Airworthiness Directives; The Boeing Company Airplanes

[Federal Register Volume 86, Number 34 (Tuesday, February 23, 2021)]
[Rules and Regulations]
[Pages 10780-10784]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-03592]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 39

[Docket No. FAA-2020-0331; Product Identifier 2020-NM-019-AD; Amendment 
39-21397; AD 2021-02-14]
RIN 2120-AA64


Airworthiness Directives; The Boeing Company Airplanes

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Final rule.

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SUMMARY: The FAA is adopting a new airworthiness directive (AD) for 
certain The Boeing Company Model 737-600, -700, -700C, -800, -900, and 
-900ER series airplanes. This AD was prompted by a report that the 
necessary sealant was not applied to the side of body (SOB) slot as a 
result of a production drawing that provided unclear SOB slot sealant 
application instructions. This AD requires a general visual inspection 
for insufficient sealant in the SOB slot, and related investigative and 
corrective actions. The FAA is issuing this AD to address the unsafe 
condition on these products.

DATES: This AD is effective March 30, 2021.
    The Director of the Federal Register approved the incorporation by 
reference of a certain publication listed in this AD as of March 30, 
2021.

ADDRESSES: For service information identified in this final rule, 
contact Boeing Commercial Airplanes, Attention: Contractual & Data 
Services (C&DS), 2600 Westminster Blvd., MC 110-SK57, Seal Beach, CA 
90740-5600; telephone 562-797-1717; internet https://www.myboeingfleet.com. You may view this service information at the 
FAA, Airworthiness Products Section, Operational Safety Branch, 2200 
South 216th St., Des Moines, WA. For information on the availability of 
this material at the FAA, call 206-231-3195. It is also available on 
the internet at https://www.regulations.gov by searching for and 
locating Docket No. FAA-2020-0331.

Examining the AD Docket

    You may examine the AD docket on the internet at https://www.regulations.gov by searching for and locating Docket No. FAA-2020-
0331; or in person at Docket Operations between 9 a.m. and 5 p.m., 
Monday through Friday, except Federal holidays. The AD docket contains 
this final rule, any comments received, and other

[[Page 10781]]

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

FOR FURTHER INFORMATION CONTACT: James Laubaugh, Aerospace Engineer, 
Propulsion Section, FAA, Seattle ACO Branch, 2200 South 216th St., Des 
Moines, WA 98198; phone and fax: 206-231-3622; email: 
[email protected].

SUPPLEMENTARY INFORMATION:

Discussion

    The FAA 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 737-600, -700, -700C, -800, -900, and -900ER series 
airplanes. The NPRM published in the Federal Register on May 6, 2020 
(85 FR 26893). The NPRM was prompted by a report indicating that the 
necessary sealant was not applied to the SOB slot as a result of a 
production drawing providing unclear SOB slot sealant application 
instructions on certain The Boeing Company Model 737-600, -700, -700C, 
-800, -900, and -900ER series airplanes. The NPRM proposed to require a 
general visual inspection for insufficient sealant in the SOB slot, and 
related investigative and corrective actions.
    The FAA is issuing this AD to address fuel leaking into the air 
distribution mix bay (ADMB), which if not addressed, could possibly 
lead to an ignition of flammable fluid vapors, fire, or explosion, or 
fuel vapor inhalation by passengers and crew.

Comments

    The FAA gave the public the opportunity to participate in 
developing this final rule. The following presents the comments 
received on the NPRM and the FAA's response to each comment.

Supportive Comment

    United Airlines stated it had no technical objection to the NPRM.

Effects of Winglets on Accomplishment of the Proposed Actions

    Aviation Partners Boeing stated that the installation of blended or 
split scimitar winglets per Supplemental Type Certificate (STC) 
ST00830SE does not affect compliance with the proposed actions.
    The FAA agrees with the commenter that STC ST00830SE does not 
affect the accomplishment of the manufacturer's service instructions. 
Therefore, the installation of STC ST00830SE does not affect the 
ability to accomplish the actions required by this AD. The FAA has not 
changed this AD in this regard.

