Qualification, Service, and Use of Crewmembers and Aircraft Dispatchers, 1280-1453 [E8-29584]

Agencies

• Federal Aviation Administration
• DEPARTMENT OF TRANSPORTATION

[Federal Register Volume 74, Number 7 (Monday, January 12, 2009)]
[Proposed Rules]
[Pages 1280-1453]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E8-29584]



[[Page 1279]]

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Part II





Department of Transportation





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Federal Aviation Administration



14 CFR parts 65, 119, 121 et al.



Qualification, Service, and Use of Crewmembers and Aircraft 
Dispatchers; Proposed Rule

Federal Register / Vol. 74, No. 7 / Monday, January 12, 2009 / 
Proposed Rules

[[Page 1280]]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR parts 65, 119, 121, 135 and 142

[Docket No. FAA-2008-0677; Notice No. 08-07]
RIN 2120-AJ00


Qualification, Service, and Use of Crewmembers and Aircraft 
Dispatchers

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Notice of Proposed Rulemaking (NPRM).

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SUMMARY: The FAA proposes to amend the regulations for crewmember and 
dispatcher training programs in domestic, flag, and supplemental 
operations. The proposed regulations enhance traditional training 
programs by requiring the use of flight simulation training devices for 
flight crewmembers and including additional training requirements in 
areas that are critical to safety. The proposal also reorganizes and 
revises the qualification and training requirements. The proposed 
changes are intended to contribute significantly to reducing aviation 
accidents.

DATES: Comments must be received on or before May 12, 2009.

ADDRESSES: You may send comments identified by Docket Number FAA-2006-
26139 using any of the following methods:
     Federal eRulemaking Portal: Go to https://
www.regulations.gov and follow the online instructions for sending your 
comments electronically.
     Mail: Send comments to the Docket Management Facility, 
U.S. Department of Transportation, 1200 New Jersey Avenue, SE., West 
Building Ground Floor, Room W12-140, Washington, DC 20590.
     Fax: Fax comments to the Docket Management Facility at 
202-493-2251.
     Hand Delivery: Bring comments to the Docket Management 
Facility in Room W12-140 of the West Building Ground Floor at 1200 New 
Jersey Avenue, SE., Washington, DC between 9 a.m. and 5 p.m., Monday 
through Friday, except Federal holidays.

For more information on the rulemaking process, see the SUPPLEMENTARY 
INFORMATION section of this document.
    Privacy: We will post all comments we receive, without change, to 
https://www.regulations.gov, including any personal information you 
provide. Using the search function of our docket Web site, anyone can 
find and read the comments received into any of our dockets, including 
the name of the individual sending the comment (or signing the comment 
for an association, business, labor union, etc.). You may review DOT's 
complete Privacy Act Statement in the Federal Register published on 
April 11, 2000 (65 FR 19477-78).
    Docket: To read background documents or comments received, go to 
https://www.regulations.gov at any time or to the Docket Management 
Facility in Room W12-140 of the West Building Ground Floor at 1200 New 
Jersey Avenue, SE., Washington, DC, between 9 a.m. and 5 p.m., Monday 
through Friday, except Federal holidays.

FOR FURTHER INFORMATION CONTACT: For flight crewmember information 
contact Ed Cook, for flight attendant information contact Nancy Lauck 
Claussen, and for aircraft dispatcher information contact David Maloy, 
Air Carrier Training Branch (AFS-210), Flight Standards Service, 
Federal Aviation Administration, 800 Independence Avenue, SW., 
Washington, DC 20591; telephone (202) 267-8166. For legal questions, 
contact Anne Bechdolt, Office of Chief Counsel (AGC-200), Federal 
Aviation Administration, 800 Independence Avenue, SW., Washington, DC 
20591; telephone (202) 267-7230; e-mail: Anne.Bechdolt@faa.gov.

SUPPLEMENTARY INFORMATION: Later in this preamble under the Additional 
Information section, we discuss how you can comment on this proposal 
and how we will handle your comments. Included in this discussion is 
related information about the docket, privacy, and the handling of 
proprietary or confidential business information. We also discuss how 
you can get a copy of this proposal and related rulemaking documents.

Authority for This Rulemaking

    The FAA's authority to issue rules on aviation safety is found in 
Title 49 of the United States Code. This rulemaking is promulgated 
under the authority described in 49 U.S.C. 44701(a)(5), which requires 
the Administrator to promulgate regulations and minimum standards for 
other practices, methods, and procedures necessary for safety in air 
commerce and national security.

Table of Contents

I. Summary of the Proposal
II. Qualification Performance Standards (QPS) Appendices
III. Background
    A. Current Qualification and Training Requirements
    B. Need for Safety Improvements and FAA Actions
    C. Qualification To Serve as a Required Crewmember or Aircraft 
Dispatcher
    D. Subparts N and O Aviation Rulemaking Committee (ARC)
    E. Training Program Vocabulary and Instructional Design
IV. The Proposal
    A. Major Changes Affecting Crewmembers and Aircraft Dispatchers
    B. Major Changes Affecting Flight Crewmembers
    C. Major Changes Affecting Flight Attendants
    D. Major Changes Affecting Aircraft Dispatchers
V. Impact Statements

I. Summary of the Proposal

Purpose

    The primary purpose of this NPRM is to establish new requirements 
for traditional air carrier training programs to ensure that safety-
critical training is included. These changes are expected to make a 
significant contribution to the FAA's accident reduction goal. The 
secondary purpose of this rulemaking project is to reorganize, simplify 
and modernize all rule language associated with crewmember and aircraft 
dispatcher qualification and training under part 121. This proposal 
revises and recodifies the crewmember qualification and training 
requirements in subparts N and O into a new subpart BB of part 121 and 
revises and recodifies the aircraft dispatcher qualification and 
training requirements in subparts N and P into subpart CC of part 121.
    This rulemaking is part of the FAA's efforts to reduce fatal 
accidents in which human error was a major contributing cause. The 
proposed changes would reduce human error and improve performance among 
flight crewmembers, flight attendants, and aircraft dispatchers.
    The FAA is proposing the following safety improvements to its 
qualification and training requirements:
     Train and evaluate flight crewmembers in a complete flight 
crew environment.
     Require Line Oriented Flight Training (LOFT) to be 
administered to flight crewmembers in a full flight simulator (FFS) 
during recurrent training.
     Require the use of a qualified flight simulation training 
device (FSTD) for training, testing, and checking flight crewmembers.
     Require special hazard training for flight crewmembers, 
such as loss of control and Controlled Flight Into Terrain (CFIT).

