Airworthiness Directives; The Boeing Company Airplanes

[Federal Register Volume 80, Number 214 (Thursday, November 5, 2015)]
[Rules and Regulations]
[Pages 68437-68440]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-27954]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2014-0649; Directorate Identifier 2014-NM-132-AD; 
Amendment 39-18314; AD 2015-22-09]
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 787-8 airplanes. This AD was prompted by 
reports of missing plugs found prior to airplane delivery, during 
manufacturing inspections, at various locations in certain stringers of 
the lower lobe cargo compartments. This AD requires drilling a hole and 
installing and bonding plugs in certain stringers of the lower lobe 
cargo compartments. We are issuing this AD to detect and correct 
missing or misaligned plugs which, in the event of a fire, could cause 
an increased rate of loss of Halon in the lower cargo compartments, and 
result in the inability to extinguish a fire and consequent loss of 
control of the airplane.

DATES: This AD is effective December 10, 2015.
    The Director of the Federal Register approved the incorporation by 
reference of a certain publication listed in this AD as of December 10, 
2015.

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 https://www.myboeingfleet.com. 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. It is also available on the Internet at http://www.regulations.gov by searching for and locating Docket No. FAA-2014-
0649.

Examining the AD Docket

    You may examine the AD docket on the Internet at http://www.regulations.gov by searching for and locating Docket No. FAA-2014-
0649; 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 Docket 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: Francis Smith, Aerospace Engineer, 
Cabin Safety and Environmental Systems Branch, ANM-150S, FAA, Seattle 
Aircraft Certification Office, 1601 Lind Avenue SW., Renton, WA 98057-
3356; phone: 425-917-6596; fax: 425-917-6590; email: 
[email protected].

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 certain The Boeing Company 
Model 787-8 airplanes. The NPRM published in the Federal Register on 
September 23, 2014 (79 FR 56682). The NPRM was prompted by reports of 
missing plugs found prior to airplane delivery, during manufacturing 
inspections, at various locations in certain stringers of the lower 
lobe cargo compartments. The NPRM proposed to require drilling a hole 
and installing and bonding plugs in certain stringers of the lower lobe 
cargo compartments. We are issuing this AD to detect and correct 
missing or misaligned plugs which, in the event of a fire, could cause 
an increased rate of loss of Halon in the lower cargo compartments, and 
result in the inability to extinguish a fire and consequent loss of 
control of the airplane.

Comments

    We gave the public the opportunity to participate in developing 
this AD. The following presents the comments received on the NPRM (79 
FR 56682, September 23, 2014) and the FAA's response to each comment.

Supportive Comment

    United Airlines stated that it concurs with the NPRM (79 FR 56682, 
September 23, 2014), and agrees that the detection and correction of 
the missing or misaligned plugs will maintain a higher level of safety.

Request To Delay Issuance of the NPRM (79 FR 56682, September 23, 2014)

    All Nippon Airways (ANA) asked that we delay issuance of the NPRM 
(79 FR 56682, September 23, 2014) until Boeing Alert Service Bulletin 
B787-81205-SB530024-00, Issue 001, dated May 15, 2014 (referred to as 
the appropriate source of service information for accomplishing the 
specified actions), can be revised. ANA noted that the service 
information specifies using a stringer plug removal/installation tool, 
having tool number (T/N) MIT140Z4372-3; however, this tool does not 
work well for doing the actions. ANA provided the following reasons to 
substantiate its request:
    <bullet> For the instructions specified in Task 1 of this service 
information, the connecting tube on the tool (T/N 140Z4372-8/-15) 
interferes with the fasteners at the section 41/43 joint; therefore, 
the tool cannot be inserted into the stringers. The connecting tube 
needs to be shortened in length and trimmed to taper.
    <bullet> For the instructions specified in Task 3 of the service 
information, the tool (T/N 140Z4372-3) cannot be inserted at stringers 
30R through 35R, adjacent to the cargo door, because it won't bend at 
the location adjacent to the stringer end and frame.
    <bullet> For the instructions specified in Task 3 of the service 
information, the tool (T/N 140Z4372-3) is inserted into the stringer 
from station (STA) 1593 to