Request To Reference Later Revision of Multi Operator Message (MOM)

    Boeing requested that the FAA revise the proposed AD to reference a 
later revision of the MOM, specifically, Boeing Multi Operator Message 
MOM-MOM-20-0049-01B(R2), with an anticipated publication date of July 
31, 2020. Boeing stated that the revision has improved illustration and 
work instructions, clarifies how to distinguish between certain 
application flaws and more severe flaws and deterioration, and provides 
relief from certain corrective actions for certain secondary fuel 
barrier coating conditions.
    The FAA agrees to reference a later revision of the service 
information. However, Boeing has released additional later revisions 
that provide additional clarity. Boeing Multi Operator Message MOM-MOM-
20-0049-01B(R4), dated September 28, 2020, provides clarification on 
the definitions of sufficient sealant in the SOB slot, fillet seal in 
the SOB slot, and secondary fuel barrier. It also provides 
clarifications to the inspection area, and revisions were made to 
improve the identification of applicable figures. The changes in the 
revision provide relief on repairs of serviceable secondary fuel 
barrier coating. This later revision 4 contains no substantive change 
from MOM-MOM-20-0049-01B(R1), dated January 29, 2020. The FAA has 
revised paragraphs (g) and (i) of this AD to reference Boeing Multi 
Operator Message MOM-MOM-20-0049-01B(R4), dated September 28, 2020. The 
FAA has also added paragraph (j) to this AD to provide credit for 
accomplishing certain earlier revisions of this service information 
before the effective date of this AD.

Request To Define Type of Inspection Required

    Delta Air Lines (Delta) requested clarification on what type of 
inspection is needed to accomplish the inspection requirements. Delta 
noted that in the General Notes section of the attachment to Boeing 
Multi Operator Message MOM-MOM-20-0049-01B(R2), dated August 4, 2020, 
the MOM provides a definition of a detailed inspection. However, Delta 
noted that because ``detailed inspection'' is not used in other parts 
of the service information, it seems the definition of a detailed 
visual inspection should have been provided instead. Delta stated that 
this inconsistency could lead to an inability to comply with the 
instructions in the MOM.
    The FAA agrees to clarify. As stated previously, the FAA has 
revised this AD to reference Boeing Multi Operator Message MOM-MOM-20-
0049-01B(R4), dated September 28, 2020, and in this later revision, 
both the steps and General Notes refer to ``detailed inspection'' as 
well as ``general visual inspection.'' The FAA has removed paragraph 
(g) of the proposed AD as this definition is no longer needed. The FAA 
has redesignated subsequent paragraphs accordingly.

Request To Clarify Figures

    Alaska Airlines (Alaska) and Delta requested that the figures 
within Boeing Multi Operator Message MOM-MOM-20-0049-01B(R1), dated 
January 29, 2020, be revised to add clarity. Alaska and Delta stated 
that the figures lack clear reference links from the text to the 
figures. Delta also stated that not addressing the unclear figures 
could lead to incorrect accomplishment of the SOB slot inspection.
    The FAA agrees that the figures are unclear and the internal 
reference links need to be revised. As stated previously, this AD has 
been revised to reference Boeing Multi Operator Message MOM-MOM-20-
0049-01B(R4), dated September 28, 2020, which contains improved figure 
references. No further changes to this AD have been made.

Request To Clarify Inspection Area and Acceptance Criteria for Sealant

    Alaska, Delta, and Southwest Airlines requested clarification on 
what is considered to be acceptable or insufficient sealant in the SOB 
slot. Alaska and Delta requested that the inspection area and 
acceptance criteria for sealant in the SOB slot and secondary fuel 
barrier be clarified. Southwest Airlines proposed a compliance table be 
added to the proposed AD to define acceptable sealant conditions, and 
Alaska supported Southwest Airlines' idea. Delta also suggested that 
the unclear criteria for sealant could lead to incorrect accomplishment 
of the SOB slot inspection.
    The FAA agrees that the criteria for acceptable sealant are 
unclear. As described above, the FAA has revised this AD to refer to 
Boeing Multi Operator Message MOM-MOM-20-0049-01B(R4), dated September 
28, 2020, which clarifies the area of inspection and the acceptable 
conditions of the sealant.