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     Require additional training and practice in the use of 
Crew Resource Management (CRM) principles.
     Require flight attendants to complete ``hands on'' 
performance drills using emergency equipment and procedures every 12 
months.
     Require flight attendants to complete operating experience 
by aircraft type for the certificate holder.
     Require trained and qualified flight attendant ground 
instructors and evaluators.
     Standardize the training and experience requirements for 
check dispatchers and dispatcher instructors.
     Implement supervised operating experience (SOE) 
requirements for aircraft dispatchers.
     Establish Requalification training for aircraft 
dispatchers and crewmembers.
     Require a continuous analysis process (CAP) for 
certificate holders.
    In addition, the FAA's recent ``Call to Action'' plan elevated 
short-, mid-, and long-term goals to address safety improvement at 
airport runways. This proposed rule states that the tasks listed in the 
rule, and the Flight Crewmember Operating Manual (FCOM) required by the 
rule, must be integrated with one another and must reflect the 
certificate holder's operations and the specific aircraft. The proposed 
rule also includes tasks that directly address the runway safety goals. 
Specifically, they include the following:
    (1) Using an airport diagram (surface movement) chart to aid in 
maintaining positional awareness.
    (2) Obtaining the appropriate clearance before crossing or entering 
active runways.
    (3) Observing runway hold lines, localizer and glide slope critical 
areas, beacons, and other surface movement guidance control markings 
and lighting.
    (4) Ensuring takeoff clearance is received and that the correct 
runway is being entered for takeoff prior to crossing the hold short 
line.
    The FAA is issuing this proposal under the authority described in 
Subtitle VII, Part A, subpart i, 49 U.S.C. 44701. The FAA is charged 
with regulating air commerce in a way that best promotes safety.

Compliance Issues

    To help transition from the current regulations to the revised 
requirements for qualification, service, and use of crewmembers and 
aircraft dispatchers, the FAA is proposing to continue the current 
regulations under subparts N, O, and P, for 5 years after the effective 
date of the final rule. On the date the current regulations expire, all 
certificate holders, crewmembers, and aircraft dispatchers must be in 
compliance with the requirements in subparts BB and CC of part 121. 
Therefore, it will be necessary for certificate holders to begin 
training under subparts BB and CC in sufficient time to ensure that all 
crewmembers and aircraft dispatchers are trained, qualified, and meet 
the applicable look back provisions of subparts BB and CC, before the 
expiration of regulations pertaining to qualification, service, and use 
of crewmembers and aircraft dispatchers in subparts N, O, and P. 
Proposed 14 CFR121.1202 and 121.1402 require certificate holders to 
submit a transition plan that specifies the transition completion date, 
which must be before the expiration of the current regulations.
    The effective date of the final rule will be 120 days after 
publication in the Federal Register. Persons who have an approved 
training program before the effective date of the final rule or have 
submitted a training program for approval before the effective date of 
the final rule may comply with existing regulations, subparts BB and 
CC, or both. The proposed rule permits simultaneous compliance to allow 
the certificate holder to continue using its approved programs while 
transitioning to the new requirements. Although the rule allows the 
certificate holder to simultaneously comply with the existing 
regulations and the new rules, each individual crewmember or aircraft 
dispatcher must be trained and qualified under the requirements of 
either subparts BB and CC, or subparts N, O, and P.
    For example, during the transition period, the air carrier may 
decide to train all newly hired flight attendants in accordance with 
the proposed rules, while continuing to train existing flight 
attendants under the current requirements. However, individual flight 
attendants, in the above example, would be required to be fully in 
compliance with the requirements of the existing regulations or with 
the proposed regulations. If a certificate holder submits a training 
program for a new aircraft type after the effective date of the rule, 
the training program developed for this new aircraft type must be in 
compliance with and approved under proposed subparts BB and CC. 
Therefore, any flight attendants qualified on this new aircraft type 
would be trained in accordance with the new rules, while flight 
attendants qualified on aircraft types currently operated by the 
certificate holder could be trained in accordance with the existing 
regulations in subparts N, O, and P.
    Setting the effective date for 120 days after publication of the 
final rule and allowing use of the existing regulations for 5 years 
after this period provides existing certificate holders and the FAA 
time to smoothly transition to the new requirements. By using this 
approach, certificate holders seeking FAA approval for a new training 
program will not have to develop one training program to comply with 
the old regulations, then develop another training program to comply 
with the new regulations.
    The proposed rule also contemplates that when a new training 
program is submitted for approval after the rule's effective date, the 
training program must meet the requirements of subparts BB or CC, as 
applicable. The FAA does not intend that non-significant modifications 
that may be proposed to a current training program under the existing 
regulations would require the certificate holder to initiate 
development of a training program to comply with Subpart BB or CC any 
earlier than they had planned in accordance with their current business 
plan.
    The FAA has included a grandfather provision in proposed subpart BB 
to allow persons qualified for a crewmember duty position under the 
current rules to meet the requirements of the proposed rule without 
having to repeat certain categories of training they have already 
completed under the current rules. Proposed subpart CC contains a 
similar grandfather provision for aircraft dispatchers.
    In addition, the FAA is proposing to amend requirements in current 
Sec.  121.543 in proposed Sec.  121.1241(b)(3)(v). Proposed Sec.  
121.1241(b)(3)(v) requires that all flight crewmembers at the controls 
are current and qualified, including landing recency. Under the current 
rules, landing recency is not required for relief pilots. This proposal 
codifies current industry practice and ensures proficiency in all tasks 
necessary for safe operation of the aircraft.

II. Qualification Performance Standards (QPS) Appendices

    The FAA is proposing to add four QPS appendices in 14 CFR part 121: 
pilots, appendix Q; flight engineers, appendix R; flight attendants, 
appendix S; and aircraft dispatchers, appendix T. The QPS appendices 
contain minimum training and evaluation standards as well as procedures 
for crewmembers and aircraft dispatchers to become qualified and 
maintain qualification. The material in the proposed QPS appendices is 
based on the subjects and

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tasks in subparts N, O, and P. In addition, the pilot QPS is based on 
current part 121 practical training and checking standards in 
appendices E and F, and flight simulation performance guidelines in 
appendix H. The FAA has separated the material in the QPS appendices 
into two sections: ``QPS Requirements'' and ``Information.'' The ``QPS 
Requirements'' sections are regulatory and are in addition to the 
requirements in part 121. The ``Information'' sections are advisory, 
and are not regulatory. Future changes and additions to the QPS 
Requirements would be subject to notice and comment rulemaking 
procedures under the Administrative Procedure Act, unless ``good 
cause'' (see 5 U.S.C. 553(b)(B)) exists to justify proceeding without 
notice and comment.
    The FAA does not expect that many changes to the QPS appendices 
will justify the expenditure of time and resources at the highest 
levels of the agency that the standard procedures for final review of 
rulemakings require. The Administrator will delegate authority for 
final review and issuance of changes to the QPS appendices to the 
Director of the Flight Standards Service. This delegation of authority 
will be exercised with the concurrence of the Office of the Chief 
Counsel. This streamlined process will result in timely responses to 
incident and accident data, continuous analysis process (CAP) changes, 
and advances in aircraft or simulation technology. If at any time 
during the amendment process the Administrator or the Director of the 
Flight Standards Service determines that a proposed amendment is not 
appropriate for this streamlined process, the rulemaking project will 
proceed in accordance with the agency's standard rulemaking procedures.