[[Page 68438]]

STA 1209, and the stringer length is 384 inches. This tool has five 
extension rods that are 300 inches, and six extension rods that are 350 
inches, respectively; therefore, additional rods are necessary.
    <bullet> The tool (T/N 140Z4372-3) has a head piece (T/N 140Z4372-
4/-5) and a push rod (T/N 140Z4372-6/-14) with a retaining pin hole. 
However, the retaining pin is not centered on the push rod and head 
piece, so the head piece detaches from the push rod during the plug 
removal/installation, and it takes an extraordinary amount of time to 
remove the head piece from the stringer. The retaining pin should be 
centered on the push rod and head piece in order to alleviate these 
issues.
    Boeing has issued Alert Service Bulletin B787-81205-SB530024-00, 
Issue 002, dated June 5, 2015. This service information provides 
clarification to the instructions, which addresses the commenter's 
concerns. In addition, the stringer plug removal/installation tool, 
having T/N MIT140Z4372-3, has been redesigned and retains the same part 
number. We have revised paragraphs (c) and (g) of this AD to refer to 
Boeing Alert Service Bulletin B787-81205-SB530024-00, Issue 002, dated 
June 5, 2015. We have also added new paragraph (h) to this AD to give 
credit for actions performed before the effective date of this AD using 
Boeing Alert Service Bulletin B787-81205-SB530024-00, Issue 001, dated 
May 15, 2014.

Request To Add Use of Fabricated Tool in Service Information 
Instructions

    ANA asked that we allow using an alternate stringer plug removal/
installation tool, fabricated by ANA, and include the tool in the 
Accomplishment Instructions of Boeing Alert Service Bulletin B787-
81205-SB530024-00, Issue 001, dated May 15, 2014, when the service 
information is revised. ANA added that, due to the issues previously 
identified, it has been using this alternate stringer plug removal/
installation tool to remove existing plugs and install new plugs, with 
concurrence from Boeing.
    We acknowledge the commenter's request to allow its fabricated tool 
to be included in the service information instructions. However, as 
noted previously, Boeing Alert Service Bulletin B787-81205-SB530024-00, 
Issue 002, dated June 5, 2015, has been issued; and the stringer plug 
removal/installation tool, having T/N MIT140Z4372-3, has been 
redesigned and retains the same part number. We have not changed this 
AD in this regard.