[[Page 10782]]

Request To Clarify an Inspection Area

    Delta requested clarification on the inspection area addressed in 
certain portions (Part 2, Step 3 and View 2D21's flagnote 63) of Boeing 
Multi Operator Message MOM-MOM-20-0049-01B(R1), dated January 29, 2020. 
Delta stated that those parts could be interpreted to specify that the 
entire front spar of the center tank must be inspected for the fillet 
seal and SOB slot, or only the SOB slot area.
    The FAA agrees that the specifications of the area to be inspected 
should be clearer. As discussed above, the FAA has revised this AD to 
reference Boeing Multi Operator Message MOM-MOM-20-0049-01B(R4), dated 
September 28, 2020, which clarifies that only the SOB slot area must be 
inspected as shown in Figure 1 of Boeing Multi Operator Message MOM-
MOM-20-0049-01B(R4), dated September 28, 2020. No additional changes to 
this AD have been made.

Request To Add Service-Based Compliance Time

    Southwest Airlines requested that a service-based compliance time 
be added to the calendar-based compliance time proposed in the NPRM. 
Southwest Airlines proposed that the compliance time be re-written to 
require compliance within ``9 months or 2,000 flight cycles from AD 
effective date, whichever occurs later.'' Southwest Airlines pointed 
out that due to the reduced flight schedules in response to the COVID-
19 pandemic, many airplanes are in long-term storage. Southwest 
Airlines added that some of these long-term storage facilities might 
not be capable of providing heavy maintenance, and airplanes would need 
to be ferried to a facility where these actions may be accomplished.
    The FAA disagrees with adding the 2,000 flight cycles to the 
compliance time. In developing an appropriate compliance time, the FAA 
considered the safety implications, parts availability, and normal 
maintenance schedules. In consideration of all of these factors, the 
FAA determined that the compliance time, as proposed, represents an 
appropriate interval for the general visual inspection for insufficient 
sealant in the SOB slot within the fleet, while still maintaining an 
adequate level of safety. However, under the provisions of paragraph 
(k) of this AD, the FAA will consider requests for approval of an 
extension of the compliance time if sufficient data are submitted to 
substantiate that the new compliance time would provide an acceptable 
level of safety. The FAA has not changed this AD in this regard.

Request To Extend Compliance Time

    Alaska requested that an additional compliance time deferral of 24 
months be allowed under the following conditions: No fuel contamination 
in the ADMB; no external leak or signs of a previous external leak 
around the SOB slot; insufficient sealing conditions temporarily 
corrected with PR-1826 B-1/4 sealant or SF5387 secondary fuel barrier 
materials, in accordance with certain service information instructions; 
and repetitive inspections for fuel contamination of the ADMB done at 
intervals not to exceed 12 months until the repair specified in 
paragraph (g) of this AD is completed. Alaska stated that the extended 
compliance time would relieve some of the operational impact and would 
aid in planning for the time-intensive repair during a heavy 
maintenance visit.
    The FAA does not agree to provide a 24-month compliance time for 
the repair. The technical specifications provided for the proposed 
alternative sealant for temporary repair do not provide the FAA with 
enough information to determine that the temporary repair would comply 
with the certification basis of the airplane and provide an acceptable 
level of safety when incorporated into the existing fuel system design. 
There is also insufficient information on how the procedures for use in 
the temporary repair would differ from the permanent repair. However, 
under the provisions of paragraph (k) of this AD, the FAA will consider 
requests for approval of an extension of the repair compliance time if 
sufficient data are submitted to substantiate that the conditions and 
temporary repair would provide an acceptable level of safety. The FAA 
has not changed this AD in this regard.

