80 FR 12697 - Emergency Locator Transmitters (ELTs)

DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration

Federal Register Volume 80, Issue 46 (March 10, 2015)

Page Range		12697-12698
FR Document		2015-05500

FAA evaluated five separate courses of action with regard to the airworthiness approvals for securing ELTs with hook and loop fasteners. This notice summarizes the inadequacies of hook and loop fasteners as a means for securing ELTs, and avoids placing an undue burden on aircraft owners while acknowledging the voluntary efforts of ELT manufacturers to improve designs.

Federal Register, Volume 80 Issue 46 (Tuesday, March 10, 2015)

[Federal Register Volume 80, Number 46 (Tuesday, March 10, 2015)]
[Notices]
[Pages 12697-12698]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2015-05500]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration


Emergency Locator Transmitters (ELTs)

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Notice recommending voluntary change to securing existing ELTs 
as specified in Technical Standard Order (TSO)-C126b, 406MHz Emergency 
Locator Transmitter.

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SUMMARY: FAA evaluated five separate courses of action with regard to 
the airworthiness approvals for securing ELTs with hook and loop 
fasteners. This notice summarizes the inadequacies of hook and loop 
fasteners as a means for securing ELTs, and avoids placing an undue 
burden on aircraft owners while acknowledging the voluntary efforts of 
ELT manufacturers to improve designs.

DATES: Comments must be received on or before April 9, 2015.

FOR FURTHER INFORMATION CONTACT: Ms. Charisse R. Green, AIR-131, 
Federal Aviation Administration, 470 L'Enfant Plaza, Suite 4102, 
Washington, DC 20024. Telephone (202) 267-8551, fax (202) 267-8589, 
email to: Charisse.Green@faa.gov.

SUPPLEMENTARY INFORMATION:

Background

    Investigations of some recent aircraft accidents disclosed that 
ELTs mounted with hook and loop fasteners became dislodged from their 
mounting trays on impact. The separation of those ELTs from their 
mounting trays caused their antenna connection to sever, thus rendering 
the ELTs to be ineffective and unable to perform their intended 
function.
    The FAA Modernization and Reform Act of 2012 (Pub. L. 112-95), 
Section 347(b)(1), required the FAA to determine if the ELT mounting 
requirements and retention tests specified by TSO-C91a and TSO-C126 
were adequate to assess retention capabilities in ELT designs. Based on 
the determination, the Act, in Section 347(b)(2), required the 
Administrator to make any necessary revisions to the requirements and 
retention test to ensure ELTs remained properly retained in the event 
of an aircraft accident.
    The FAA evaluated the mounting requirements and retention tests 
specified in TSO-C91a, TSO-C126, and TSO-C126a. After this evaluation, 
the FAA determined these standards did not adequately address the use 
of hook and loop fasteners. Hook and loop fasteners were not an 
acceptable means of compliance to meet the mounting and retention 
requirements of the ELT TSOs. While the evaluation of installation 
approval using hook and loop fasteners may meet the TSO requirements 
for retention forces in laboratory conditions, accident investigations 
found these fasteners did not perform their intended function.

FAA Concerns

    The agency identified the following concerns after completing its 
evaluation of the use of hook and loop fasteners:
    (1) Hook and loop fasteners fail to retain the ELT when 
insufficient tension is applied to close the fastener. There is no 
repeatable method for installation and no method to evaluate the 
tension of the hook and loop fastener. The allowance for pilots to 
secure ELTs to the aircraft when changing ELT batteries

[[Page 12698]]

further increases the potential for inconsistent and unsatisfactory 
installations;
    (2) Hook and loop fasteners closed with proper tension may stretch 
or loosen over time due to wear, fluids, vibration, and repeated use, 
leading to insufficient tension to retain the ELT;
    (3) Hook and loop fasteners closed with proper tension do not 
provide stated retention capability due to debris which can contaminate 
the hooks and loops of the fastener; and
    (4) Hook and loop fasteners closed with proper tension degrade due 
to environmental factors such as repeated heating and cooling cycles, 
temperature extremes, and contamination resulting from location in 
equipment areas.

