AD 2013-24-11

[Federal Register Volume 78, Number 232 (Tuesday, December 3, 2013)]
[Rules and Regulations]
[Pages 72561-72564]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2013-28611]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2013-0420; Directorate Identifier 2011-NM-241-AD; 
Amendment 39-17685; AD 2013-24-11]
RIN 2120-AA64


Airworthiness Directives; The Boeing Company Airplanes

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Final rule.

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SUMMARY: We are adopting a new airworthiness directive (AD) for certain 
The Boeing Company Model 747-100, 747-100B, 747-100B SUD, 747-200B, 
747-200C, 747-200F, 747-300, 747-400, 747-400D, 747-400F, 747SR, and 
747SP series airplanes. This AD was prompted by a report of a disbonded 
doubler and a skin crack in section 41 of the fuselage, and multiple 
reports of cracked or missing fastener heads. This AD requires 
repetitive inspections for cracking of the fuselage skin, discrepant 
fasteners, and for disbonds at the doublers; and related investigative 
and corrective actions if necessary. For certain airplanes, this AD 
also requires a terminating repair for repair doublers. We are issuing 
this AD to prevent rapid decompression and loss of structural integrity 
of the airplane due to such disbonding and subsequent cracking of the 
skin panels.

DATES: This AD is effective January 7, 2014.
    The Director of the Federal Register approved the incorporation by 
reference of a certain publication listed in this AD as of January 7, 
2014.

ADDRESSES: For service information identified in this AD, contact 
Boeing Commercial Airplanes, Attention: Data & Services Management, 
P.O. Box 3707, MC 2H-65, Seattle, WA 98124-2207; telephone 206-544-
5000, extension 1; fax 206-766-5680; Internet <a href="https://www.myboeingfleet.com">https://www.myboeingfleet.com</a>. You may view this referenced service information 
at the FAA, Transport Airplane Directorate, 1601 Lind Avenue SW., 
Renton, WA. For information on the availability of this material at the 
FAA, call 425-227-1221.

Examining the AD Docket

    You may examine the AD docket on the Internet at <a href="http://www.regulations.gov">http://www.regulations.gov</a>; or in person at the Docket Management Facility 
between 9 a.m. and 5 p.m., Monday through Friday, except Federal 
holidays. The AD docket contains this AD, the regulatory evaluation, 
any comments received, and other information. The address for the 
Docket Office (phone: 800-647-5527) is Document Management Facility, 
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: Nathan Weigand, Aerospace Engineer, 
Airframe Branch, ANM-120S, FAA, Seattle Aircraft Certification Office 
(ACO), 1601 Lind Avenue SW., Renton, WA 98057-3356; phone: 425-917-
6428; fax: 425-917-6590; email: <a href="/cdn-cgi/l/email-protection#672906130f060949374930020e000609032701060649000811"><span class="__cf_email__" data-cfemail="571936233f363979077900323e303639331731363679303821">[email&#160;protected]</span></a>.

SUPPLEMENTARY INFORMATION: 

Discussion

    We issued a notice of proposed rulemaking (NPRM) to amend 14 CFR 
part 39 by adding an AD that would apply to the specified products. The 
NPRM published in the Federal Register on May 16, 2013 (78 FR 28767). 
The NPRM proposed to require repetitive inspections for cracking of the 
fuselage skin, discrepant fasteners, and for disbonds at the doublers; 
and related investigative and corrective actions if necessary. For 
certain airplanes, the NPRM also proposed to require a terminating 
repair for repair doublers.

Comments

    We gave the public the opportunity to participate in developing 
this AD. The following presents the comments received on the proposal 
(78 FR 28767, May 16, 2013) and the FAA's response to each comment.