Request To Allow Removing Certain Other Parts To Gain Inspection Access

    American Airlines and Delta requested a revision to the proposed AD 
to allow removing the air return grilles or sidewall panels to expose a 
hole in a beam above the SOB slot area so the inspection of the sealant 
can be done through the opening. Both commenters stated that the access 
procedure specified in Boeing Multi Operator Message MOM-MOM-20-0049-
01B(R1), dated January 29, 2020, removes seats and cabin floor panels 
to gain access to the inspection area. American Airlines also stated 
that allowing the alternative access procedure for the inspection would 
reduce the amount of time necessary to accomplish an inspection of the 
SOB slot, and that accomplishing any required corrective action would 
then require the removal of seats and cabin floor panels to gain access 
to the SOB slot area.
    The FAA agrees that the inspection could be accomplished by 
removing the air return grilles or sidewall panels. As discussed 
previously, the FAA has revised this AD to reference Boeing Multi 
Operator Message MOM-MOM-20-0049-01B(R4), dated September 28, 2020, 
which does contain this additional method of compliance for accessing 
the inspection area. The FAA has not made any additional revisions to 
this AD in this regard.

Request To Allow Use of Alternative Sealant

    Alaska stated that the sealant AC-360 B1/2, which is specified as 
the sealant to use to fill a void, is discontinued. The FAA infers that 
Alaska wants the AD to be revised to remove reference to the 
discontinued sealant.
    The FAA agrees that the sealant AC-360 B1/2 has been discontinued. 
As discussed above, this AD has been revised to reference Boeing Multi 
Operator Message MOM-MOM-20-0049-01B(R4), dated September 28, 2020, 
which removes the reference to the sealant AC-360 B1/2, but retains the 
reference to sealant BMS 5-142, which is the appropriate sealant to 
use. The FAA has not made any further changes to this AD in this 
regard.

Request To Use Faster-Curing Sealants

    Alaska requested that the FAA allow alternative sealants that cure 
faster than the ones specified in the service information. Alaska 
suggested allowing the use of sealant PR-1826 B1/4 in place of BMS 5-
142, and SF5387 in place of BMS 5-81. Alaska also provided technical 
data sheets for the proposed sealants. Alaska noted that use of the 
slower-curing sealants could result in an airplane being out of service 
for up to 34 hours, and that time could be reduced by use of faster-
curing sealants that provide an equivalent level of safety.
    The FAA agrees that the alternative sealants would provide a faster 
cure time. However, the FAA does not have enough data to determine if 
the alternative sealants comply with the certification basis of the 
airplane and if they will provide an acceptable level of safety when 
incorporated into the existing fuel system design. The FAA will 
consider requests for alternative sealants as an alternative method of 
compliance if requested using the procedure specified in paragraph (k) 
of

[[Page 10783]]

this AD. The FAA has not changed the AD in this regard.

Conclusion

    The FAA reviewed the relevant data, considered the comments 
received, and determined that air safety and the public interest 
require adopting this final rule with the changes described previously 
and minor editorial changes. The FAA has determined that these minor 
changes:
    <bullet> Are consistent with the intent that was proposed in the 
NPRM for addressing the unsafe condition; and
    <bullet> Do not add any additional burden upon the public than was 
already proposed in the NPRM.
    The FAA also determined that these changes will not increase the 
economic burden on any operator or increase the scope of this final 
rule.

Related Service Information Under 1 CFR Part 51

    The FAA reviewed Boeing Multi Operator Message MOM-MOM-20-0049-
01B(R4), dated September 28, 2020. This service information describes 
procedures for a general visual inspection for insufficient sealant in 
the SOB slot. The service information also describes procedures for 
related investigative actions including a general visual inspection of 
the ADMB for fuel contamination, a check for external leaks of the 
center fuel tank external surfaces inside the pressure boundary, and an 
internal leak check of the center fuel tank to identify the leakage 
path(s). The service information also describes procedures for 
corrective actions including removal of all insulation blankets below 
the crease beam (left side to right side), clean-up of all fuel 
contamination, repair of any leak, preparation of the SOB slot for 
sealing, application of sealant, and repair of the secondary fuel 
barrier. 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.