III. Background

A. Current Qualification and Training Requirements

    The regulations governing certificate holder crewmember and 
aircraft dispatcher qualification and training requirements appear in 
14 CFR part 121 subparts N, O, and P. Subpart N contains the 
requirements for establishing and maintaining a training program for 
crewmembers, aircraft dispatchers, and other operations personnel. 
Subpart N also contains the requirements for the use of airplane 
simulators and other training devices. Subpart O contains crewmember 
qualification requirements. Subpart P contains aircraft dispatcher 
qualification requirements. Appendix E to part 121 establishes the 
flight training tasks required in pilot initial, transition, and 
upgrade training. Appendix F to part 121 establishes the flight 
checking tasks required in pilot proficiency checks. Appendix H to part 
121 provides guidelines and a means for using advanced airplane 
simulators in training and checking of flight crewmembers.

B. Need for Safety Improvements and FAA Actions

FAA Initiatives
    Among the leading causes of fatal accidents for U.S. air carriers 
from 1987 through 1996 were loss of control and CFIT. Human error was 
identified as a major contributing cause in a large percentage of these 
accidents. The FAA took immediate steps toward preventing these types 
of accidents by developing technological standards and encouraging 
simulator training in CFIT avoidance and to improve flight crewmember 
response in loss of control situations. The FAA also reviewed its 
regulations in 14 CFR part 121 subparts N, O, and P to identify 
improvements in training for flight crewmembers, flight attendants, and 
aircraft dispatchers.
    As part of the regulatory review, the FAA evaluated its experience 
with the Advanced Qualification Program (AQP) currently in place at 
many part 121 air carriers. AQP is an alternative method using advanced 
simulation equipment and objective performance standards for training 
and testing crewmembers.\1\ The FAA's review of AQP revealed the need 
to improve the traditional qualification and training programs 
conducted under subparts N, O, and P.
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    \1\ The FAA codified AQP in 14 CFR part 121 subpart Y (September 
16, 2005; 70 FR 54810).
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    The National Transportation Safety Board (NTSB) investigations 
identified several areas of inadequate training that were the probable 
cause of an accident, such as Incomplete Manuals, Inadequate Standards/
Procedures, Lack of a Stabilized Approach Below 500 Feet, Crew Resource 
Management, Turbulence, Thunder Storms, Wind Shear, IFR Conditions, 
Cross Wind, and Tail Wind.
    During the 1985 through 2004 time period, the NTSB determined that 
inadequate training was the probable cause of 169 accidents involving 
the affected populations. We believe that many of these accidents could 
have been prevented if the proposed training initiatives were in place 
during that 20-year period. Of the 169 accidents, 43 (about 25%) 
involved one or more fatalities and 126 (about 75%) had no fatalities. 
These accidents resulted in 988 fatalities and 250 serious injuries. In 
addition to the injuries and fatalities, there was also significant 
damage or complete hull loss for these accidents. This proposal 
contains changes to address the causes and factors identified by the 
NTSB.
NTSB Recommendations
    The changes proposed in this NPRM also address several NTSB 
recommendations. The NTSB recommendations addressed Crewmember Resource 
Management (CRM) training (Recommendations A-88-71 and A-94-196); use 
of simulators to conduct LOFT (Recommendations A-94-191 through 194); 
TCAS RA training (Recommendation A-93-46); training of flight crews to 
respond to sudden, unusual or unexpected aircraft upsets 
(Recommendation A-96-120); flight attendant training (Recommendations 
A-92-67, A-92-70, A-92-71, A-92-74, and A-92-77); and training to 
respond to inflight fires (Recommendations A-01-83 through A-01-85).\2\
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    \2\ The NTSB Safety Recommendation Letters are available online 
at https://www.ntsb.gov/Recs/letters/letters.htm.
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    The FAA recognizes that the NTSB has already closed some of these 
recommendations. However, we reviewed NTSB recommendations concerning 
training to make the proposed training requirements as effective as 
possible. For specific information on how the FAA is responding to 
these NTSB recommendations, see section IV, ``The Proposal,'' later in 
this preamble.

C. Qualification To Serve as a Required Crewmember or Aircraft 
Dispatcher

    There are several requirements for a crewmember to become qualified 
to serve in part 121 operations. Just because an individual is 
``qualified'' under this proposal does not mean that he or she can 
serve in part 121 operations without meeting additional requirements. 
For example, pilots are ``qualified'' under this proposal when they 
hold the appropriate certificates and ratings and have completed the 
required curricula. However, to serve unsupervised in part 121 
operations they must also meet the operating experience, initial line 
check, crew pairing, operating limitations, and route and airport 
qualification requirements. In addition, when they first serve in part 
121 operations they must be supervised. Further, once they obtain their 
initial authorization to serve, they must continually meet a different 
set of requirements to retain that authorization. This is similar to 
current requirements.

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D. Subparts N and O Aviation Rulemaking Committee (ARC)

    On May 3, 2004, the FAA established the ARC as a forum for the FAA 
and the aviation community to discuss crewmember and aircraft 
dispatcher qualification and training. The ARC focused on changes to 
improve flight safety issues; the application of simulation to flight 
crewmember training, testing, or checking activities; and the 
implementation of technical changes in training and qualification 
standards. The ARC included participants from the FAA, Air Line Pilots 
Association, Air Transport Association, Airbus Training Center, Airline 
Dispatchers Federation, Alteon Training, America West Airlines, 
American Airlines, Association of Flight Attendants, Association of 
Professional Flight Attendants, Boeing, CAE, Independence Air, JetBlue 
Airways, Northwest Airlines, Omni Air International, Pan Am, Regional 
Airline Association, and Southwest Airlines. The ARC submitted 
recommendations to the Associate Administrator for Aviation Safety in 
April 2005. These recommendations focused on changes to the regulatory 
requirements, the development of QPS appendices specific to the needs 
of pilots, flight engineers, flight attendants, and aircraft 
dispatchers, and organization of the regulations.