Request To Add Terminating Action for Other AD Actions

    Boeing requested that we include the requirements of paragraph (h) 
of AD 2006-24-05, Amendment 39-14834 (76 FR 68434, November 27, 2006), 
in paragraph (k)(3) of the NPRM (78 FR 28767, May 16, 2013), which 
specifies that accomplishing the required actions proposed by the NPRM 
terminates certain requirements of AD 2006-24-05. Boeing stated that 
including the requirements of paragraph (h) of AD 2006-24-05 in 
paragraph (k) of the NPRM would then be consistent with paragraph 
(k)(2) of the NPRM that

[[Page 72562]]

includes paragraph (l) of AD 2006-24-02.
    We do not agree with the commenter's request. Boeing Service 
Bulletin 747-53A2747, Revision 2, dated February 22, 2012, which is the 
referenced service information in this final rule, is an alternative 
method of compliance (AMOC) for the three ADs specified in paragraph 
(k) of this final rule for only the corresponding paragraphs of those 
ADs that are listed in paragraphs (k)(1), (k)(2), and (k)(3) of this 
final rule. Boeing Service Bulletin 747-53A2747, Revision 2, dated 
February 22, 2012, does not list paragraph (h) of AD 2006-24-05, 
Amendment 39-14834 (76 FR 68434, November 27, 2006), as one of the 
paragraphs for which the service information is a method of compliance. 
We have not changed this final rule in this regard.

Request To Revise the Compliance Time

    Delta Airlines (DAL) requested that we revise the compliance time 
to make it more feasible for an operator to accomplish the actions in 
the NPRM (78 FR 28767, May 16, 2013). DAL stated that certain affected 
DAL airplanes will require inspections within 150 flight cycles after 
the effective date of the final rule. DAL also stated that current 
usage of the affected DAL airplanes is approximately 500 to 540 flight 
cycles per year and, therefore, the 150-flight-cycle compliance time 
would require ``special visits to complete.''
    We do not agree with the commenter's request to extend the 
compliance time. In developing an appropriate compliance time for this 
final rule, we considered the urgency associated with the identified 
unsafe condition and the manufacturer's recommendations. Disbonded 
doublers, skin cracking, and cracked or missing fastener heads are a 
significant safety issue, and we have determined that the inspection 
compliance times are warranted. The commenter provided no technical 
justification for revising the inspection thresholds. However, under 
the provisions of paragraph (l) of this final rule, we will consider 
requests for approval of an extension of the compliance time if 
sufficient data are submitted to substantiate that the extension would 
provide an acceptable level of safety. We have not changed this final 
rule in this regard.

Request To Expand Work-Hour Break-Outs

    DAL requested that we break out the work-hours identified in 
paragraph G. (Manpower) of Boeing Service Bulletin 747-53A2747, 
Revision 2, dated February 22, 2012, by zones and conditions that will 
ultimately assist the operators in scheduling each unique condition. 
DAL stated that the compliance times in paragraph 1.E., ``Compliance,'' 
of Boeing Service Bulletin 747-53A2747, Revision 2, dated February 22, 
2012, are broken out by Zone 1 and Zone 2, and can occur at different 
times depending on each resulting condition.
    We do not agree with the commenter's request. The stated costs in 
ADs must address all actions mandated by the AD. The hours described in 
paragraph G. (Manpower) of Boeing Service Bulletin 747-53A2747, 
Revision 2, dated February 22, 2012, are an estimate of the total hours 
to perform the actions. This final rule includes the work-hours 
specified in Boeing Service Bulletin 747-53A2747, Revision 2, dated 
February 22, 2012. These actions are not intended to be broken out to a 
task-by-task level. We have not changed this final rule in this regard.

Request To Revise AD 2006-24-02, Amendment 39-14831 (71 FR 67445, 
November 22, 2006)

    DAL requested that we support an expedited revision to AD 2006-24-
02, Amendment 39-14831 (71 FR 67445, November 22, 2006), prior to 
issuance of this final rule. DAL stated that according to a recent 
customer support presentation of Boeing Service Bulletin 747-53A2747, 
Revision 2, dated February 22, 2012, Boeing is currently working on a 
revision to this service bulletin, which may relax some compliance 
times.
    We do not agree with the commenter's request. We have not received 
Revision 3 to Boeing Service Bulletin 747-53A2747 to review. We have 
determined that this final rule must not be delayed for issuance of a 
new revision to Boeing Service Bulletin 747-53A2747, Revision 2, dated 
February 22, 2012, since we have determined that an unsafe condition 
exists and that inspections in this final rule must be conducted to 
ensure continued safety. When Revision 3 of Boeing Service Bulletin 
747-53A2747 is submitted, we will review and evaluate it as an 
alternative method of compliance to this final rule and determine if 
additional rulemaking is necessary. We have not changed this final rule 
in this regard.

