U.S. Department of Transportation Federal Aviation Administration Advisory Circular Subject: Certification: Pilots and Flight and Ground Instructors Date: 2/25/16 AC No: 61-65F Initiated by: AFS-800 Change:
This advisory circular (AC) provides guidance for pilot applicants, pilots, flight instructors, ground instructors, and examiners on the certification standards, knowledge test procedures, and other requirements in Title 14 of the Code of Federal Regulations (14 CFR) part 61. This revision provides guidance for those persons seeking a student pilot certificate and endorsements for student pilot privileges.
ORIGINAL SIGNED by /s/ John S. Duncan Director, Flight Standards Service
CONTENTS Paragraph Page
1. Purpose1
2. Cancellation1
3. Related Reading Material (current editions)1
4. Pilot Training and Testing1
5. Knowledge Tests2
6. Completion of Ground Training or a Home Study Curriculum2
7. Verification of Identity, Age, and English Language Proficiency3
8. Practical Tests5
9. Light-Sport Aircraft with a Single Pilot Station6
10. Prerequisites for Practical Tests7
11. Student Pilot Certification8
12. Acceptance of a Student Pilot Application8
13. IACRA9
14. CFI Registration Process for Accepting an Application for a
Student Pilot Certificate9
15. DPE, ACR, ASI/AST Role to Use for Processing Student Pilot Applications9
16. Establishing Eligibility9
17. Application Process Utilizing IACRA10
18. Application Process Utilizing Traditional FAA Form 8710-110
19. Documentation of Identification on Traditional FAA Form 8710-111
20. Presolo Requirements and Privileges11
21. Sport Pilot Certification13
22. Recreational Pilot Certification14
23. Private Pilot Certification14
24. Commercial Pilot Certification15
25. ATP Certification15
26. Flight Instructors Other Than Flight Instructors with a Sport Pilot Rating16
27. Flight Instructors with a Sport Pilot Rating17
28. Gold Seal Flight Instructor Certificates Other Than Flight Instructors with a
Sport Pilot Rating18
29. Gold Seal Flight Instructor Certificates with a Sport Pilot Rating19
30. Renewal of a Flight Instructor Certificate20
31. Expired Flight Instructor Certificate22
32. Instrument Rating22
33. Additional Aircraft Ratings (Other than ATP)23
34. Additional Category/Class Ratings at the ATP Certification Level23
35. Other Instructor Endorsements24
36. Ground Instructor Certification24
37. Authorized Instructors24
CONTENTS (Continued) Paragraph Page
38. Additional Training for Gliders24
39. Where You Can Find This AC25
APPENDIX 1. INSTRUCTOR ENDORSEMENTS (20 pages)1
APPENDIX 2. PILOT CERTIFICATE APPLICANT IDENTITY
VERIFICATION (2 pages)1
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1. PURPOSE. This advisory circular (AC) provides guidance for pilot applicants, pilots, flight instructors, ground instructors, and examiners on the certification standards, knowledge test procedures, and other requirements in Title 14 of the Code of Federal Regulations (14 CFR) part 61.
2. CANCELLATION. AC 61-65E CHG 1, Certification: Pilots and Flight and Ground Instructors, dated January 6, 2014, is canceled.
3. RELATED READING MATERIAL (current editions):
• AC 60-28, FAA English Language Proficiency Standards Required for an FAA Certificate Issued Per 14 CFR Parts 61, 63, and 65.
• AC 61-98, Currency Requirements and Guidance for the Flight Review and Instrument Proficiency Check.
• AC 61-107, Aircraft Operations at Altitudes Above 25,000 Feet Mean Sea Level or Mach Numbers Greater Than .75.
• FAA-G-8082-1, Airline Transport Pilot, Aircraft Dispatcher, and Flight Navigator Knowledge Test Guide.
• FAA-G-8082-5, Commercial Pilot Knowledge Test Guide.
• FAA-G-8082-7, Flight and Ground Instructor Knowledge Test Guide.
• FAA-G-8082-13, Instrument Rating and Instrument Instructor Rating Knowledge Test Guide.
• FAA-G-8082-17, Recreational Pilot and Private Pilot Knowledge Test Guide.
• Federal Aviation Administration (FAA) Order 8080.6, Conduct of Airman Knowledge Tests.
• Special Federal Aviation Regulation (SFAR) No. 100-2, Relief for U.S. Military and Civilian Personnel Who Are Assigned Outside the United States in Support of U.S. Armed Forces Operations.