Request To Add Instructions to Service Information for Clarification

    ANA asked that we add certain instructions to the Accomplishment 
Instructions of Boeing Alert Service Bulletin B787-81205-SB530024-00, 
Issue 001, dated May 15, 2014. ANA provided the following reasons to 
substantiate its request:
    <bullet> For the instructions specified in Task 1, steps 2 and 3, 
of the service information, it specifies drilling a hole on stringers 
S-34L and S-35L. Removal of the environmental control system (ECS) 
cargo air insulated riser duct is necessary to ensure workspace for 
drilling at S-34L and S-35L. ANA asked that these removal and 
installation instructions be added when the service information is 
revised.
    <bullet> For the instructions specified in Task 2, step 3, of the 
service information, it specifies bonding new plugs in the stringers; 
however, the stringer and duct installed at the aft face of STA 825 
frame web are adjacent to the stringer, so it is not possible to apply 
a resin through the moisture vent hole. Additionally, the tie-up for 
supporting the duct should be cut and removed. ANA asked that 
instructions be added to cut the tie-up and move the duct if the access 
conditions identified in the service information are insufficient.
    Boeing has issued Alert Service Bulletin B787-81205-SB530024-00, 
Issue 002, dated June 5, 2015. This service information provides 
clarification to the instructions identified, which addresses the 
commenter's concerns. We have not changed this AD in this regard.
    ANA also stated that each task in the service information 
necessitates confirmation that using a Sharpie marker, or similar, to 
mark the centerline of the top surface of the new plug to help locate 
the plug at the position of a stringer vent hole is permitted. However, 
ANA found that the plug had rotated to 90 degrees; but the centerline 
of the top surface of the new plug was at the position of a stringer 
vent hole. ANA asked that instructions be added to the service 
information specifying that after plug installation operators should 
verify the new plug location is correct with a mirror or borescope.
    We acknowledge the commenter's concerns. Boeing has incorporated 
instructions into Boeing Alert Service Bulletin B787-81205-SB530024-00, 
Issue 002, dated June 5, 2015, which allow the use of a mirror or 
borescope to check the proper positioning of a plug before applying the 
bond. We have not changed this AD in this regard.
    ANA also stated that the instructions specified in Task 1, Note 9, 
of the service information, specify using a 3-step drill process. The 
first step is to drill a new pilot hole of \1/8\ inch; the second step 
is to drill a new pilot hole of \3/16\ inch; and the third step is to 
ream to a final diameter of 0.235 to 0.265 inch. Step 2.3 is required 
for compliance (RC), so no deviation of the procedure is permitted. ANA 
added that to maintain the 3-step drill process, a special reamer is 
needed. ANA noted that the primary objective should be preparing the 
final diameter hole, not the number of drilling steps, and asked that 
the 3-step drill process be removed, and more steps to the drill 
process be allowed.
    We agree that alternative methods may be allowed for drilling the 
hole specified in Task 1, Note 9, because the intent of the 3-step 
drill process is to effectively ream each hole to its final diameter. 
Boeing has incorporated instructions allowing additional drill steps 
outside of the 3-step drill process in Boeing Alert Service Bulletin 
B787-81205-SB530024-00, Issue 002, dated June 5, 2015. We have not 
changed this AD in this regard.

Request To Clarify Certain Language in the SUMMARY and Discussion 
Sections of the NPRM (79 FR 56682, September 23, 2014) and Paragraph 
(e) of the Proposed AD

    Boeing asked that we clarify the reason for the unsafe condition 
identified in the SUMMARY and Discussion sections of the NPRM (79 FR 
56682, September 23, 2014), and paragraph (e) of the proposed AD. 
Boeing stated that the language ``reports of missing bonded plugs'' 
should be ``reports of missing plugs.'' Boeing noted that bonding the 
plugs into the stringers is the solution, not the issue. Boeing also 
stated that the language ``certain stringers of the forward electrical 
equipment (EE) bay of the lower lobe cargo compartments'' should be 
``certain stringers of the lower lobe cargo compartments.'' Boeing 
noted that the issue occurred in both the forward and aft cargo bilge 
areas, not just the forward compartment, and added that referencing the 
forward EE bay is not relevant to the issue.
    Boeing also asked that we clarify the description of the unsafe 
condition identified in the SUMMARY and Discussion sections of the NPRM 
(79 FR 56682, September 23, 2014), and paragraph (e) of the proposed 
AD. Boeing stated that the language ``reports of misaligned bonded 
plugs'' should be ``misaligned plugs.'' Boeing noted that

[[Page 68439]]

bonding the plugs into the stringers is the solution, not the issue.
    In addition, Boeing asked that we delete ``the cause was determined 
to be miscalculated pressure exposures during design'' and ``could 
result in missing or misaligned bonded plugs which'' from the 
Discussion section of the NPRM (79 FR 56682, September 23, 2014). 
Boeing stated that there is no data showing the cause of the plugs to 
disengage was miscalculated pressure exposures.
    We acknowledge the commenter's concerns and provide the following. 
We agree that the word ``bonded'' should be removed from the language 
in the SUMMARY section of this final rule, and in paragraph (e) of this 
AD, for clarification; we also agree that the language ``the forward EE 
bay'' should be removed throughout this AD, for the reasons provided by 
the commenter; we have changed all applicable sections accordingly.
    In addition, we acknowledge the commenter's request that the cause 
of disengagement of the plugs is incorrect and should be removed from 
the Discussion section of the NPRM (79 FR 56682, September 23, 2014). 
We agree that there is no data showing the cause of the plugs to 
disengage was miscalculated pressure exposures; this issue stems from 
high pressure exposures associated with flight testing pressure 
profiles through pressurization checks during production. However, the 
Discussion section of the of the NPRM is not restated in this final 
rule; therefore, we have not changed this final rule in regard to the 
language in that section.