Costs of Compliance

    The FAA estimates that this AD affects 731 airplanes of U.S. 
registry. The FAA estimates the following costs to comply with this AD:

                                                 Estimated Costs
----------------------------------------------------------------------------------------------------------------
                                                                                     Cost per      Cost on U.S.
                Action                         Labor cost           Parts cost        product        operators
----------------------------------------------------------------------------------------------------------------
Inspection for sealant................  30 work-hours x $85 per               $0          $2,550      $1,864,050
                                         hour = $2,550.
----------------------------------------------------------------------------------------------------------------

    The FAA estimates the following costs to do any necessary repairs 
that would be required based on the results of the inspection. The FAA 
has no way of determining the number of aircraft that might need these 
repairs:

                                               On-Condition Costs
----------------------------------------------------------------------------------------------------------------
                                                                                                     Cost per
                    Action                                 Labor cost               Parts cost        product
----------------------------------------------------------------------------------------------------------------
Repair of sealant.............................  2 work-hours x $85 per hour =               $129            $299
                                                 $170.
Insulation blanket replacement................  24 work-hours x $85 per hour =             6,312           8,352
                                                 $2,040.
Leak checks...................................  6 work-hours x $85 per hour =                  0             510
                                                 $510.
----------------------------------------------------------------------------------------------------------------

Authority for This Rulemaking

    Title 49 of the United States Code specifies the FAA's authority to 
issue rules on aviation safety. Subtitle I, section 106, describes the 
authority of the FAA Administrator. Subtitle VII: Aviation Programs, 
describes in more detail the scope of the Agency's authority.
    The FAA is issuing this rulemaking under the authority described in 
Subtitle VII, Part A, Subpart III, Section 44701: General requirements. 
Under that section, Congress charges the FAA with promoting safe flight 
of civil aircraft in air commerce by prescribing regulations for 
practices, methods, and procedures the Administrator finds necessary 
for safety in air commerce. This regulation is within the scope of that 
authority because it addresses an unsafe condition that is likely to 
exist or develop on products identified in this rulemaking action.

Regulatory Findings

    This AD will not have federalism implications under Executive Order 
13132. This AD will not have a substantial direct effect on the States, 
on the relationship between the national government and the States, or 
on the distribution of power and responsibilities among the various 
levels of government.
    For the reasons discussed above, I certify that this AD:
    (1) Is not a ``significant regulatory action'' under Executive 
Order 12866,
    (2) Will not affect intrastate aviation in Alaska, and
    (3) Will not have a significant economic impact, positive or 
negative, on a substantial number of small entities under the criteria 
of the Regulatory Flexibility Act.

List of Subjects in 14 CFR Part 39

    Air transportation, Aircraft, Aviation safety, Incorporation by 
reference, Safety.

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:

2021-02-14 The Boeing Company: Amendment 39-21397 ; Docket No. FAA-
2020-0331; Product Identifier 2020-NM-019-AD.

(a) Effective Date

    This airworthiness directive (AD) is effective March 30, 2021.

(b) Affected ADs

    None.

[[Page 10784]]

(c) Applicability

    This AD applies to The Boeing Company Model 737-600, -700, -
700C, -800, -900, and -900ER series airplanes, certificated in any 
category, line numbers 1 through 1934 inclusive.

(d) Subject

    Air Transport Association (ATA) of America Code 28, Fuel.

(e) Unsafe Condition

    This AD was prompted by a report that sealant was not applied to 
the side of body (SOB) slot inside of a pressurized boundary, which 
could lead to inconsistent application of the required secondary 
fuel barrier sealant (vapor barrier). The FAA is issuing this AD to 
address possible ignition of flammable fluid vapors, fire, or 
explosion, or fuel vapor inhalation by passengers and crew.