E. Training Program Vocabulary and Instructional Design

    The purpose of a certificate holder's training program is to 
produce and maintain competency necessary for job performance. In this 
proposal, the FAA is introducing new terms associated with training 
programs.
    At the highest level, training programs have ``curricula'' to 
qualify a person for a duty position for an aircraft type. A pilot in 
command (PIC), second in command (SIC), flight engineer, or a flight 
attendant serving in operations under this part holds a ``crewmember 
duty position.'' A flight instructor (aircraft or simulator), flight 
engineer instructor (aircraft or simulator), flight attendant 
instructor, check person (check pilot, aircraft; check pilot, 
simulator; check flight engineer, aircraft; check flight engineer, 
simulator; or check flight attendant), or person authorized to 
administer flight attendant proficiency tests holds a ``training'' or 
``evaluation'' duty position. The curriculum for each crewmember duty 
position and training or evaluation duty position includes categories 
of training and the appropriate segments for each category.
    Within a curriculum, ``categories of training'' (also called 
``training categories'') relate to qualification experience levels, 
first time qualification for a certificate holder, first time 
qualification in type, configuration differences within type or series, 
maintaining and regaining qualification, and changes in operation. The 
categories of training within a curriculum include: New hire; initial; 
transition; conversion (full and core); upgrade (full and core); 
emergency; differences; recurrent; requalification; and special.
    Each category of training includes two ``segments of training''--
academic and job performance. Academic is training and evaluation that 
provides students with the required knowledge and cognitive skills 
necessary to perform the tasks required for the crewmember duty 
position or training or evaluation duty position. Academic training 
could be completed in either a classroom setting or through distance 
learning. Job performance is training and evaluation in the duty or job 
environment that provides students with the practical, hands on 
experience of integrating knowledge and skills and learning the related 
motor skills necessary to perform the job.
    For flight crewmembers, the proposed term ``academic training'' is 
currently known as ``ground training.'' For flight crewmembers, the 
proposed term ``job performance training'' is currently known as 
``flight training.'' The FAA has proposed these new terms in order to 
ensure they accurately apply to all training populations affected by 
the proposed rule, including those that do not conduct flight training, 
such as flight attendants and aircraft dispatchers.
    Segments of training have subsets called ``modules.'' Certificate 
holders create modules based on the task requirements in the applicable 
QPS. The FAA approves all modules as part of the approved training 
program.
    The following table compares the proposed terminology with the 
current usage.

------------------------------------------------------------------------
                   Current rule                         Proposed rule
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TRAINING PROGRAM                                    TRAINING PROGRAM
    (Curriculum and Resources)                       (Curriculum and
                                                     Resources)
CURRICULUM                                          CURRICULUM
CATEGORIES OF TRAINING                              CATEGORIES OF
                                                     TRAINING


 
                                                                                                   Aircraft
                                                      Flight crewmember:   Flight attendant:     dispatchers:
 
    Basic Indoctrination                              New Hire             New Hire            Initial
    Initial                                           Initial              Initial             Transition
    Transition                                        Transition           Transition          Recurrent
    Upgrade                                           Conversion           Recurrent           Requalification
    Recurrent                                         Upgrade              Requalification     Differences
    Requalification                                   Recurrent            Differences         Special
    Differences                                       Requalification      Special
    Crewmember Emergency                              Differences          Emergency
                                                      Special
 


 
 
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CURRICULUM SEGMENTS                                 CURRICULUM SEGMENTS
    (Two Types--Ground and Flight)                   (Two Types--
                                                     Academic and Job
                                                     Performance)
MODULE                                              MODULE
LESSON                                              LESSON
ELEMENT                                             ELEMENT

IV. The Proposal

    This section addresses the major changes proposed in this document 
and includes a general description of each change and supporting 
rationale. You can find a detailed description of these and other 
proposed changes in the ``Section-by-Section Discussion'' in the docket 
for this rulemaking at https://

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www.regulations.gov. In addition to the ``Section-by-Section 
Discussion'' document, the docket also contains ``Derivation and 
Distribution Tables'' for the proposed Subparts BB and CC. The 
``Derivation and Distribution Tables'' will help commenters track how 
the proposed sections relate to the current sections in part 121. The 
following table lists the major changes and their applicability to 
crewmembers and aircraft dispatchers.

    Major Changes and Their Applicability to Crewmembers and Aircraft
                               Dispatchers
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                              Major changes
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A. Crewmembers and Aircraft Dispatchers
    1. Provide more accurate and complete operating procedures and
     crewmember and aircraft dispatcher duties.
    2. Integrate subparts N, O, and P into new subparts BB and CC.
    3. Require baseline and minimum programmed hours.
    4. Require integration of Crew Resource Management (CRM) and
     Dispatcher Resource Management (DRM).
    5. Add ``Special'' training category.
    6. Establish phased Requalification.
    7. Establish provisions for initial cadre.
    8. Continuous analysis process.
B. Flight Crewmembers
    1. Require the use of FSTD for job performance training and
     evaluation.
    2. Train and evaluate flight crewmembers in a full crew environment.
    3. Require Special Hazards training.
    4. Require Recurrent LOFT.
    5. Reduce the frequency of performance drills using emergency
     equipment and procedures.
C. Flight Attendants
    1. Establish qualification and training requirements for check
     flight attendants, flight attendant instructors, and evaluators.
    2. Require operating experience by aircraft type specific to the
     certificate holder.
    3. Increase the frequency of performance drills using emergency
     equipment and procedures.
D. Aircraft Dispatchers
    1. Establish dispatcher instructors and check dispatchers.
    2. Require supervised operating experience specific to the
     certificate holder.
    3. Establish optional aircraft dispatcher Combined Certification and
     Initial Curriculum.
    4. Establish qualification requirements for Dispatch Program
     Designees.
------------------------------------------------------------------------

