
this AD to identify the correct item number.

Request To Correct Insulation Blanket Location

    DAL commented that in figure 51 of Boeing Special Attention Service 
Bulletin 767-25-0550, Revision 1, dated December 4, 2019, there should 
be an insulation blanket depicted between station (STA) 1395 and STA 
1417. DAL also commented that appendixes D, E, F, G, H, and I of Boeing 
Special Attention Service Bulletin 767-25-0550, Revision 1, dated 
December 4, 2019, show the insulation blanket part numbers between STA 
1395 and STA 1417. DAL reported that Boeing confirmed that the 
insulation blanket was missing from that figure.
    The FAA agrees with the commenter's statement. The FAA has added 
paragraph (h)(3) of this AD to specify that Boeing Special Attention 
Service Bulletin 767-25-0550, Revision 1, dated December 4, 2019, 
figures 49, 50, and 51, between STA 1395 and STA 1417, should indicate 
that an insulation blanket is installed.

Request To Allow Stoppage Options Due to the Pandemic

    For airplanes that have been in mass parking due to the worldwide 
pandemic, DAL requested clock stoppage options such as those offered to 
operators by the manufacturer for scheduled maintenance program tasks. 
DAL stated that this request is for airplanes that meet the following 
conditions:
     Airplanes that are currently undergoing storage, or 
airplanes that will enter storage during the compliance time of the 
proposed AD.
     Airplanes that were preserved with instructions in close 
reference to the AMM procedures.
    DAL also commented that an airplane in a preserved state does not 
experience the following risk factors that are taken into consideration 
for the proposed AD:
     Passenger Safety: The newly installed insulation blankets 
are meant to prevent smoke from migrating behind the cargo compartment 
sidewall liners and upward into the main cabin, where it could affect 
passengers. If the airplane does not have passengers during the time in 
which it is preserved, there is no increased risk to the public.
     Potential fire in the cargo compartments: Since the 
airplane is not in operation, there is no cargo being stored in the 
cargo compartments, meaning it is highly unlikely that there will be a 
fire initiated to cause smoke.
    In addition, DAL asserted that the safety risk associated with the 
inferior insulation blankets installed on the airplane is either a 
small consideration or not a consideration at all in the calculation of 
overall fleet risk because the concern is not with degradation of 
insulation blanket material, or any other factor in which an increase 
in compliance time would increase the risk.
    The FAA disagrees with having stoppage options due to the unsafe 
condition. In developing an appropriate compliance time, the FAA 
considered the safety implications, parts availability, and normal 
maintenance schedules for timely accomplishment of the actions in this 
AD. Further, the FAA arrived at the proposed compliance time with 
Boeing's concurrence. It is difficult to plan for every possible 
storage scenario, and currently, the FAA does not have procedures that 
would address every possible scenario to ensure that all airplanes will 
be addressed in a timely manner once the airplanes are back in service. 
If an operator is unable to accomplish the actions in this AD for 
whatever reason or has the airplane in storage, it may request approval 
of an AMOC under the provisions of paragraph (i)(1) of this AD, if 
sufficient data are submitted to substantiate that the change would 
provide an acceptable level of safety. The FAA has not changed this AD 
in this regard.

Conclusion

    The FAA reviewed the relevant data, considered any comments 
received, and determined that air safety requires adopting this AD as 
proposed. Except for minor editorial changes, and any other changes 
described previously, this AD is adopted as proposed in the NPRM. None 
of the changes will increase the economic burden on any operator.

Related Service Information Under 1 CFR Part 51

    The FAA reviewed Boeing Special Attention Service Bulletin 767-25-
0550, Revision 1, dated December 4, 2019. The service information 
describes procedures for replacement of cargo compartment insulation 
blankets between stringers 29 and 33, on the left and right sides, with 
new insulation blankets that incorporate fire stops; an inspection to 
determine the insulation blanket part number installed between 
stringers 29 and 33, on the left and right sides; a general visual 
inspection of the replacement insulation blankets between stringers 29 
and 33, on the left and right sides to determine if the insulation 
blankets are in serviceable condition and correctly installed; and 
applicable on-condition actions. On-condition actions include repair, 
replacement, and correction of insulation blanket installations. 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 ADDRESSES.

Costs of Compliance

    The FAA estimates that this AD affects 329 airplanes of U.S. 
registry. The FAA estimates the following costs to comply with this AD:

[[Page 33115]]



                                      Estimated Costs for Required Actions
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                                                                                                 Cost on U.S.
             Action                    Labor cost         Parts cost      Cost per product        operators
----------------------------------------------------------------------------------------------------------------
Replacement (retained actions     Up to 54 work-hours           (\*\)   Up to $4,590.......  Up to $1,510,110.
 from AD 2016[dash]25[dash]29).    x $85 per hour =
                                   Up to $4,590.
Inspections and replacements      Up to 62 work-hour    Up to $35,900   Up to $41,170......  Up to $13,944,530.
 (new proposed action).            x $85 per hour =
                                   Up to $5,270.
----------------------------------------------------------------------------------------------------------------
* The FAA has received no definitive data that would enable providing parts cost estimates for the retained
  actions specified in this AD.

    The FAA has received no definitive data that would enable us to 
provide cost estimates for the on-condition actions specified in this 
AD.
    According to the manufacturer, some of the costs of this AD may be 
covered under warranty, thereby reducing the cost impact on affected 
operators. The FAA does not control warranty coverage for affected 
operators. As a result, the FAA has included all available costs in our 
cost estimate.