Conclusion

    We reviewed the relevant data, considered the comments received, 
and determined that air safety and the public interest require adopting 
this AD with the change described previously except for minor editorial 
changes. We have determined that these minor changes:
    <bullet> Are consistent with the intent that was proposed in the 
NPRM (78 FR 28767, May 16, 2013) for correcting the unsafe condition; 
and
    <bullet> Do not add any additional burden upon the public than was 
already proposed in the NPRM (78 FR 28767, May 16, 2013).

Costs of Compliance

    We estimate that this AD affects 98 airplanes of U.S. registry.
    We estimate the following costs to comply with this AD:

                                                 Estimated Costs
----------------------------------------------------------------------------------------------------------------
                                                                  Cost per
            Action                Labor cost     Parts cost       product            Cost on U.S. operators
----------------------------------------------------------------------------------------------------------------
Inspections..................  878 work-hours            $0   $74,630 per      $7,313,740 per inspection cycle.
                                x $85 per hour                 inspection
                                = $74,630 per                  cycle.
                                inspection
                                cycle.
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    We have received no definitive data that would enable us to provide 
cost estimates for the on-condition actions specified in this AD.

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.
    We are 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

[[Page 72563]]

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) Is not a ``significant rule'' under DOT Regulatory Policies and 
Procedures (44 FR 11034, February 26, 1979),
    (3) Will not affect intrastate aviation in Alaska, and
    (4) 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.

Adoption of 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 adding the following new airworthiness 
directive (AD):

2013-24-11 The Boeing Company: Amendment 39-17685; Docket No. FAA-
2013-0420; Directorate Identifier 2011-NM-241-AD.

(a) Effective Date

    This AD is effective January 7, 2014.

(b) Affected ADs

    This AD affects AD 2006-20-02, Amendment 39-14771 (71 FR 56861, 
September 28, 2006); AD 2006-24-02, Amendment 39-14831 (71 FR 67445, 
November 22, 2006); and AD 2006-24-05, Amendment 39-14834 (71 FR 
68434, November 27, 2006).

(c) Applicability

    This AD applies to The Boeing Company Model 747-100, 747-100B, 
747-100B SUD, 747-200B, 747-200C, 747-200F, 747-300, 747-400, 747-
400D, 747-400F, 747SR, and 747SP series airplanes; certificated in 
any category; as identified in Boeing Service Bulletin 747-53A2747, 
Revision 2, dated February 22, 2012.

(d) Subject

    Joint Aircraft System Component (JASC)/Air Transport Association 
(ATA) of America Code 53, Fuselage.

(e) Unsafe Condition

    This AD was prompted by a disbonded doubler and a skin crack in 
section 41 of the fuselage, and multiple reports of cracked or 
missing fastener heads. We are issuing this AD to prevent rapid 
decompression and loss of structural integrity of the airplane due 
to such disbonding and subsequent cracking of the skin panels.