A. Major Changes Affecting Crewmembers and Aircraft Dispatchers

1. Provide for More Accurate and Complete Operating Procedures and 
Crewmember and Aircraft Dispatcher Duties
    Training effectiveness is enhanced when operational procedures and 
crewmember duties are thoroughly and accurately defined for the type of 
operation. The FAA reviewed numerous accidents where a lack of properly 
defined procedures and duties were a direct or contributing factor. The 
following proposals will improve the completeness and accuracy of the 
duties and procedures for crewmembers and aircraft dispatchers.
     Add Standard Operating Procedures, Abnormal or Non-normal 
Procedures, Emergency Procedures, Weight and Balance (or Loading), and 
Performance sections to the Operating Limitations section of the FAA-
approved Flight Crew Operating Manual (FCOM) as mandatory instructions 
for all persons operating a civil aircraft in operations under this 
part.
     Require that training and evaluation of monitoring duties 
for the pilot not flying the aircraft be provided in addition to the 
traditional pilot flying (at the controls).
     Include procedures in the FCOM for executing the tasks 
authorized for the certificate holder. These procedures may come from 
the following: (1) The FAA-approved Airplane Flight Manual (AFM); (2) 
the generic procedures provided in the QPS; or other procedures as 
modified by the certificate holder and approved by the Principal 
Operations Inspector (POI), such as those contained in Operations 
Specifications (OpSpecs).
     Provide training in approved procedures in critical 
environments (e.g., windshear for takeoff and landing).
     Provide awareness performance statements relative to each 
task (e.g., be aware of the autoflight configuration at all times).
     Require that the material in the current certificate 
holder's manual (Sec. Sec.  121.133, 121.135, and 121.141) pertaining 
to crewmembers and aircraft dispatchers be contained in the Flight Crew 
Operating Manual (FCOM), Flight Attendant Operating Manual (FAOM), and 
Aircraft Dispatcher Procedures Manual (ADPM).
    The requirement for operating procedures and crewmember duties is 
not new. However, a thorough and accurate compilation of the 
information will improve safety of flight operations. It will also 
result in better training program definition and development.
2. Integrate Subparts N, O, and P Into New Subparts BB and CC
    Under the proposal, the current regulations governing drug and 
alcohol testing and hazardous material training would remain in 
subparts N and O. The crewmember qualification and training 
requirements in subparts N and O would be moved into subpart BB of part 
121 and the aircraft dispatcher qualification and training requirements 
in subparts N and P would be moved into subpart CC of part 121. Other 
changes include the addition of new appendices, Q, R, S, and T as QPS 
appendices for pilots, flight engineers, flight attendants, and 
aircraft dispatchers. The proposal also removes obsolete references to 
flight navigators.
3. Require Baseline and Minimum Programmed Hours
    This proposal prescribes programmed hour requirements for 
crewmembers and aircraft dispatchers. Programmed hours are the required 
academic and job performance training hours for categories of training. 
The proposed programmed hours are contained in the applicable QPS. The 
programmed hours consist of baseline and minimum hours for academic and 
job performance training segments. The term baseline hours refers to 
the starting point for determining the number of programmed

[[Page 1285]]

hours required for FAA approval. The FAA may allow a reduction from the 
baseline hours in certain circumstances. However, the FAA will not 
allow a reduction below the minimum number of hours prescribed in the 
QPS appendices.
    For example, in accordance with Table 1 of the Pilot QPS, the 
baseline for transition academic training is 92 hours. The FAA may 
allow a certificate holder to reduce the number of programmed hours if 
the certificate holder demonstrates that circumstances justify a lesser 
amount. However, the FAA will not approve a reduction below the minimum 
hours stated in the Pilot QPS, which is 62 hours for transition 
academic training. These proposed requirements would improve the 
consistency of reductions to training hours.
    The programmed hours do not include other required training, such 
as training for hazardous materials and security. In addition, periods 
of time when training is not occurring, such as lunch and travel 
between facilities, do not count toward required programmed hours. The 
proposed programmed hours give certificate holders flexibility in 
developing training programs. The proposed programmed hours also ensure 
that training programs have a sufficient number of hours for 
crewmembers and aircraft dispatchers to gain and maintain proficiency.
Flight Crewmember Programmed Hours
    Programmed hours consist of baseline and minimum hour requirements. 
The FAA bases the proposed baseline and minimum program training hours 
on national norms, FAA handbooks, traditional and AQP training 
programs, and problems routinely encountered by a POI. The baseline 
hours for flight training are not reducible. The baseline hours for 
academic training could be reduced to the minimum hours if the 
certificate holder applied for a reduction under proposed Sec.  
121.1335(b). The Administrator would consider the factors outline in 
proposed Sec.  121.1337(e) before granting a reduction in programmed 
hours. These factors are:
     The pass/fail rate in the curriculum.
     The quality and effectiveness of the teaching-learning 
process.
     The experience levels of the students, instructors, and 
check persons.
     The certificate holder's type and scope of operations.
     The complexity of make, model, and series of aircraft 
used.
    Current regulations prescribe minimum programmed hours for flight 
training. However, under Sec.  121.409(c), the minimum programmed hours 
do not apply if the training program includes a course of flight 
crewmember training in an FSTD. Since one of the purposes of this rule 
is to require all certificate holders to use FSTD in their job 
performance training programs, the FAA proposes to delete the exception 
in current Sec.  121.409(c). Under Sec.  121.1335 of this proposal, all 
training programs are required to have the programmed hours specified 
in the applicable QPS.
Flight Attendant Programmed Hours
    Similar to flight crewmember programmed hours, flight attendant 
programmed hours are also based on current regulatory and advisory 
material. In Recommendation A-92-67, the NTSB stated the FAA should 
establish procedures for reducing required hours of flight attendant 
Recurrent training. Specifically, the NTSB recommended the procedures 
be based on the following:
     The number of types of aircraft for which flight 
attendants are qualified.
     The accuracy and effectiveness of training devices and 
simulators.
     The methods used to test and evaluate proficiency.
    The FAA proposes to change the way it allocates flight attendant 
programmed hours for Initial training for each aircraft type. The FAA 
proposes to increase the number of baseline hours for Initial training 
on the first aircraft type. Under the proposal, the FAA requires 12 
hours of training on general subjects (such as CRM, passenger handling, 
and theory of flight) and 12 hours of aircraft type specific training. 
For each subsequent aircraft type, the FAA does not require the flight 
attendant to repeat training on the general subjects.
    The FAA also proposes a baseline of 24 hours for flight attendant 
emergency training. These hours may not be reduced for flight 
attendants qualified in overwater operations. For flight attendants not 
qualified in overwater operations, the required hours may be reduced to 
a minimum of 22 hours. This proposal codifies the national norms that 
the FAA has included in FAA Order 8400.10 Air Transportation Operations 
Inspector's Handbook (https://www.faa.gov/library/manuals/examiners_
inspectors/8400/), and is consistent with industry practice and NTSB 
recommendations.
    In addition, the FAA is proposing new programmed hours for 
transition training. Transition training would allow a flight attendant 
to qualify on an aircraft type if the flight attendant has been 
qualified for at least 180 days and served in the previous 180 days on 
an aircraft as a flight attendant for that certificate holder.
    Under the proposal, the baseline programmed hours for transition 
training are 12 hours to ensure adequate training for flight 
attendants. The baseline may be reduced to a minimum of 8 hours.
Aircraft Dispatcher Programmed Hours
    The proposed aircraft dispatcher regulations contain programmed 
hour requirements similar to crewmember programmed hours, including 
authorizations for reductions. For example, the Aircraft Dispatcher QPS 
outlines a baseline programmed hour requirement of 8 hours for 
supervised operating experience. These programmed hours may not be 
reduced below the baseline.
4. Require Integration of Crew Resource Management (CRM) and Dispatcher 
Resource Management (DRM)
    CRM and DRM training is the incorporation of team management 
concepts in flight operations. Resource management training focuses on 
the interaction among flight crewmembers, flight attendants, aircraft 
dispatchers, maintenance personnel, air traffic controllers, and 
others. CRM and DRM activities include team building and maintenance, 
information transfer, problem solving, decision making, maintaining 
situational awareness, and using automated systems. This proposal 
revises current CRM and DRM requirements by integrating CRM and DRM 
proficiencies throughout the training and evaluation programs for 
crewmembers and aircraft dispatchers. These proposed changes address 
NTSB recommendations concerning CRM training (Recommendations A-88-71 
and A-94-196).
    The proposed requirements provide details about how certificate 
holders must include CRM and DRM training in specific subject areas. 
The QPS appendices describe specific CRM and DRM subject areas, such 
as: Communication processes and decisions, workload management, and 
situational awareness. The proposed Pilot and Flight Engineer QPS 
appendices require CRM training and evaluation during recurrent LOFT 
sessions and line checks. Training in these areas helps prevent errors 
such as taxiing on a wrong runway, misinterpreting tower controller 
information, and incompletely preparing for takeoff because of 
interruptions. The Flight Attendant QPS incorporates CRM proficiencies 
into performance drills. The Aircraft Dispatcher QPS requires that 
certificate