Request To Include Detailed Rework Instructions

    Boeing asked that we include detailed rework instructions in the 
actions required by paragraph (g) of the proposed AD (79 FR 56682, 
September 23, 2014). Boeing noted that the following language should be 
added before the first sentence: ``Ensure all 80 stringer plugs are 
installed, and apply adhesive to them to ensure they cannot become 
dislodged or misaligned. At 2 locations, this will require rework 
beyond a nominal application of adhesive to the stringer plug. The 
rework at the unique locations will involve the following. . . .''
    We acknowledge the commenter's concern; however, the rework 
instructions are described in detail in the Accomplishment Instructions 
of Boeing Alert Service Bulletin B787-81205-SB530024-00, Issue 002, 
dated June 5, 2015. Since this AD requires accomplishing the actions in 
accordance with this service information, there is no need to describe 
those instructions in detail in paragraph (g) of this AD. We have not 
changed this AD in this regard.

Request To Extend the Compliance Time

    Boeing asked that we extend the compliance time for the bonded plug 
installation from 12 to 24 months. Boeing stated that a conservative 
recalculation of the Boeing risk analysis due to the condition being 
resolved in production, and based on a static fleet size of 88 
airplanes, resulted in a control program time of 66 months. Boeing 
added that a service bulletin compliance time of 24 months will allow 
sufficient time for operator planning, scheduling, and accomplishment 
of the retrofit within the risk-based control program time.
    We do not agree to extend the compliance time to 24 months. In 
developing an appropriate compliance time for this action, we 
considered not only the degree of urgency associated with addressing 
the subject unsafe condition, but the availability of required parts, 
and the practical aspect of doing the bonded plug installation within 
an interval of time that corresponds to the typical scheduled 
maintenance for the majority of affected operators. Under the 
provisions of paragraph (i) of this AD, we may approve requests for 
adjustments to the compliance time if data are submitted to 
substantiate that such an adjustment would provide an acceptable level 
of safety. We have not changed this AD 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 changes described previously--and minor editorial 
changes. We have determined that these minor changes:
    <bullet> Are consistent with the intent that was proposed in the 
NPRM (79 FR 56682, September 23, 2014) for correcting the unsafe 
condition; and
    <bullet> Do not add any additional burden upon the public than was 
already proposed in the NPRM (79 FR 56682, September 23, 2014).
    We also determined that these changes will not increase the 
economic burden on any operator or increase the scope of this AD.

Related Service Information Under 1 CFR Part 51

    We reviewed Boeing Alert Service Bulletin B787-81205-SB530024-00, 
Issue 002, dated June 5, 2015. The service information describes 
procedures for drilling a hole and installing and bonding plugs in 
certain stringers of the lower lobe cargo compartments. This service 
information is reasonably available because the interested parties have 
access to it through their normal course of business or by the means 
identified in the ADDRESSES section of this AD.

Costs of Compliance

    We estimate that this AD affects 3 airplanes of U.S. registry.
    We estimate the following costs to comply with this AD:

                                                 Estimated Costs
----------------------------------------------------------------------------------------------------------------
                                                                                    Cost per       Cost on U.S.
               Action                        Labor cost           Parts cost        product         operators
----------------------------------------------------------------------------------------------------------------
Bonded plug installations...........  100 work-hours x $85             $3,466          $11,966    Up to $35,898
                                       per hour = $8,500.
----------------------------------------------------------------------------------------------------------------

    According to the manufacturer, all of the costs of this AD may be 
covered under warranty, thereby reducing the cost impact on affected 
individuals. We do not control warranty coverage for affected 
individuals. As a result, we have included all costs in our cost 
estimate.