4. PILOT TRAINING AND TESTING. Part 61 contains the aeronautical experience, certification requirements, responsibilities, privileges, and limitations for each grade of certificate: student pilot, sport pilot, recreational pilot, private pilot, commercial pilot, airline transport pilot (ATP), instrument rating, flight instructor, and ground instructor. Under the “total training concept,” the areas of operation specified for each grade of certificate by part 61 encompasses the areas of operation and tasks contained in the Airman Certification Standards (ACS) or practical test standards (PTS), as appropriate. Instructors are responsible for training applicants “...to acceptable standards in all subject matter areas, procedures, and maneuvers included in the tasks within the appropriate practical test standard.” For example:
a. An applicant for a private pilot certificate must have logged the aeronautical experience as required by part 61 and have had his or her logbook endorsed by his or her certificated flight instructor (CFI) who determines that the applicant is proficient in the appropriate areas of operation listed in part 61, § 61.107(b).
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b. The flight maneuvers associated with each of the areas of operation listed in § 61.107 are found under similar titles in the current editions of the appropriate ACS or PTS. The standards for successful completion of each maneuver and procedure are noted in the elements of each task in the appropriate ACS or PTS.
5. KNOWLEDGE TESTS. The knowledge tests for the sport pilot certificate, recreational pilot certificate, private pilot certificate, commercial pilot certificate, airline transport pilot certificate, flight instructor certificate, ground instructor certificate, and ratings cover the subject areas in which aeronautical knowledge is required by part 61.
a. Knowledge Test Administration. If required by § 61.35(a)(1), an appropriate knowledge test will only be administered to an applicant who presents acceptable evidence of completion of the required training.
b. Evidence of Completion. Applicants are not required to show such evidence to take the ATP, CFI, certificated ground instructor (CGI), military competency, or foreign pilot instrument knowledge tests unless they are applying to retake a test after failing that test (per § 61.49).
However, all persons seeking an ATP Certificate in the airplane category with a multiengine class rating must present a graduation certificate from an approved provider certifying completion of the training required by § 61.156 when applying for the ATP multiengine airplane knowledge test.
c. FAA Computerized Knowledge Test Program. The FAA computerized knowledge test program has been implemented to provide expeditious testing services for applicants at locations and times convenient to the public. For the location of computerized testing centers, contact the nearest Flight Standards District Office (FSDO) or use the list of computerized testing centers at http://www.faa.gov/pilots/testing/.
d. Relief for Persons Supporting U.S. Armed Forces Operations, SFAR 100-2. FSDOs are authorized to accept an expired knowledge test report to show eligibility under part 61 to take a practical test from an eligible person that meets the requirements of SFAR 100-2. The eligible person must present the FSDO with the required documents along with FAA Form 8710-1, Airman Certificate and/or Rating Application.
6. COMPLETION OF GROUND TRAINING OR A HOME STUDY CURRICULUM.
Ground training courses to prepare for the aeronautical knowledge test may be offered by pilot schools, colleges, aviation organizations, and individual flight or ground instructors. Home study curricula are available from representatives of the aviation industry. Home study curricula individually developed by students should be compiled from material described in the applicable FAA knowledge test guide. The student, to show evidence of a ground school or home study curriculum completion, may use any one of the following methods:
a. A certificate of graduation from a pilot training course conducted by an FAA-certificated pilot school, appropriate to the certificate or rating sought, or a statement of accomplishment from the school certifying satisfactory completion of the ground school portion of the course;
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b. An endorsement from an authorized instructor who has certified that the applicant has satisfactorily completed the ground training required for the certificate or rating sought and is prepared for the test;
c. A certificate of graduation or statement of accomplishment from a ground school course, appropriate to the certificate and rating sought that was conducted by an agency such as a high school, college, adult education program, the Civil Air Patrol, or a Reserve Officer’s Training Corps flight training program;
d. A certificate of graduation from an industry-provided aviation home study course. The certificate must be developed by the aeronautical enterprise providing the study material. The certificate of graduation must correspond to the FAA knowledge test for the certificate or rating sought. The aeronautical enterprise providing the course of study must also supply a comprehensive knowledge test, which can be scored as evidence that the student has completed the course of study. The knowledge test must be sent to the course provider for scoring. Upon satisfactory completion of the examination, a graduation certificate signed by an authorized CFI of the course provider will be provided to the student; or
e. Applicants are encouraged to obtain ground training from the sources described in subparagraphs 6a through 6d above. An applicant who is unable to provide any of the above documents when applying for a knowledge test may present an individually developed home study course to an appropriately rated flight or ground instructor. The instructor will review the course materials and may question the applicant to determine that the course was completed and that the applicant does possess the knowledge required for the certificate or rating sought. The instructor will then complete an endorsement certifying that the applicant is prepared for the knowledge test.