FAA Actions

    After publishing our initial intent to withdraw the TSO 
Authorizations (TSOA) for TSO-C91a, and TSO-C126/126a (See 135 FR 
41,473 (2012)), the FAA considered five courses of action to mitigate 
safety concerns with the use of hook and loop fasteners to retain ELTs. 
These actions addressed design, production, and airworthiness approvals 
for both the TSO and retrofit for existing installations. Below is a 
summary of the actions and their outcomes:
    (1) Recommendation to revise Installation and Maintenance manuals. 
The FAA published a Safety Awareness Information Bulletin (SAIB) HQ-12-
32, Hook and Loop Style Fasteners as a Mounting Mechanism for Emergency 
Locator Transmitters, on May 23, 2012. The SAIB outlined actions ELT 
manufacturers could take to improve their installation and maintenance 
instructions to mitigate the concerns with hook and loop retention.
    (2) Revised TSO-C126a for 406 MHz ELTs. The FAA published TSO-
C126b, 406 MHz Emergency Locator Transmitters, on November 26, 2012. 
The TSO precluded the use of hook and loop fasteners as a primary means 
of securing an ELT in its mounting tray for future ELT designs. TSO-
C91a was previously cancelled, and a revision was not needed.
    (3) Determined need for an Airworthiness Directive to correct ELTs 
with hook and loop fasteners. The FAA accomplished a Corrective Action 
Review Board (CARB) to determine if existing airworthiness approvals 
and existing Technical Standard Order authorizations required 14 CFR 
part 39 Airworthiness Directive (AD) action. The CARB determined an AD 
was not warranted.
    (4) Cease airworthiness approval of ELTs with hook and loop 
fasteners. Not necessary. Manufacturers with ELT designs incorporating 
hook and loop fasteners which failed to perform their intended function 
in accidents either have revised or are in the process of revising 
their designs, minimizing the need for policy in this area.
    (5) Withdrawal of ELT TSO Authorizations. Not pursued. 
Manufacturers with ELT designs incorporating hook and loop fasteners 
that failed to perform their intended function have either revised or 
are revising their designs, minimizing the need for this action.

Conclusion

    The FAA issued an SAIB providing ELT installation and maintenance 
guidance and revised TSO-C126a to eliminate hook and loop fasteners 
from future TSO designs. The FAA is not issuing an airworthiness 
directive or a policy disallowing installation approval of ELTs that 
use hook and loop fasteners. Lastly, the FAA decided not to take the 
action of withdrawing the TSO authorizations of ELTs utilizing hook and 
loop fasteners as a mounting mechanism, but ask those aircraft owners/
operators with ELTs secured with hook and loop fasteners in their 
aircraft to voluntarily switch to a metal strap type restraint method. 
Therefore, the proposed June 30, 2014 date for TSOA withdrawals is no 
longer applicable.

    Issued in Washington, DC, on March 4, 2015.
Susan J.M. Cabler,
Acting Manager, Design, Manufacturing, and Airworthiness Division, 
Aircraft Certification Service.
[FR Doc. 2015-05500 Filed 3-9-15; 8:45 am]
 BILLING CODE 4910-13-P