(f) Compliance

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

(g) Repetitive Skin Panel, Fastener, and Doubler Inspections

    At the applicable time specified in paragraph 1.E., 
``Compliance,'' of Boeing Service Bulletin 747-53A2747, Revision 2, 
dated February 22, 2012, except as required by paragraphs (i)(1) and 
(i)(3) of this AD: Do the applicable inspections (including 
detailed, high frequency eddy current (HFEC), and low frequency eddy 
current (LFEC)) for any cracking of the fuselage skin, for 
discrepant fasteners, and for disbonds at the doublers; and do all 
applicable related investigative and corrective actions in 
accordance with the Accomplishment Instructions of Boeing Service 
Bulletin 747-53A2747, Revision 2, dated February 22, 2012, except as 
provided by paragraph (i)(2) of this AD. Repeat the applicable 
inspections thereafter at intervals not to exceed those specified in 
paragraph 1.E., ``Compliance,'' of Boeing Service Bulletin 747-
53A2747, Revision 2, dated February 22, 2012. Do all applicable 
related investigative and corrective actions at the applicable time 
specified in paragraph 1.E., ``Compliance,'' of Boeing Service 
Bulletin 747-53A2747, Revision 2, dated February 22, 2012. Options 
provided in Boeing Service Bulletin 747-53A2747, Revision 2, dated 
February 22, 2011, for accomplishing the disbond inspection are 
acceptable for the corresponding requirements of this paragraph 
provided that the inspection is done at the applicable times in 
paragraph 1.E., ``Compliance,'' of Boeing Service Bulletin 747-
53A2747, Revision 2, dated February 22, 2011.
    (1) Replacing a skin panel, in accordance with the 
Accomplishment Instructions of Boeing Service Bulletin 747-53A2747, 
Revision 2, dated February 22, 2012, is an acceptable alternative to 
doing the structural repair manual (SRM) skin panel repairs and the 
repetitive skin panel inspections specified in tables 1, 2, and 3 of 
paragraph 1.E., ``Compliance,'' of Boeing Service Bulletin 747-
53A2747, Revision 2, dated February 22, 2012, for only the skin 
panel that has been replaced.
    (2) Accomplishment of the terminating repair identified in 
tables 4 and 5 of paragraph 1.E., ``Compliance,'' of Boeing Service 
Bulletin 747-53A2747, Revision 2, dated February 22, 2012, 
terminates the repetitive inspections identified in tables 4 and 5 
of paragraph 1.E., ``Compliance,'' of Boeing Service Bulletin 747-
53A2747, Revision 2, dated February 22, 2012, for only the area on 
which the terminating repair has been done.

(h) Terminating Action

    For airplanes identified in tables 4 and 5 of paragraph 1.E., 
``Compliance,'' of Boeing Service Bulletin 747-53A2747, Revision 2, 
dated February 22, 2012: At the applicable compliance time specified 
in paragraph 1.E., ``Compliance,'' of Boeing Service Bulletin 747-
53A2747, Revision 2, dated February 22, 2012, do the terminating 
action for the repair doubler, including doing an open hole HFEC 
inspection for skin cracks at the fastener holes common to the 
inspection area and an inspection for disbond of the internal 
doubler; and as applicable, replacing the existing external repair 
doubler with a new extended external repair doubler, in accordance 
with the Accomplishment Instructions of Boeing Service Bulletin 747-
53A2747, Revision 2, dated February 22, 2012, except as provided by 
paragraph (i)(2) of this AD. Accomplishment of the terminating 
action identified in tables 4 and 5 of paragraph 1.E., 
``Compliance,'' of Boeing Service Bulletin 747-53A2747, Revision 2, 
dated February 22, 2012, terminates the repetitive inspections 
identified in tables 4 and 5 of paragraph 1.E., ``Compliance,'' of 
Boeing Service Bulletin 747-53A2747, Revision 2, dated February 22, 
2012, for only areas on which the terminating action has been done.

(i) Exceptions to Certain Service Information Instructions

    This paragraph specifies exceptions to certain instructions in 
Boeing Service Bulletin 747-53A2747, Revision 2, dated February 22, 
2012.
    (1) Where Boeing Service Bulletin 747-53A2747, Revision 2, dated 
February 22, 2012, specifies a compliance time after the ``original 
issue date of this service bulletin,'' this AD requires compliance 
within the specified compliance time after the effective date of 
this AD.
    (2) Where Boeing Service Bulletin 747-53A2747, Revision 2, dated 
February 22, 2012, specifies to contact Boeing for special repair 
instructions, this AD requires using a method approved in accordance 
with the procedures specified in paragraph (l) of this AD.
    (3) The Condition column of paragraph 1.E., ``Compliance,'' of 
Boeing Service Bulletin 747-53A2747, Revision 2, dated February 22, 
2012, refers to certain

[[Page 72564]]

conditions ``as of the original issue date of this service 
bulletin.'' This AD, however, applies to the airplanes with the 
specified condition as of the effective date of this AD.