7. VERIFICATION OF IDENTITY, AGE, AND ENGLISH LANGUAGE PROFICIENCY. Applicants for knowledge tests and airman certificates must provide positive proof of identification, address, and age at the time of application. The applicant’s English language proficiency must also be assessed at the time of application, as well as during each training and testing event.
a. Identification. An unexpired official government-issued means of identification presented must include a photograph of the applicant and the applicant’s signature. This information may be presented in more than one form of identification. Appendix 2, Pilot Certificate Applicant Identity Verification, provides expanded guidance and suggested documents when verifying the applicant’s identity and examples of accepted forms of identification. Whenever possible, utilize an official U.S. Government Web site for the most current and acceptable forms of identification. The following are recommended U.S. Government Web sites:
• http://www.TSA.gov;
• http://www.DHS.gov; and
• http://www.USCIS.gov.
Par 7 Page 4 NOTE: The content of Appendix 2 is not the only acceptable form of verifying and validating an applicant’s identity.
b. Address. A mailing address (block E2) for delivery of the applicant’s certificate may be indicated on FAA Form 8710-1 or FAA Form 8710-11, Airman Certificate and/or Rating Application – Sport Pilot, as appropriate. However, the residential address (block E1) required for official record purposes for a certificate must represent the airman’s actual permanent residential street number, city, state, and ZIP code, including apartment number where appropriate. If the applicant has a foreign address, the country must be stated. If a residential address does not exist, the applicant must provide, attached to the application, the geographic location of his or her residence on a separate piece of paper and attest by signature. This can be in the form of a map or written directions to the applicant’s physical residential address. An alternate mail delivery address (post office box, rural route, flight school address, personal mail box (PMB), commercial address, or other mail drop location, as applicable) is unacceptable as the applicant’s mailing address, unless the applicant also provides their residential address. In the case of an applicant who resides on a boat, the boat dock number or vessel registration number must be provided. If the applicant resides in a recreational vehicle (RV), the tag number, vehicle identification number (VIN), and registration number must be provided. The flight instructor attaches these papers to FAA Form 8710-1.
NOTE: The address shown in block E2 will be printed on the permanent airman certificate, if different than block E1.
c. Age. Applicants applying for a student pilot certificate, knowledge test, and practical test must show they meet the minimum age requirement for the certificate sought. In the case of an applicant under the age of 18 years, the applicant’s parent or guardian may have to accompany the applicant and identify themselves in accordance with regular application procedures. If the parent or guardian attests to the applicant’s identity, the parent or guardian’s photograph identification information should be placed on the “Airman’s Identification” block of the “Attachments” section of FAA Form 8710-1, and a remark added indicating the parent’s identification was used if the applicant is applying for a student pilot certificate. When applying to take a knowledge test, applicants must show that they will meet the minimum age requirement for the certificate sought within 24 calendar-months of the date of application for the knowledge test, with the exception of those pilots applying for the ATP multiengine airplane knowledge test.
An ATP multiengine airplane knowledge test report is valid for 60 calendar-months. Therefore, the minimum age for an applicant is 18 years of age.
d. English Language Proficiency. Unless otherwise authorized by the Administrator, no person may be issued nor may any person exercise the privileges of an FAA certificate issued under 14 CFR part 61 unless that person meets the FAA Aviation English Language Proficiency (FAA AELP) standard. Designated examiners, flight and ground instructors, training center evaluators, check airmen, training agencies, aviation safety inspectors (ASI), and aviation safety technicians (AST) share the responsibility for ensuring that airmen and applicants meet FAA AELP requirements. Before accepting an application for certification, to include processing an application for a student pilot applicant, or issuing an endorsement for solo operations or a practical test, the applicant’s English language proficiency must be evaluated in accordance with the guidelines contained in the appendix of the current version of AC 60-28, as well as
Par 7 Page 5 Operational Level 4 of the International Civil Aviation Organization (ICAO) Language Proficiency Scale. To ensure the applicant is properly evaluated, FAA AELP Evaluators must develop multiple plans of action as described in AC 60-28 to conduct an FAA AELP evaluation.
This will ensure that their evaluation does not become predictable. Also, FAA AELP Evaluators should access the following Web site to familiarize themselves with ICAO ELP operational levels: http://cfapp.icao.int/rssta/RSSTA.cfm.
NOTE: An evaluation of the airman’s aviation English language proficiency should be made prior to accepting an application for certification, to include processing an application for a student pilot certificate, or issuing an endorsement for solo operations or a practical test.