12698 Federal Register / Vol. 80, No. 46 / Tuesday, March 10, 2015 / Notices

further increases the potential for necessary. Manufacturers with ELT necessary to facilitate an efficient
inconsistent and unsatisfactory designs incorporating hook and loop transition to UDLs with a 90-day
installations; fasteners which failed to perform their minimum battery operating life
(2) Hook and loop fasteners closed intended function in accidents either manufactured to the TSO–C121b
with proper tension may stretch or have revised or are in the process of specifications.
loosen over time due to wear, fluids, revising their designs, minimizing the FOR FURTHER INFORMATION CONTACT: Mr.
vibration, and repeated use, leading to need for policy in this area. John Barry, AIR–130, Federal Aviation
insufficient tension to retain the ELT; (5) Withdrawal of ELT TSO
(3) Hook and loop fasteners closed Administration, 470 L’Enfant Plaza,
Authorizations. Not pursued. SW., Suite 4102, Washington, DC 20024.
with proper tension do not provide Manufacturers with ELT designs
stated retention capability due to debris Telephone 202–267–1665, Fax 202–
incorporating hook and loop fasteners 267–8589, email: john.barry@faa.gov.
which can contaminate the hooks and that failed to perform their intended
loops of the fastener; and SUPPLEMENTARY INFORMATION:
function have either revised or are
(4) Hook and loop fasteners closed revising their designs, minimizing the Background
with proper tension degrade due to need for this action.
environmental factors such as repeated The FAA published a Notice in the
heating and cooling cycles, temperature Conclusion Federal Resister, 76 FR 52734, August
extremes, and contamination resulting 23, 2011, announcing the planned
The FAA issued an SAIB providing
from location in equipment areas. revocation of TSO–C121 and TSO–
ELT installation and maintenance
C121a. Notice of that conformation was
FAA Actions guidance and revised TSO–C126a to
published in the Federal Register, 77 FR
eliminate hook and loop fasteners from
After publishing our initial intent to 13174, March 5, 2012. Thus far, only
future TSO designs. The FAA is not
withdraw the TSO Authorizations two manufacturers currently hold TSO
issuing an airworthiness directive or a
(TSOA) for TSO–C91a, and TSO–C126/ authorizations (TSOAs) under TSO–
policy disallowing installation approval
126a (See 135 FR 41,473 (2012)), the C121 or TSO–C121a; both are domestic.
of ELTs that use hook and loop
FAA considered five courses of action to Both manufacturers are now authorized
fasteners. Lastly, the FAA decided not
mitigate safety concerns with the use of to produce longer duration TSO–C121b
to take the action of withdrawing the
hook and loop fasteners to retain ELTs. units as envisioned by the March 5,
TSO authorizations of ELTs utilizing
These actions addressed design, 2012 Federal Register notice. One
hook and loop fasteners as a mounting
production, and airworthiness manufacturer received its TSO–C121b
mechanism, but ask those aircraft
approvals for both the TSO and retrofit authorization in December 2014, the
owners/operators with ELTs secured
for existing installations. Below is a other in February 2015. Although both
with hook and loop fasteners in their
summary of the actions and their manufacturers received approval to
aircraft to voluntarily switch to a metal
outcomes: manufacture devices meeting the
strap type restraint method. Therefore,
(1) Recommendation to revise current standard, the TSOA by itself
the proposed June 30, 2014 date for
Installation and Maintenance manuals. does not authorize installation in an
TSOA withdrawals is no longer
The FAA published a Safety Awareness aircraft. Recent events have driven
applicable.
Information Bulletin (SAIB) HQ–12–32, additional testing requirements for
Hook and Loop Style Fasteners as a Issued in Washington, DC, on March 4, installation of lithium batteries, which
Mounting Mechanism for Emergency 2015. these devices contain. Prior to the
Locator Transmitters, on May 23, 2012. Susan J.M. Cabler, FAA’s issuing the TSOAs to the two
The SAIB outlined actions ELT Acting Manager, Design, Manufacturing, and applicants, testing of the lithium
manufacturers could take to improve Airworthiness Division, Aircraft Certification batteries produced satisfactory results,
their installation and maintenance Service. such that the newly approved TSO–
instructions to mitigate the concerns [FR Doc. 2015–05500 Filed 3–9–15; 8:45 am] C121b devices will contain the effects of
with hook and loop retention. BILLING CODE 4910–13–P catastrophic battery failures. The ULD
(2) Revised TSO–C126a for 406 MHz manufacturer’s data may be used to
ELTs. The FAA published TSO–C126b, support installations of the device on an
406 MHz Emergency Locator DEPARTMENT OF TRANSPORTATION aircraft, but each installer must analyze
Transmitters, on November 26, 2012. their design for safety impacts on their
Federal Aviation Administration aircraft. A major aircraft manufacturer
The TSO precluded the use of hook and
loop fasteners as a primary means of Underwater Locating Devices requested additional time to complete
securing an ELT in its mounting tray for (Acoustic) (Self-Powered) testing and analysis of the TSO–C121b
future ELT designs. TSO–C91a was device’s installation. They also
previously cancelled, and a revision was AGENCY: Federal Aviation requested additional time to update
not needed. Administration, FAA, DOT. their part numbers and drawings in
(3) Determined need for an ACTION: Notice to extend the revocation their various Type Certificated (TC)
Airworthiness Directive to correct ELTs date of Technical Standard Order (TSO) aircraft once the analysis is complete.
with hook and loop fasteners. The FAA C–121 and C–121a, Underwater Granting this additional time will
accomplished a Corrective Action Locating Devices (ULD) (Acoustic) (Self- prevent a disruption in aircraft
Review Board (CARB) to determine if Powered). production as the necessary
mstockstill on DSK4VPTVN1PROD with NOTICES

existing airworthiness approvals and documentation changes are updated to
existing Technical Standard Order SUMMARY: This Notice extends the reflect the current production of TSO–
authorizations required 14 CFR part 39 planned revocation date of Technical C121b devices.
Airworthiness Directive (AD) action. Standard Order (TSO) authorization for
The CARB determined an AD was not the production of Underwater Locating Conclusion
warranted. Devices (ULD) (Acoustic) (Self-Powered) Based on the recent award of TSO–
(4) Cease airworthiness approval of manufactured to TSO–C121 and TSO C– C121b authorizations, additional testing
ELTs with hook and loop fasteners. Not 121a specifications. This action is and analysis of lithium battery

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Document Created: 2018-02-21 09:34:48
Document Modified: 2018-02-21 09:34:48

Category		Regulatory Information
Collection		Federal Register
sudoc Class		AE 2.7: GS 4.107: AE 2.106:
Publisher		Office of the Federal Register, National Archives and Records Administration
Section		Notices
Action		Notice recommending voluntary change to securing existing ELTs as specified in Technical Standard Order (TSO)-C126b, 406MHz Emergency Locator Transmitter.
Dates		Comments must be received on or before April 9, 2015.
Contact		Ms. Charisse R. Green, AIR-131, Federal Aviation Administration, 470 L'Enfant Plaza, Suite 4102, Washington, DC 20024. Telephone (202) 267-8551, fax (202) 267-8589, email to: [email protected]
FR Citation		80 FR 12697

80 FR 12697 - Emergency Locator Transmitters (ELTs)

DEPARTMENT OF TRANSPORTATIONFederal Aviation Administration

Federal Register Volume 80, Issue 46 (March 10, 2015)

DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration