[Federal Register Volume 88, Number 118 (Wednesday, June 21, 2023)]
[Rules and Regulations]
[Pages 40071-40081]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-13154]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2023-0163; Project Identifier AD-2022-01380-T; 
Amendment 39-22468; AD 2023-12-10]
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) 2022-02-
16, which applied to all The Boeing Company Model 787-8, 787-9, and 
787-10 airplanes. AD 2022-02-16 required revising the limitations and 
operating procedures sections of the existing airplane flight manual 
(AFM) to incorporate limitations prohibiting certain landings and the 
use of certain minimum equipment list (MEL) items, and to incorporate 
operating procedures for calculating landing distances, when in the 
presence of interference from wireless broadband operations in the 3.7-
3.98 GHz frequency band (5G C-Band) as identified by Notices to Air 
Missions (NOTAMs). Since the FAA issued AD 2022-02-16, the FAA 
determined that additional limitations are needed due to the continued 
deployment of new 5G C-Band stations whose signals are expected to 
cover most of the contiguous United States at transmission frequencies 
between 3.7-3.98 GHz. This AD requires revising the limitations section 
of the existing AFM to incorporate limitations prohibiting certain 
landings and the use of certain MEL items, and retains the operating 
procedures from AD 2022-02-16 for calculating landing distances, due to 
the presence of 5G C-Band interference. The FAA is issuing this AD to 
address the unsafe condition on these products.

DATES: This AD is effective June 21, 2023.

ADDRESSES: AD Docket: You may examine the AD docket at regulations.gov 
under Docket No. FAA-2023-0163; 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 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: Brett Portwood, Continued Operational 
Safety Technical Advisor, COS Program Management Section, Operational 
Safety Branch, FAA, 3960 Paramount Boulevard, Lakewood, CA 90712-4137; 
phone: 817-222-5390; email: [email protected].

SUPPLEMENTARY INFORMATION: 

Background

    The FAA issued a notice of proposed rulemaking (NPRM) to amend 14 
CFR part 39 to supersede AD 2022-02-16, Amendment 39-21913 (87 FR 2692, 
January 19, 2022) (AD 2022-02-16). AD 2022-02-16 applied to all The 
Boeing Company (Boeing) Model 787-8, 787-9, and 787-10 airplanes. The 
NPRM published in the Federal Register on May 3, 2023 (88 FR 27716).
    The NPRM was prompted by a determination that radio altimeters 
cannot be relied upon to perform their intended function if they 
experience 5G C-Band interference, and a determination that, during 
landings, as a result of this interference, certain airplane systems 
may not properly transition from AIR to GROUND mode when landing on 
certain runways, resulting in a longer landing distance than normal due 
to the effect on thrust reverser deployment, speedbrake deployment, and 
increased idle thrust.
    In the NPRM, the FAA proposed to retain the AFM revisions required 
by AD 2022-02-16 until June 30, 2023. On or before June 30, 2023, the 
FAA proposed to require replacing those AFM revisions with limitations 
prohibiting the same landings and use of certain MEL items at all 
airports for non-radio altimeter tolerant airplanes. For radio 
altimeter tolerant airplanes, the FAA proposed to allow the prohibited 
operations at 5G C-Band mitigated airports (5G CMAs) as identified in 
an FAA Domestic Notice. Lastly, the FAA proposed to retain the 
operating procedures from AD 2022-02-16 for calculating landing 
distances. The FAA proposed this AD to address degraded deceleration 
performance and longer landing distance, which could lead to a runway 
excursion.

Discussion of Final Airworthiness Directive

Comments

    The FAA provided the public with an opportunity to comment on the 
proposed AD and received comments from five commenters. The following 
presents the comments received on the NPRM and the FAA's response to 
each comment.

Support for NPRM

    Boeing and the Air Line Pilots Association, International (ALPA), 
supported the NPRM without change.
    The supportive comments from ALPA included additional viewpoints 
without a suggestion specific to the AD or a request the FAA can act 
on. These comments are outside the scope of this final rule.

Request To Revise AFM Limitations

    Comment summary: All Nippon Airways Co., Ltd. (All Nippon), 
requested the FAA revise paragraph (h)(2) of the proposed AD to refer 
to the new landing distances instead of HYD PRESS L+R failure 
distances, based on the new landing distance tables established by 
Boeing.
    FAA response: The FAA has not received or reviewed a new landing 
distance table as described by the commenter. Anyone may propose 
alternative data to address the unsafe condition under the AMOC 
procedures referenced in paragraph (k) of this AD.

Request for Additional AMOC Relief

    Comment summary: All Nippon requested that the FAA revise the 
proposed AD to allow AMOCs approved for AD 2023-10-02, Amendment 39-
22438 (88 FR 34065, May 26, 2023) (AD 2023-10-02) as AMOCs for the new 
AFM revisions for radio altimeter tolerant airplanes specified in 
paragraph (j) of the proposed AD.
    FAA response: The FAA does not agree. An airplane that is a radio 
altimeter tolerant airplane for purposes of AD 2023-10-02 will also be 
a radio altimeter tolerant airplane for purposes of this AD. However, 
because the hazards mitigated by AD 2023-10-02 are separate and 
distinct from the hazards mitigated by this AD, the FAA has determined 
that AMOCs approved for compliance with AD 2023-10-02 may not always be 
appropriate to address the unsafe condition specified in this AD. For 
this reason, operators with an approved AMOC for AD 2023-10-02 will 
need to request approval of

[[Page 40072]]

it as an AMOC for compliance with this AD.

Request To Extend Compliance Time

    Comment summary: All Nippon and American Airlines expressed concern 
regarding the compliance time for the proposed actions and requested 
the FAA revise the AD to provide a minimum of 3 to 4 weeks from the 
effective date of the AD.
    FAA response: The FAA understands the commenters' concerns and made 
every effort to publish this AD as soon as possible. After refraining 
from operating at their FCC-authorized levels for a year and a half, 
wireless companies are now able to operate at higher levels, yet still 
not at the levels authorized. Specifically, wireless companies expect 
to operate their networks in urban areas with minimal restrictions due 
to the completion of retrofits. Additionally, the FAA anticipates 19 
additional telecommunication companies will begin transmitting in the 
C-Band after June 30, 2023. Although the FAA continues to work with the 
companies that intend to transmit in the 3.7-3.98-GHz band near 5G 
CMAs, the FAA has no agreement with those companies to provide the FAA 
with tower locations and other information necessary to support the 
current NOTAM/AMOC process. Therefore, the FAA will not be able to 
extend the compliance date beyond June 30, 2023.

Request for Clarification of Domestic Notices and 5G CMA List

    Comment summary: Virgin Atlantic requested clarification on how to 
access Domestic Notices, as well as the mechanism to know when an 
airport is no longer on the 5G CMA list.
    FAA response: The Domestic Notice referenced in this AD can be 
found at https://www.faa.gov/air_traffic/publications/domesticnotices/domestic_gen.html. The FAA considers this 5G CMA list permanent based 
upon the voluntary agreements in place with the telecommunication 
companies. In the event an airport from the 5G CMA list needs to be 
removed, the FAA will issue a NOTAM until a more permanent solution is 
put in place.

Conclusion

    The FAA reviewed the relevant data, considered any comments 
received, and determined that air safety requires adopting this AD as 
proposed. Accordingly, the FAA is issuing this AD to address the unsafe 
condition on these products. This AD is adopted as proposed in the 
NPRM.

Interim Action

    The FAA considers this AD to be an interim action. Once the 
Technical Standard Order (TSO) standard for radio altimeters is 
established, which will follow the existing international technical 
consensus on the establishment of the minimum operational performance 
standards (MOPS), the FAA anticipates that the MOPS will be 
incorporated into the TSO. Once a new radio altimeter TSO is developed, 
approved, and available, the FAA might consider additional rulemaking.

Effective Date

    Section 553(d) of the Administrative Procedure Act (APA) (5 U.S.C. 
551 et seq.) requires publication of a rule not less than 30 days 
before its effective date. However, section 553(d) authorizes agencies 
to make rules effective in less than 30 days when the agency finds 
``good cause.'' Radio altimeters cannot be relied upon to perform their 
intended function if they experience interference from wireless 
broadband operations in the 5G C-Band. During landings, as a result of 
this interference, certain airplane systems may not properly transition 
from AIR to GROUND mode when landing on certain runways, resulting in a 
longer landing distance than normal due to the effect on thrust 
reverser deployment, speedbrake deployment, and increased idle thrust, 
which could lead to a runway excursion. To address this unsafe 
condition, the actions required by this AD must be accomplished before 
the compliance date of June 30, 2023. The FAA based this date on the 
changes to the 5G C-Band environment beginning on July 1, 2023. These 
changes include increased wireless broadband deployment and 
transmissions closer to the parameters authorized by the FCC. The 
earlier operators learn of the requirements in this AD, the earlier 
they can take action to ensure compliance. An effective date less than 
30 days would ensure the AD is codified earlier, thereby increasing 
awareness of its requirements. Therefore, the FAA finds that good cause 
exists pursuant to 5 U.S.C. 553(d) for making this amendment 
immediately effective.