(f) Compliance

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

(g) SOB Slot Inspection and Related Investigative and Corrective 
Actions

    Within 9 months after the effective date of this AD: Do a 
general visual inspection for insufficient sealant in the SOB slot, 
and do all applicable related investigative and corrective actions, 
in accordance with Boeing Multi Operator Message MOM-MOM-20-0049-
01B(R4), dated September 28, 2020. Do all related investigative and 
corrective actions before further flight, except as provided in 
paragraph (h) of this AD.

(h) Deferred Repair

    Repair of insufficient sealant as required by paragraph (g) of 
this AD may be deferred for 10 days provided there is no fuel 
present in the center tank as specified in the procedures in item 
28-02A of the operator's existing FAA-approved minimum equipment 
list, and there is no fuel contamination in the air distribution mix 
bay (ADMB).

(i) Reporting Provisions

    Although the service information referenced in Boeing Multi 
Operator Message MOM-MOM-20-0049-01B(R4), dated September 28, 2020, 
specifies to report inspection findings, this AD does not require 
any report.

(j) Credit for Previous Actions

    This paragraph provides credit for the actions specified in 
paragraphs (g), (h), and (i) of this AD, if those actions were 
performed before the effective date of this AD using the service 
information identified in paragraph (j)(1), (2), or (3) of this AD.
    (1) Boeing Multi Operator Message MOM-MOM-20-0049-01B(R1), dated 
January 29, 2020.
    (2) Boeing Multi Operator Message MOM-MOM-20-0049-01B(R2), dated 
August 4, 2020.
    (3) Boeing Multi Operator Message MOM-MOM-20-0049-01B(R3), dated 
September 23, 2020.

(k) Alternative Methods of Compliance (AMOCs)

    (1) The Manager, Seattle ACO Branch, FAA, has the authority to 
approve AMOCs for this AD, if requested using the procedures found 
in 14 CFR 39.19. In accordance with 14 CFR 39.19, send your request 
to your principal inspector or local Flight Standards District 
Office, as appropriate. If sending information directly to the 
manager of the certification office, send it to the attention of the 
person identified in paragraph (l)(1) 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) An AMOC that provides an acceptable level of safety may be 
used for any repair, modification, or alteration required by this AD 
if it is approved by The Boeing Company Organization Designation 
Authorization (ODA) that has been authorized by the Manager, Seattle 
ACO Branch, FAA, to make those findings. To be approved, the repair 
method, modification deviation, or alteration deviation must meet 
the certification basis of the airplane, and the approval must 
specifically refer to this AD.

(l) Related Information

    (1) For more information about this AD, contact James Laubaugh, 
Aerospace Engineer, Propulsion Section, FAA, Seattle ACO Branch, 
2200 South 216th St., Des Moines, WA 98198; phone and fax: 206-231-
3622; email: [email protected].
    (2) Service information identified in this AD that is not 
incorporated by reference is available at the addresses specified in 
paragraphs (m)(3) and (4) of this AD.

(m) 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 Multi Operator Message MOM-MOM-20-0049-01B(R4), dated 
September 28, 2020.
    (ii) [Reserved]
    (3) For service information identified in this AD, contact 
Boeing Commercial Airplanes, Attention: Contractual & Data Services 
(C&DS), 2600 Westminster Blvd., MC 110-SK57, Seal Beach, CA 90740-
5600; telephone 562-797-1717; internet https://www.myboeingfleet.com.
    (4) You may view this service information at the FAA, 
Airworthiness Products Section, Operational Safety Branch, 2200 
South 216th St., Des Moines, WA. For information on the availability 
of this material at the FAA, call 206-231-3195.
    (5) You may view this service information that is incorporated 
by reference at the National Archives and Records Administration 
(NARA). For information on the availability of this material at 
NARA, email [email protected], or go to: https://www.archives.gov/federal-register/cfr/ibr-locations.html.

    Issued on January 14, 2021.
Lance T. Gant,
Director, Compliance & Airworthiness Division, Aircraft Certification 
Service.
[FR Doc. 2021-03592 Filed 2-22-21; 8:45 am]
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