Authority for This Rulemaking

    Title 49 of the United States Code specifies the FAA's authority to 
issue rules on aviation safety. Subtitle I, section 106, describes the 
authority of the FAA Administrator. Subtitle VII: Aviation Programs, 
describes in more detail the scope of the Agency's authority.
    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 
promoting safe flight of civil aircraft in

[[Page 68440]]

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):

2015-22-09 The Boeing Company: Amendment 39-18314; Docket No. FAA-
2014-0649; Directorate Identifier 2014-NM-132-AD.

(a) Effective Date

    This AD is effective December 10, 2015.

(b) Affected ADs

    None.

(c) Applicability

    This AD applies to The Boeing Company Model 787-8 airplanes, 
certificated in any category, as identified in Boeing Alert Service 
Bulletin B787-81205-SB530024-00, Issue 002, dated June 5, 2015.

(d) Subject

    Air Transport Association (ATA) of America Code 53, Fuselage.

(e) Unsafe Condition

    This AD was prompted by reports of missing plugs found prior to 
airplane delivery, during manufacturing inspections, at various 
locations in certain stringers of the lower lobe cargo compartments. 
We are issuing this AD to detect and correct missing or misaligned 
plugs which, in the event of a fire, could cause an increased rate 
of loss of Halon in the lower cargo compartments, and result in the 
inability to extinguish a fire and consequent loss of control of the 
airplane.

(f) Compliance

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

(g) Bonded Plug Installation

    Within 12 months after the effective date of this AD: Drill a 
hole in stringers S-34L and S-35L, remove the plugs, and install and 
bond new plugs in the lower lobe cargo compartments, as applicable, 
in accordance with the Accomplishment Instructions of Boeing Alert 
Service Bulletin B787-81205-SB530024-00, Issue 002, dated June 5, 
2015.

(h) Credit for Previous Actions

    This paragraph provides credit for actions required by paragraph 
(g) of this AD, if those actions were performed before the effective 
date of this AD using Boeing Alert Service Bulletin B787-81205-
SB530024-00, Issue 001, dated May 15, 2014, which is not 
incorporated by reference in this AD.

(i) 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 (i) 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 local flight standards district office/certificate holding 
district office.
    (3) For service information that contains steps that are labeled 
as Required for Compliance (RC), the provisions of paragraphs 
(i)(3)(i) and (i)(3)(ii) apply.
    (i) The steps labeled as RC, including substeps under an RC step 
and any figures identified in an RC step, must be done to comply 
with the AD. An AMOC is required for any deviations to RC steps, 
including substeps and identified figures.
    (ii) Steps not labeled as RC may be deviated from using accepted 
methods in accordance with the operator's maintenance or inspection 
program without obtaining approval of an AMOC, provided the RC 
steps, including substeps and identified figures, can still be done 
as specified, and the airplane can be put back in an airworthy 
condition.

(j) Related Information

    For more information about this AD, contact Francis Smith, 
Aerospace Engineer, Cabin Safety and Environmental Systems Branch, 
ANM-150S, FAA, Seattle Aircraft Certification Office, 1601 Lind 
Avenue SW., Renton, WA 98057-3356; phone: 425-917-6596; fax: 425-
917-6590; email: [email protected].

(k) Material Incorporated by Reference

    (1) The Director of the Federal Register approved the 
incorporation by reference (IBR) of the service information listed 
in this paragraph under 5 U.S.C. 552(a) and 1 CFR part 51.
    (2) You must use this service information as applicable to do 
the actions required by this AD, unless the AD specifies otherwise.
    (i) Boeing Alert Service Bulletin B787-81205-SB530024-00, Issue 
002, dated June 5, 2015.
    (ii) Reserved.
    (3) 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 https://www.myboeingfleet.com.
    (4) You may view this 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: http://www.archives.gov/federal-register/cfr/ibr-locations.html.

    Issued in Renton, Washington, on October 22, 2015.
Jeffrey E. Duven,
Manager, Transport Airplane Directorate, Aircraft Certification 
Service.
[FR Doc. 2015-27954 Filed 11-4-15; 8:45 am]
BILLING CODE 4910-13-P

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