8. PRACTICAL TESTS.
a. A practical test is conducted to evaluate the applicant’s knowledge, skill, and management of risk for the pilot certificate and rating sought. During a practical test, the examiner will evaluate the applicant based on oral examination and observation of performance-based skills in accordance with the appropriate ACS or PTS. However, oral testing may be used at any time during the practical test. An examiner is responsible for determining whether the applicant meets the standards outlined in the objective of each required task evaluated in accordance with the appropriate ACS or PTS.
b. For elements of a maneuver or procedure on the practical test in which the applicants are required to be tested orally or by written questions, the PTS uses the words “...The applicant exhibits knowledge of...” or “...the applicant exhibits instructional knowledge of...” in the area of each task noted as “Objective.”
c. For elements of a maneuver or procedure on the practical test in which the applicants are required to demonstrate their piloting skills, the PTS uses words such as “considers situations, maintains, utilizes, initiates, transitions to, arrives at, establishes and maintains, remains aware, avoids situations, selects, properly, makes a, recognizes, stops, completes,” etc., in the area of each task noted as “Objective.”
d. For elements associated with tasks in the ACS, similar language is used in the objective as stated above for the PTS; however, the ACS evaluates knowledge, risk management, and skill elements on each task. Each element uses language to clarify whether the evaluation will be accomplished through oral or performance evaluation.
e. In accordance with § 61.45(a), a full flight simulator (FFS) or flight training device (FTD) may be used for some or all of the practical test as authorized through an FAA-approved testing or checking program or curriculum. Use of an Aviation Training Device (ATD) is not authorized on a practical test for a certificate or rating or for an aircraft type rating. Additional information on the use of an FFS, FTD, or ATD can be found in the appropriate appendix of the ACS or PTS for the pilot certificate or rating sought.
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9. LIGHT-SPORT AIRCRAFT WITH A SINGLE PILOT STATION.
a. In accordance with § 61.45(f), a practical test may be conducted in a light-sport aircraft that has a single pilot station. The FAA believes that with certain limitations, it is appropriate to allow the practical test, at the sport pilot certificate level only, to be conducted from the ground by a Designated Pilot Examiner (DPE) or an ASI. The DPE or ASI must agree to conduct the practical test in a single-seat aircraft and must ensure that the practical test is conducted in accordance with the sport pilot PTS or ACS, as appropriate for single-seat aircraft. Knowledge of all tasks applicable to the category/class of aircraft will be evaluated orally. Single-seat sport pilots must demonstrate competency in those specific tasks identified in the ACS or PTS, as appropriate, and any other tasks selected by the examiner. The examiner must be in a position to observe the operation of the aircraft and evaluate the proficiency of the applicant from the ground.
b. The limitation “No passenger carriage and flight in a single-pilot station aircraft only” will be placed on the person’s pilot certificate, which limits a pilot to operations in a single-seat light-sport aircraft, and no passenger carriage will be authorized. Only a DPE or an ASI is authorized to remove this limitation. This can be accomplished when the sport pilot takes a practical test in a two-place light-sport aircraft and conducts the additional tasks identified in the ACS or PTS, as appropriate. This practical test may be conducted in the same or additional category of aircraft.
c. Upon successful completion of the practical test, the limitation will be removed and the sport pilot is authorized to act as pilot in command (PIC) in all categories of light-sport aircraft for which he or she has an endorsement. The limitation can also be removed if the sport pilot completes the certification requirements in an aircraft with a minimum of two places, for a higher certificate or rating.
d. A sport pilot who is issued a certificate with a single-seat limitation must complete a flight review, as required by § 61.56. If the flight review is conducted in an aircraft, it must be in an aircraft with a minimum of two pilot stations, in which the pilot is rated, and with an authorized instructor who is current and qualified to act as PIC.
e. An instructor may perform a proficiency check for an additional category or privilege in accordance with § 61.321 to be added to a sport pilot certificate or higher using a single-seat light-sport aircraft, provided the instructor is also a DPE or an ASI.
f. The instructor or ASI must agree to conduct the practical test in a single-seat light-sport aircraft and must ensure that the proficiency check is conducted in accordance with the sport pilot PTS or ACS, as appropriate, for single-seat aircraft. Knowledge of all tasks applicable to the category or class of aircraft will be evaluated orally. Those pilots seeking sport pilot privileges in a single-seat light-sport aircraft must demonstrate competency in those specific tasks identified in the appropriate ACS or PTS and any other tasks selected by the instructor.
g. The instructor or ASI must have radio contact and be in a position to observe the operation of the light-sport aircraft and evaluate the proficiency of the applicant from the ground.