Costs of Compliance

    The cost information below describes the costs to change the AFM. 
Although this AD largely maintains the AFM limitations currently 
required by AD 2022-02-16, the FAA acknowledges that this AD may also 
impose costs on some aircraft operators from having to change their 
conduct to comply with the amended AFM. However, the FAA lacks the data 
necessary to quantify the costs associated with aircraft operators 
changing their conduct.
    The FAA estimates that this AD affects 145 airplanes of U.S. 
registry. The FAA estimates the following costs to comply with this AD:

                                      Estimated Costs for Required Actions
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                                                                                     Cost per      Cost on U.S.
                Action                         Labor cost           Parts cost        product        operators
----------------------------------------------------------------------------------------------------------------
AFM revision (retained action from AD   1 work-hour x $85 \1\                 $0             $85         $12,325
 2022-02-16).                            per hour = $85.
New AFM revision (new required action)  1 work-hour x $85 per                  0              85      \2\ 12,325
                                         hour = $85.
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\1\ The labor rate of $85 per hour is the average wage rate for an aviation mechanic.
\2\ The estimated cost for this revision would not constitute a significant economic impact (even for small
  entities) because $85 is a minimal cost compared to the regular costs of maintaining and operating a Model 787-
  8, 787-9, or 787-10 transport category airplane.

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

[[Page 40073]]

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) 2022-02-16, Amendment 39-21913 
(87 FR 2692, January 19, 2022), and
0
b. Adding the following new AD:

2023-12-10 The Boeing Company: Amendment 39-22468; Docket No. FAA-
2023-0163; Project Identifier AD-2022-01380-T.

(a) Effective Date

    This airworthiness directive (AD) is effective June 21, 2023.

(b) Affected ADs

    This AD replaces AD 2022-02-16, Amendment 39-21913 (87 FR 2692, 
January 19, 2022) (AD 2022-02-16).

(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 34, Navigation.

(e) Unsafe Condition

    This AD was prompted by a determination that radio altimeters 
cannot be relied upon to perform their intended function if they 
experience interference from wireless broadband operations in the 
3.7-3.98 GHz frequency band (5G C-Band), and a determination that, 
during landings, as a result of this interference, certain airplane 
systems may not properly transition from AIR to GROUND mode when 
landing on certain runways, resulting in a longer landing distance 
than normal due to the effect on thrust reverser deployment, 
speedbrake deployment, and increased idle thrust. The FAA is issuing 
this AD to address degraded deceleration performance and longer 
landing distance, which could lead to a runway excursion.

(f) Compliance

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

(g) Definitions

    (1) For purposes of this AD, a ``5G C-Band mitigated airport'' 
(5G CMA) is an airport at which the telecommunications companies 
have agreed to voluntarily limit their 5G deployment at the request 
of the FAA, as identified by an FAA Domestic Notice.
    (2) For purposes of this AD, a ``radio altimeter tolerant 
airplane'' is one for which the radio altimeter, as installed, 
demonstrates the tolerances specified in paragraphs (g)(2)(i) and 
(ii) of this AD, using a method approved by the FAA.
    (i) Tolerance to radio altimeter interference, for the 
fundamental emissions (3.7-3.98 GHz), at or above the power spectral 
density (PSD) curve threshold specified in figure 1 to paragraph 
(g)(2)(i) of this AD.

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[[Page 40074]]

Figure 1 to paragraph (g)(2)(i)--Fundamental Effective Isotropic PSD 
at Outside Interface of Aircraft Antenna
[GRAPHIC] [TIFF OMITTED] TR21JN23.092

    (ii) Tolerance to radio altimeter interference, for the spurious 
emissions (4.2-4.4 GHz), at or above the PSD curve threshold 
specified in figure 2 to paragraph (g)(2)(ii) of this AD.


[[Page 40075]]


Figure 2 to paragraph (g)(2)(ii)--Spurious Effective Isotropic PSD 
at Outside Interface of Aircraft Antenna
[GRAPHIC] [TIFF OMITTED] TR21JN23.093

    (3) For purposes of this AD, a ``non-radio altimeter tolerant 
airplane'' is one for which the radio altimeter, as installed, does 
not demonstrate the tolerances specified in paragraphs (g)(2)(i) and 
(ii) of this AD.
    (4) Runway condition codes are defined in figure 3 to paragraph 
(g)(4) of this AD.