[[Page 1286]]

holders evaluate DRM indicators throughout the entire Proficiency Test 
or Check.
5. Add ``Special'' Training Category
    When certain changes are made to the certificate holder's 
operations or equipment, the certificate holder must make conforming 
changes to its training program. For example, a certificate holder may 
begin conducting Reduced Vertical Separation Minimums (RVSM) or 
Extended Operations (ETOPs) and would need to amend its training 
program to address these new operations. Another example is the 
addition of equipment to aircraft (e.g., Automated External 
Defibrillators). In these situations, it may be difficult to determine 
when specific crewmembers and aircraft dispatchers have been trained. 
To address this situation, some certificate holders have developed a 
``Special'' training category. The modules for this ``Special'' 
training category are temporary and used by the certificate holder to 
ensure that all crewmembers and aircraft dispatchers receive the new 
training. The certificate holder integrates the module for this 
``Special'' training into the existing training categories. The 
proposed language has adopted this strategy by codifying a ``Special'' 
category of training.
6. Establish Phased Requalification
Flight Crewmembers
    Proposed Sec.  121.1239 establishes Requalification requirements 
for flight crewmembers who become unqualified by not meeting Recurrent 
training requirements. The proposed changes clarify that an unqualified 
person may not necessarily be required to repeat all of the Initial 
training to regain qualification. Instead, the FAA has based the 
Requalification requirements on the amount of time that has elapsed 
since the person last served in the duty position in operations under 
this part.
    Proposed Sec.  121.1239(b) outlines three phases of 
Requalification:
     Phase I Requalification--the person has been unqualified 
for less than 9 months.
     Phase II Requalification--the person has been unqualified 
for at least 9 months, but less than 27 months.
     Phase III Requalification--the person has been unqualified 
for 27 months or more.
    The specific tasks that the flight crewmember must complete for 
requalification are outlined in the appropriate QPS.
Flight Attendants
    Proposed Sec.  121.1309 establishes Requalification requirements 
for flight attendants who become unqualified by not meeting Recurrent 
training requirements. This rule is necessary because the current 
regulations imply that an unqualified person must repeat all required 
training. In some cases this is not necessary because a previously 
qualified flight attendant retains some of the knowledge and skills 
that he or she has learned. Thus, proposed Sec.  121.1309 establishes 
that, to be requalified, the person must meet either the basic 
qualification requirements (new hire, initial, transition, and 
emergency training, and differences training, if necessary), or 
requalification requirements based on the amount of time the person has 
been unqualified.
    Proposed Sec.  121.1309 outlines three phases of requalification:
     Phase I Requalification--the person has been unqualified 
for less than 12 months.
     Phase II Requalification--the person has been unqualified 
for at least 12 months, but not more than 24 months.
     Phase III Requalification program--the person has been 
unqualified for more than 24 months.
    The specific tasks that the flight attendant is required to 
complete for Requalification are outlined in the proposed Flight 
Attendant QPS.
Dispatchers
    Proposed Sec.  121.1419 contains aircraft dispatcher 
requalification requirements that are similar to crewmember 
requalification requirements.
    Proposed Sec.  121.1419 outlines five phases of requalification:
     Phase I Requalification--the person has been unqualified 
for less than 6 months.
     Phase II Requalification--the person has been unqualified 
for 6 months or more, but less than 12 months.
     Phase III Requalification--the person has been unqualified 
for 12 months or more, but less than 24 months.
     Phase IV Requalification--the person has been unqualified 
for 24 months or more, but less than 36 months.
     Phase V Requalification--the person has been unqualified 
for 36 months or more.
    The specific tasks that the dispatcher must accomplish for 
requalification are outlined in the appropriate QPS.
7. Establish Provisions for Initial Cadre
    A start-up part 119 certificate holder or an existing certificate 
holder starting-up operations using a new aircraft type is not able to 
meet all of the requirements for check pilots, check flight engineers, 
and check flight attendants. Those certificate holders lack qualified 
personnel to fill these duty positions. The FAA has over 40 years of 
experience authorizing check persons as the initial cadre. The existing 
practice has served the safety goals of the FAA for the following 
reasons: (1) The FAA requires highly qualified and recently experienced 
personnel to participate in the initial cadre; (2) the FAA directly 
oversees the evaluation and observation of the initial cadre; and (3) 
the FAA limits the duration of the initial cadre to a period not to 
exceed 24 months. Proposed Sec.  121.1257 codifies a long-standing FAA 
policy to allow initial cadre personnel to serve as check pilots or 
check flight engineers during the period of initial cadre status.
    Proposed Sec. Sec.  121.1425 and 121.1323 for check dispatchers and 
check flight attendants are similar to proposed Sec.  121.1257 for 
initial cadre check pilots and check flight engineers. These sections 
codify requirements for qualifying an initial cadre of check persons. 
Most of the proposed requirements are based on current industry 
practice and FAA policy.
8. Continuous Analysis Process
    The proposal adds a continuous analysis process for crewmember and 
aircraft dispatcher training programs. These new requirements are 
similar to the existing Sec.  121.373, which addresses continuing 
analysis and surveillance for maintenance programs. The proposal 
requires certificate holders to establish procedures for validating and 
maintaining the effectiveness of the continuous analysis process and 
the training program. Additionally, it requires certificate holders to 
analyze crewmember and aircraft dispatcher evaluations to identify 
areas that need to be addressed and training program improvements that 
need to be made. The continuous analysis process ensures that 
certificate holders identify and correct deficiencies in their training 
programs. The proposal also establishes a notification and appeal 
process that ensures the FAA approves any changes to the training 
program, consistent with the approval and amendment process.