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h. On successful completion of the proficiency check, the instructor or ASI will issue an endorsement with the following limitation: “No passenger carriage and flight in a single-pilot station aircraft only (add category/class)” limiting the pilot’s operations to a single-seat aircraft in this category and class. The instructor must sign this endorsement with his or her CFI and examiner number.
i. This limitation can be removed once the pilot has successfully completed a proficiency check involving the additional tasks identified in the appropriate ACS or PTS in a two-pilot station light-sport aircraft for the specific category and class rating sought and in accordance with § 61.321. The proficiency check must be conducted in the same category and class of light-sport aircraft. Upon successful completion of the proficiency check, the pilot will be issued an endorsement for the light-sport aircraft privilege sought. The guidance on how to complete the FAA Form 8710-11 sport pilot proficiency check can be found at http://www.faa.gov/ licenses_certificates/airmen_certification/sport_pilot/media/proficiency_check.pdf.
10. PREREQUISITES FOR PRACTICAL TESTS. Except as provided by § 61.39, each applicant must have received an endorsement from an authorized instructor who certified that the applicant received and logged the required flight time/training in preparation for the practical test within 2 calendar-months preceding the month of the application and has been found proficient to pass the practical test.
NOTE: If an endorsement is required, it must also state that the applicant has satisfactory knowledge of the subject areas in which he or she was shown to be deficient by the FAA airman knowledge test report.
a. All applicants must have the required endorsements specified in part 61 for the aircraft category, class, and/or type rating.
b. All applicants who apply for retest of a practical test must present another endorsement from their instructor in accordance with §§ 61.43(f) and 61.49(a)(2) that states the applicant has been given the necessary training and is prepared for the practical test. An instructor’s recommendation on FAA Form 8710-1 is required for each retest following a notice of disapproval conducted for a certificate or rating. Credit of previously passed areas of operations may be given provided the retest is conducted within 60 calendar-days of the date of the notice of disapproval.
c. No additional endorsements are required for applicants who apply for a practical test after being issued a Letter of Discontinuance, provided the practical test is completed within 60 calendar-days from the date on the Letter of Discontinuance.
d. Except as noted below applicants must hold at least a current third-class medical certificate. The following lists those that do not require at least a third-class medical:
(1) An applicant for a sport pilot certificate with a glider category or balloon class rating.
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(2) An applicant for a flight instructor certificate with a sport pilot rating, glider category rating, or a balloon class rating.
(3) An applicant for a pilot certificate with a glider category or balloon class rating.
(4) An applicant being administered a practical test in an FFS or FTD.
e. The ability to read, speak, write, and understand the English language is an eligibility requirement that applies to all pilot certificates, ratings, and privileges. No certificate, rating, or privilege will be issued if the applicant cannot meet this requirement, except when such inability to read, speak, write, and understand the English language is due to medical reasons and as permitted under § 61.13(b), and as allowed by other CFR sections. See paragraph 7 above for additional guidance and reference material.
11. STUDENT PILOT CERTIFICATION. Specific knowledge, flight proficiency, flight experience, and endorsement requirements for the student pilot certificate are located in part 61 subpart C.
a. A person may apply for a student pilot certificate with one of the following authorized individuals: a CFI, a DPE, through an FAA ASI or AST, or with an Airman Certification Representative (ACR) associated with a 14 CFR part 141 pilot school. All student pilot certificates will be issued by the Civil Aviation Registry (AFS-700) on a high quality plastic card stock containing tamper- and counterfeit-resistant features. Once a student pilot certificate has been issued, the pilot must hold a current medical certificate while exercising solo privileges in an airplane, rotorcraft, powered-lift, or airship. Sport, glider and balloon student pilots are not required to hold a medical certificate (refer to § 61.23(b)(3)).
NOTE: A Temporary Airman Certificate will not be issued for use while waiting for the permanent certificate to be received. The permanent certificate must be in the pilot’s possession to exercise solo privileges.
b. Additional information on the eligibility requirements for student pilots can be found in § 61.83, and the general limitations for student pilots can be found in § 61.89.
NOTE: If an applicant has a known medical issue that would require a limitation on their student pilot certificate, refer that applicant to the jurisdictional FSDO to ensure the application is processed with the correct limitations.
12. ACCEPTANCE OF A STUDENT PILOT APPLICATION. Authorized individuals may accept a person’s application for an FAA student pilot certificate by utilizing the FAA’s Integrated Airman Certification and/or Rating Application (IACRA) or the paper FAA Form 8710-1.