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

    This AD will not have federalism implications under Executive Order 
13132. This AD will 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 this AD:
    (1) Is not a ``significant regulatory action'' under Executive 
Order 12866,
    (2) Will not affect intrastate aviation in Alaska, and
    (3) Will 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 Amendment

    Accordingly, under the authority delegated to me by the 
Administrator, the FAA amends 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) 2016-25-29, Amendment 39-18755 
(81 FR 94956, December 27, 2016); and
0
b. Adding the following new AD:

2021-12-11 The Boeing Company: Amendment 39-21598; Docket No. FAA-
2020-0680; Project Identifier 2020-NM-079-AD.

(a) Effective Date

    This airworthiness directive (AD) is effective July 29, 2021.

(b) Affected ADs

    This AD replaces AD 2016-25-29, Amendment 39-18755 (81 FR 94956, 
December 27, 2016) (AD 2016-25-29).

(c) Applicability

    This AD applies to The Boeing Company Model 767-200, -300, -
300F, and -400ER series airplanes, certificated in any category, as 
identified in Boeing Special Attention Service Bulletin 767-25-0550, 
Revision 1, dated December 4, 2019.

(d) Subject

    Air Transport Association (ATA) of America Code 25, Equipment/
furnishings.

(e) Unsafe Condition

    This AD was prompted by a report of a fire in the bilge area of 
the cargo compartment that burned through the insulation blankets 
that were intended to prevent smoke from migrating behind the cargo 
compartment sidewall liners and upward into the main cabin. The FAA 
is issuing this AD to address a fire in the bilge area of the cargo 
compartment, which if not contained could lead to a possible smoke 
and fire event in the passenger compartment.

(f) Compliance

    Comply with this AD within the compliance times specified, 
unless already done.

(g) Required Actions

    Except as specified by paragraph (h) of this AD: At the 
applicable times specified in paragraph 1.E., ``Compliance,'' of 
Boeing Special Attention Service Bulletin 767-25-0550, Revision 1, 
dated December 4, 2019, do all applicable actions identified as 
``RC'' (required for compliance) in, and in accordance with, the 
Accomplishment Instructions of Boeing Special Attention Service 
Bulletin 767-25-0550, Revision 1, dated December 4, 2019.

(h) Exceptions and Clarifications to Service Information Specifications

    (1) Where Boeing Special Attention Service Bulletin 767-25-0550, 
Revision 1, dated December 4, 2019, uses the phrase ``the Revision 1 
date of this service bulletin,'' this AD requires using ``the 
effective date of this AD.''
    (2) Where Figure 42-A of Boeing Special Attention Service 
Bulletin 767-25-0550, Revision 1, dated December 4, 2019, identifies 
item 4 between stations 434 through 456, the correct item between 
stations 434 through 456 is item 3.
    (3) Figures 49, 50, and 51 of Boeing Special Attention Service 
Bulletin 767-25-0550, Revision 1, dated December 4, 2019, are 
missing the depiction of an insulation blanket, and an installation 
blanket must be installed between station (STA) 1395 and 1417.
    (4) The part numbers for the insulation blankets specified in 
Boeing Special Attention Service Bulletin 767-25-0550, dated January 
15, 2015, and Boeing Special Attention Service Bulletin 767-25-0550, 
Revision 1, dated December 4, 2019, are acceptable for installation; 
the new part numbers specified in Boeing Special Attention Service 
Bulletin 767-25-0550, Revision 1, dated December 4, 2019, require 
less work to install.

(i) 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

[[Page 33116]]

principal inspector or local Flight Standards District Office, as 
appropriate. If sending information directly to the manager of the 
certification office, send it to the attention of the person 
identified in paragraph (j) of this AD. Information may be emailed 
to: 9-ANM-Seattle-ACO-AMOC-Requests@faa.gov.
    (2) Before using any approved AMOC, notify your appropriate 
principal inspector, or lacking a principal inspector, the manager 
of the local flight standards district office/certificate holding 
district 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 previously for AD 2016-25-29 are approved as 
AMOCs for the corresponding provisions of Boeing Special Attention 
Service Bulletin 767-25-0550, Revision 1, dated December 4, 2019, 
that are required by paragraph (g) of this AD.
    (5) For service information that contains steps that are labeled 
as Required for Compliance (RC), the provisions of paragraphs 
(i)(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.

(j) Related Information

    For more information about this AD, contact Julie Linn, 
Aerospace Engineer, Cabin Safety and Environmental Systems Section, 
FAA, Seattle ACO Branch, 2200 South 216th St., Des Moines, WA 98198; 
phone and fax: 206-231-3584; email: Julie.Linn@faa.gov.

(k) Material Incorporated by Reference

    (1) The Director of the Federal Register approved the 
incorporation by reference (IBR) of the service information listed 
in this paragraph under 5 U.S.C. 552(a) and 1 CFR part 51.
    (2) You must use this service information as applicable to do 
the actions required by this AD, unless the AD specifies otherwise.
    (i) Boeing Special Attention Service Bulletin 767-25-0550, 
Revision 1, dated December 4, 2019.
    (ii) [Reserved]
    (3) 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 https://www.myboeingfleet.com.
    (4) 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.
    (5) You may view this service information that is incorporated 
by reference at the National Archives and Records Administration 
(NARA). For information on the availability of this material at 
NARA, email fedreg.legal@nara.gov, or go to: https://www.archives.gov/federal-register/cfr/ibr-locations.html.

    Issued on June 3, 2021.
Gaetano A. Sciortino,
Deputy Director for Strategic Initiatives, Compliance & Airworthiness 
Division, Aircraft Certification Service.
[FR Doc. 2021-13097 Filed 6-23-21; 8:45 am]
BILLING CODE 4910-13-P