Figure 3 to paragraph (g)(4)--Runway Condition Codes

[[Page 40076]]

[GRAPHIC] [TIFF OMITTED] TR21JN23.094

(h) Retained Airplane Flight Manual (AFM) Revision

    This paragraph restates the requirements of paragraph (h) of AD 
2022-02-16.
    (1) Within 2 days after January 19, 2022 (the effective date of 
AD 2022-02-16): Revise the Limitations Section of the existing AFM 
to include the information specified in figure 4 to paragraph (h)(1) 
of this AD. This may be done by inserting a copy of figure 4 to 
paragraph (h)(1) of this AD into the existing AFM.

Figure 4 to paragraph (h)(1)--AFM Limitations Revisions
[GRAPHIC] [TIFF OMITTED] TR21JN23.095


[[Page 40077]]


    (2) Within 2 days after January 19, 2022 (the effective date of 
AD 2022-02-16): Revise the Operating Procedures Section of the 
existing AFM to include the information specified in figure 5 to 
paragraph (h)(2) of this AD. This may be done by inserting a copy of 
figure 5 to paragraph (h)(2) of this AD into the existing AFM.


[[Page 40078]]


Figure 5 to paragraph (h)(2)--AFM Operating Procedures Revision
[GRAPHIC] [TIFF OMITTED] TR21JN23.096


[[Page 40079]]


[GRAPHIC] [TIFF OMITTED] TR21JN23.097


[[Page 40080]]


[GRAPHIC] [TIFF OMITTED] TR21JN23.098

(i) New Requirement: AFM Revision for Non-Radio Altimeter Tolerant 
Airplanes

    For non-radio altimeter tolerant airplanes, do the actions 
specified in paragraphs (i)(1) and (2) of this AD.
    (1) On or before June 30, 2023, revise the Limitations Section 
of the existing AFM to include the information specified in figure 6 
to paragraph (i) of this AD. This may be done by inserting a copy of 
figure 6 to paragraph (i) of this AD into the existing AFM. 
Incorporating the AFM revision required by this paragraph terminates 
the AFM revision required by paragraph (h)(1) of this AD.
    (2) Before further flight after incorporating the limitations 
specified in figure 6 to paragraph (i) of this AD, remove the AFM 
revision required by paragraph (h)(1) of this AD.

Figure 6 to paragraph (i)--AFM Revision for Non-Radio Altimeter 
Tolerant Airplanes
[GRAPHIC] [TIFF OMITTED] TR21JN23.099


[[Page 40081]]



(j) New Requirement: AFM Revision for Radio Altimeter Tolerant 
Airplanes

    For radio altimeter tolerant airplanes, do the actions specified 
in paragraphs (j)(1) and (2) of this AD.
    (1) On or before June 30, 2023, revise the Limitations Section 
of the existing AFM to include the information specified in figure 7 
to paragraph (j) of this AD. This may be done by inserting a copy of 
figure 7 to paragraph (j) of this AD into the existing AFM. 
Incorporating the AFM revision required by this paragraph terminates 
the AFM revision required by paragraph (h)(1) of this AD.
    (2) Before further flight after incorporating the limitations 
specified in figure 7 to paragraph (j) of this AD, remove the AFM 
revision required by paragraph (h)(1) of this AD.

Figure 7 to paragraph (j)--AFM Revision for Radio Altimeter Tolerant 
Airplanes
[GRAPHIC] [TIFF OMITTED] TR21JN23.100

(k) Alternative Methods of Compliance (AMOCs)

    (1) The Manager, Operational Safety 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 Operational Safety Branch, send it to the 
attention of the person identified in paragraph (l) of this AD. 
Information may be emailed to: [email protected].
    (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) AMOCs approved for AD 2021-23-12, Amendment 39-21810 (86 FR 
69984, December 9, 2021), providing relief for specific radio 
altimeter installations are approved as AMOCs for the requirements 
specified in paragraph (h) of this AD until June 30, 2023.

(l) Related Information

    For more information about this AD, contact Brett Portwood, 
Continued Operational Safety Technical Advisor, COS Program 
Management Section, Operational Safety Branch, FAA, 3960 Paramount 
Boulevard, Lakewood, CA 90712-4137; phone: 817-222-5390; email: 
[email protected].

(m) Material Incorporated by Reference

    None.

    Issued on June 9, 2023.
Michael Linegang,
Acting Director, Compliance & Airworthiness Division, Aircraft 
Certification Service.
[FR Doc. 2023-13154 Filed 6-16-23; 11:15 am]
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