[[Page 1287]]

B. Major Changes Affecting Flight Crewmembers

1. Require the Use of FSTD for Job Performance Training and Evaluation
    Current appendix H of part 121 permits certificate holders to use 
simulators for varying amounts of the training, testing, and checking 
required by the FAA. Appendix H is a voluntary alternative to training 
and checking in the airplane. The only required use of an FSTD in the 
current regulations is the windshear requirements in Sec.  121.409(d).
    The proposal requires that all creditable pilot and flight engineer 
training and evaluation be completed in a qualified FSTD approved by 
the POI for those tasks specified in the applicable QPS. Using FSTD, 
rather than airplanes, allows for more in-depth training in a safer 
environment, including the practice of critical emergency procedures. 
FSTD also provide benefits such as reducing noise, air pollution, and 
air traffic congestion, and conserving petroleum resources. This 
proposal addresses concerns raised by NTSB Recommendations A-94-191 
through 194, which stated that part 121 flight training and checking 
should be required in FSTD wherever possible.
    The FAA recognizes that in a few cases, certificate holders 
initially may not be able to comply with the requirements to use FSTD 
for all of their job performance training and evaluation. Accordingly, 
the proposed rule includes provisions for requesting a deviation in 
Sec.  121.1345(b) through (e). Proposed paragraph (b) describes the 
limited circumstances when a certificate holder may receive a deviation 
from the requirement in paragraph (a). Proposed paragraph (c) requires 
a person requesting a deviation to demonstrate to the FAA why the 
circumstances warrant a deviation from the requirement to use a 
qualified FSTD. The FAA does not intend that the deviation provide a 
loophole for certificate holders who want to continue training and 
evaluating in aircraft. Rather, the deviation is designed to 
accommodate those certificate holders who use aircraft for which there 
are no FSTD available (e.g., DC-6) or, for extraordinary reasons, do 
not have access to an FSTD for the aircraft type they operate.
2. Train and Evaluate Flight Crewmembers in a Full Crew Environment.
    The existing recurrent qualification and training requirements for 
a PIC and SIC differ in several respects. Current regulations require 
different tasks and events for PIC and SIC, and the training is 
separate. For example, PIC receive more training tasks and more 
frequent proficiency checks than SIC. In addition, PIC train on a 6-
month basis, and SIC train on a 12-month basis. The disparity between 
the training requirements for PIC and SIC is not consistent with actual 
line operations. During actual operations, pilots must work as a flight 
crew unit. Typically, today's flight operations involve PIC and SIC 
performing both pilot flying and monitoring duties.
    The proposed rule eliminates the differences in training for PIC 
and SIC. The training cycles for PIC and SIC are no longer separate. 
Under the proposal, PIC and SIC are required to complete Recurrent 
training on a 9-month basis. The requirement is such that each must 
complete all of the academic subjects and all of the job performance 
tasks listed in the applicable QPS where each subject, task, or 
environment may be required once each 9-month period; once each 18-
month period, or once each 36-month period. Proposed Sec.  121.1333 and 
the QPS require the same tasks and events for PIC and SIC. Both PIC and 
SIC must demonstrate proficiency in the flying and monitoring duties 
associated with the prescribed tasks and events. The QPS also requires 
the same number of programmed hours for PIC and SIC training. For 
example, there are 24 programmed hours for transition flight training. 
During that 24 hours of training, both the PIC and the SIC must 
demonstrate proficiency in flying and monitoring duties. The proposed 
changes facilitate training flight crewmembers in a complete crewmember 
environment.
    In addition to leveling the requirements regarding tasks and task 
performance between PIC and SIC, this proposal provides additional 
advantages. The change in frequency of training exposure provides an 
increase in the actual training exposure for both PIC and SIC over an 
equal time period. Additionally, while this proposal reduces the 
frequency with which PIC return for training, it increases the 
frequency with which SIC return for training. The FAA anticipates a 
reduction in previous piloting experience for pilots entering the air 
carrier industry in the near future; almost all of these new pilots 
will start their air carrier service as SIC. This proposal would 
provide these new, lesser experienced, pilots with more training at 
each training event and provide those training events more frequently 
than under today's regulations.
    In addition to integrating the training for PIC and SIC, the 
proposal will also integrate the training for flight engineers with the 
training for PIC and SIC, when applicable. Proficiency tests, 
proficiency checks, proficiency reviews, LOFT, and FSTD Course of 
Instruction require all flight crewmember duty positions to be occupied 
by a person who is qualified to serve in that crewmember duty position 
(including a qualified crewmember, instructor, check pilot, and aircrew 
program designee (APD)), or is in student status learning to serve in 
that crewmember duty position.
3. Require Special Hazards Training
    In 1996, the NTSB recommended the FAA require training to better 
prepare flight crewmembers to respond to sudden or unexpected aircraft 
upsets (Recommendation A-96-120). Also, the NTSB recommended the FAA 
develop CFIT training requirements for all pilots operating under part 
121.
    The QPS includes special hazard academic training subjects such as 
CFIT and Ground Proximity Escape maneuvers, upset and loss of control, 
and runway incursions. In addition to academic training in special 
hazards, the FAA is proposing to include job performance training 
during Initial, Conversion, Transition, Upgrade, Requalification, and 
Recurrent training. For pilots, this training includes inflight 
maneuvers in upset and disturbance recovery, low altitude windshear 
avoidance and escape, and ground proximity warning system (GPWS) and 
terrain awareness warning system (TAWS) alert recognition and escape 
maneuvers.
4. Require Recurrent LOFT
    LOFT is training in an FSTD with a complete flight crew. LOFT uses 
representative flight segments containing standard operating 
procedures, abnormal procedures, non-normal procedures, and emergency 
procedures expected in line operations. LOFT used in Recurrent training 
is called ``recurrent LOFT.'' LOFT used to qualify for line operations 
is called ``qualification LOFT.''
    Proposed Sec.  121.1353 includes the general requirements for 
conducting LOFT. The proposed requirements are more specific than the 
current regulations and codify existing advisory material (AC 120-35C, 
Line Operational Simulations: Line Oriented Flight Training, Special 
Purpose Operational Training, Line Operational Evaluation). A LOFT is 
conducted as a line operation and allows for no interruption by the 
instructor during the session except for a non-disruptive acceleration 
of uneventful en route segments. Interruptions are not allowed in LOFT