(j) Credit for Previous Actions

    This paragraph provides credit for the actions required by 
paragraphs (g) and (h) of this AD, if those actions were performed 
before the effective date of this AD using Boeing Service Bulletin 
747-53A2747, Revision 1, dated October 12, 2011, which is not 
incorporated by reference in this AD.

(k) Terminating Action for Other ADs

    (1) Accomplishing the requirements of this AD terminates the 
requirements of paragraphs (f), (g), and (h) of AD 2006-20-02, 
Amendment 39-14771 (71 FR 56861, September 28, 2006).
    (2) Accomplishing the requirements of this AD terminates the 
requirements of paragraphs (f), (k), and (l) of AD 2006-24-02, 
Amendment 39-14831 (71 FR 67445, November 22, 2006).
    (3) Accomplishing the requirements of this AD terminates the 
requirements of paragraphs (f) and (i) of AD 2006-24-05, Amendment 
39-14834 (71 FR 68434, November 27, 2006).

(l) Alternative Methods of Compliance (AMOCs)

    (1) The Manager, Seattle Aircraft Certification Office (ACO), 
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 local 
Flight Standards District Office, as appropriate. If sending 
information directly to the manager of the ACO, send it to the 
attention of the person identified in paragraph (m)(1) of this AD. 
Information may be emailed to: <a href="/cdn-cgi/l/email-protection#30091d717e7d1d63555144445c551d71737f1d717d7f731d6255414555434443705651511e575f46"><span class="__cf_email__" data-cfemail="e6dfcba7a8abcbb5838792928a83cba7a5a9cba7aba9a5cbb483979383959295a6808787c8818990">[email&#160;protected]</span></a>.
    (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 required by this AD if it is approved by the 
Boeing Commercial Airplanes Organization Designation Authorization 
(ODA) that has been authorized by the Manager, Seattle ACO, to make 
those findings. For a repair method to be approved, the repair must 
meet the certification basis of the airplane, and the approval must 
specifically refer to this AD.

(m) Related Information

    (1) For more information about this AD, contact Nathan Weigand, 
Aerospace Engineer, Airframe Branch, ANM-120S, FAA, Seattle Aircraft 
Certification Office (ACO), 1601 Lind Avenue SW., Renton, WA 98057-
3356; phone: 425-917-6428; fax: 425-917-6590; email: 
<a href="/cdn-cgi/l/email-protection#266847524e474808760871434f414748426640474708414950"><span class="__cf_email__" data-cfemail="6826091c0009064638463f0d010f09060c280e0909460f071e">[email&#160;protected]</span></a>.
    (2) Service information identified in this AD that is not 
incorporated by reference in this AD may be obtained at the 
addresses specified in paragraphs (n)(3) and (n)(4) of this AD.

(n) 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 Service Bulletin 747-53A2747, Revision 2, dated 
February 22, 2012.
    (ii) Reserved.
    (3) For Boeing service information identified in this AD, 
contact Boeing Commercial Airplanes, Attention: Data & Services 
Management, P.O. Box 3707, MC 2H-65, Seattle, WA 98124-2207; 
telephone 206-544-5000, extension 1; fax 206-766-5680; Internet 
<a href="https://www.myboeingfleet.com">https://www.myboeingfleet.com</a>.
    (4) You may review copies of the referenced service information 
at the FAA, Transport Airplane Directorate, 1601 Lind Avenue SW., 
Renton, WA. For information on the availability of this material at 
the FAA, call 425-227-1221.
    (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, call 202-741-6030, or go to: <a href="http://www.archives.gov/federal-register/cfr/ibr-locations.html">http://www.archives.gov/federal-register/cfr/ibr-locations.html</a>.

    Issued in Renton, WA, on November 15, 2013.
Jeffrey E. Duven,
Acting Manager, Transport Airplane Directorate, Aircraft Certification 
Service.
[FR Doc. 2013-28611 Filed 12-2-13; 8:45 am]
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