[[Page 1288]]

sessions because they disrupt the flow and undermine the realistic 
nature of line operations.
    The proposal requires 4 hours of training in an FSTD, plus a 
briefing and debriefing. In addition, each duty position must be filled 
by a person who is qualified or in student status to serve in that 
position. This proposed requirement is needed because the training 
value of LOFT is diminished when inappropriate crew substitutions are 
made, such as using an SIC to substitute for a PIC. The certificate 
holder selects the tasks to be performed from the list provided in the 
applicable QPS, and the FAA approves the selected tasks. In this way, 
the FAA is certain the selected tasks are appropriate for the 
certificate holder's operations.
    Under proposed Sec.  121.1353, any person serving in a flight 
crewmember position during a LOFT who does not perform satisfactorily 
may not serve as a required crewmember or operate under part 121 
without receiving additional training to correct the deficiencies. This 
is common industry practice and consistent with FAA advisory material. 
The certificate holder must schedule a separate training session to 
correct the deficiencies. This additional training ensures that the 
substandard performance is corrected before the person performs line 
operations.
5. Reduce the Frequency of Performance Drills Using Emergency Equipment 
and Procedures
    The current rule requires all crewmembers to have recurrent 
emergency ``hands on'' performance drill training on the use of 
portable emergency equipment (e.g., fire extinguishers, protective 
breathing equipment, portable oxygen equipment, flotation equipment) 
and aircraft exits every 24 months. This proposal adjusts the frequency 
of flight crewmember ``hands on'' training from 24 months to 36 months. 
This matches the newly adjusted frequency for flight crewmember 
Recurrent training. It also addresses FAA guidance recommending that 
flight crewmembers land the aircraft as quickly as possible to minimize 
the effect of an on-board fire, and that flight crewmembers remain on 
the flight deck, consistent with the post-9/11 security procedures. In 
addition, current policy places increased responsibility on the flight 
attendant to respond to emergency situations in the aircraft cabin. 
While this proposal decreases the frequency of hands on drills for 
flight crewmembers, it increases the frequency of hands on drills for 
flight attendants. Although the FAA is proposing to reduce the 
frequency for flight crewmember emergency ``hands on'' drills, we are 
also proposing to add an unannunciated fire (fire in the aircraft 
cabin) drill to flight training.

C. Major Changes Affecting Flight Attendants

    The proposed rule and associated Flight Attendant QPS appendix 
would revise flight attendant requirements in several areas to address 
NTSB recommendations and to enhance flight attendant training and 
evaluation.
1. Establish Qualification and Training Requirements for Check Flight 
Attendants, Flight Attendant Instructors, and Evaluators
Check Flight Attendants
    The proposed rule includes eligibility, approval, qualification, 
and continuing qualification requirements for check flight attendants. 
These proposed requirements provide regulatory standards for initially 
qualifying a flight attendant to serve as a check flight attendant as 
well as continuing qualification for that flight attendant. The 
requirements ensure that check flight attendants are familiar with the 
certificate holder's operations as well as the aircraft type on which 
they will be conducting operating experience, that they are line-
qualified for the certificate holder before evaluating other flight 
attendants, and that they are qualified to evaluate flight attendants 
who are completing operating experience. The FAA is proposing to add 
these requirements to ensure that effective and qualified evaluators 
conduct the evaluation of the person completing operating experience.
Flight Attendant Instructors
    The proposed rule requires each flight attendant instructor to 
complete basic qualification or Recurrent training requirements, as 
appropriate, for the certificate holder. The FAA recognizes that a 
flight attendant instructor may not be physically able to perform 
certain performance drills due to injury, pregnancy, or disability. 
Therefore, the FAA also proposes to allow those individuals to complete 
the required training to qualify as a flight attendant instructor, with 
the exception of those performance drills the person cannot physically 
perform. However, the FAA only allows flight attendant instructors to 
teach performance drills that they are able to demonstrate at the time 
of instruction. In addition, the flight attendant instructors must have 
performed the drills within the past 12 months as part of their basic 
qualification or Recurrent flight attendant training. This requirement 
provides certificate holders with flight attendant instructor staffing 
flexibility, while ensuring that flight attendant training is delivered 
by knowledgeable instructors who have completed the FAA approved flight 
attendant training program for that certificate holder. The FAA based 
the proposed rule on current effective industry practices.

Persons Authorized To Administer Flight Attendant Proficiency Tests

    The FAA is proposing new requirements to ensure that an individual 
who evaluates flight attendant proficiency tests is approved by the 
Administrator and has appropriate training to administer the test. This 
ensures that effective and qualified evaluators administer the 
proficiency tests. The FAA based these requirements on current 
effective industry practice regarding qualification of instructors and 
evaluators in flight attendant training programs.
2. Require Operating Experience by Aircraft Type Specific to the 
Certificate Holder
    The proposed rule increases the requirements for flight attendants 
to complete operating experience on each aircraft type operated by the 
certificate holder prior to becoming qualified on that aircraft type. 
The proposed rule requires flight attendants to gain aircraft operating 
experience after completion of Initial training for each aircraft type. 
This is different from the current rule which only requires a flight 
attendant to complete operating experience on one aircraft type (Group 
I or Group II, as applicable) in part 121 operations during the flight 
attendant's career. The proposal ensures that a flight attendant 
qualified on a large number of different aircraft types has more 
extensive training on each aircraft type than under the current rules. 
The proposed rule also requires that a person receive operating 
experience on each aircraft type for each certificate holder for whom 
the person is employed. This requirement is necessary because flight 
attendant procedures can differ significantly between certificate 
holders, even for the same aircraft type.
    The proposed rule also gives certificate holders more flexibility 
than the current rule regarding the instructional design of basic 
qualification curricula. For example, under the current rule, a person 
must complete all Basic Qualification training before beginning 
operating experience. However, under the proposed rule, a person must 
only complete new hire

[[Page 1289]]

and Initial training on the aircraft type prior to beginning aircraft 
operating experience on that aircraft type. This approach allows 
certificate holders to incorporate the increased operating experience 
requirements into their training programs more efficiently.
    The proposed rule also requires flight attendants to complete 
aircraft operatin