AdvisoryU.S. Department of Transportation CircularFederal Aviation Administration Subject: Outdoor Laser Operations Date: 02/14/2022 AC No: 70-1B Initiated By: AJV-P21 This Advisory Circular (AC) provides information to assist proponents planning to conduct outdoor laser operations that may affect aircraft operations in the United States (U.S.) National Airspace System (NAS).
The contents of this document do not have the force and effect of law and are not meant to bind the public in any way. The intent of this document is to provide clarity to the public regarding existing requirements under the law or agency policies.
Digitally signed by Natasha Natasha A. Durkins Date: 2022.02.14 A. Durkins 12:43:07 -05'00' Natasha A. Durkins Director, Policy, AJV-P Air Traffic Organization
1. PURPOSE This AC provides additional context for FAA Form 7140-1, Notice of Proposed Outdoor Laser Operations, explains the necessity and requirements of notification, describes the method to notify the Federal Aviation Administration (FAA) of the planned laser operation, and defines what FAA will do with the notification once received. Additionally, this AC provides detailed instructions to assist with the completion of FAA Form 7140-1.
Using this AC, FAA intends to maintain a high level of safety between laser operations and aircraft operations. FAA requests that laser operators submit information as required via FAA Form 7140-1 (available on FAA’s website1).To assist proponents in providing information for FAA review of the proposed outdoor laser operation, this AC includes the following appendices:
• Appendix A: Instructions for Completing FAA Form 7140-1, Notice of Proposed Outdoor Laser Operation(s)
• Appendix B: Tables and Examples
• Appendix C: MPE and NOHD for a Laser Emitting Multiple Wavelengths from the Same Aperture
• Appendix D: Depictions of Airspace Flight Zones and Graphic Examples
• Appendix E: FAA Service Center Information
• Appendix F: Glossary NOTE: FAA’s interest in these types of operations does not supersede or invalidate any existing rules or ordinances promulgated by other Federal, state, county, or local government. The proponent is responsible for compliance with these requirements.
2. AUTHORITY: The FAA has the authority to regulate the safe and efficient use of the navigable airspace per Title 49 United States Code (U.S.C.) Section 40103, Sovereignty and Use of Airspace, and the Public Right of Transit.
3. EFFECTIVE DATE: February 14, 2022.
4. WHAT THIS AC CANCELS: AC 70-1A, Outdoor Laser Operations, dated March 14, 2019, is canceled.
5. NOTIFICATION Why is it Necessary to Notify FAA?
In recognition of FAA’s role in promoting aviation safety, the Food and Drug Administration (FDA), which regulates lasers per 21 Code of Federal Regulations (CFR) § 1040,2 requires notice to FAA as a condition of a variance for a laser light show, display, or device operated outdoors that intends to project into open airspace at any time. Early notice of the planned
1 https://www.faa.gov/regulations_policies/.
2 https://www.ecfr.gov/current/title-21/chapter-I/subchapter-J/part-1040.
2 activity provides FAA the opportunity to minimize the potentially hazardous adverse effects of laser operations on aircraft operators in the navigable airspace. Appendix C graphics provide general considerations.
FAA recognizes there are varied demands for the use of airspace, both by aviation and nonaviation interests. While FAA makes a sincere effort to find equitable solutions to conflicts and the use of airspace as a national resource, FAA must prioritize safe aviation operations.
What are the Risks of Laser Light in Navigable Airspace?
The leading risk of a laser striking an aircraft is visual interference with a crewmember. Any form of laser illumination can distract a crewmember. If a pilot experiences a laser illumination, the resulting visual effects could lead to loss of life, especially at critical phases of flight, such as take-off or landing. Laser incidents have disrupted aircraft flights (e.g., go-around or return to airport) and other missions (e.g., search and rescue).
Visual effects can range in severity from glare (e.g., oncoming headlights or inability to see outside the aircraft while illuminated) to temporary flashblindness. Temporary flashblindness can cause an afterimage that may persist from several seconds to several minutes. Other effects of laser illumination can include loss of dark adaptation, disorientation, and eye pain.
Additionally, exposure to strong laser light could result in eye injury.
Who Should Submit a FAA Form 7140-1 Notice?
Any person/entity/proponent who plans to conduct outdoor laser operations with visible laser beams, wavelengths of 400 nanometers (nm) to 700 nm,3 exceeding 50 nanowatts per square centimeter (nW/cm2) in navigable airspace or with any laser beams (visible or non-visible) that exceed the maximum permissible exposure (MPE) in navigable airspace should submit Form 7140-1 to FAA.
Navigable airspace is airspace above the minimum altitudes of flight, including airspace needed for the takeoff and landing of aircraft.4 If a proponent is unsure whether a proposed outdoor laser operation will remain completely within non-navigable airspace, FAA encourages proponents to contact the applicable FAA service center for guidance.
When to File a Notice?
FAA requests proponents file a notice at least 30 days before the planned event. This allows FAA sufficient time to accomplish an aeronautical study and make a determination.
How to File the Notice?
File a notice with the appropriate/applicable FAA service center for the area that includes the laser operation site. Appendix E provides a list of service center contact information and the areas for which they are responsible. For laser operations that plan to cross service center
3 FAA relies upon FDA/Center for Devices and Radiological Health’s (CDRH) guidance regarding compliance with IEC 60825-1 Ed. 3 for its definition of the visual spectrum as 400 nm to 700 nm.
4 See 14 CFR 1.1 and FAA Aeronautical Information Manual (AIM).
3 boundaries (normally airborne operations), file a notice with the FAA service center responsible for the location serving as the predominant site for aircraft basing.
What Information Should a Proponent Submit to FAA?
FAA requests the proponent submit the following information:
• A completed FAA Form 7140-1, Notice of Proposed Outdoor Laser Operation(s). This includes a completed Laser Configuration Worksheet (page two of the form) for each laser configuration.
• Detailed diagrams depicting the planned laser paths (see related documents for resources).
• Any other attachments (e.g., worksheets) requested on the form or within these instructions that require more space than the form allows to provide additional information sufficient for FAA to analyze the proposed laser operation.
NOTE: If a proponent plans to use an electronic protection system in lieu of safety observers, use section 6 of FAA Form 7140-1 to describe the control measures and provide any additional documentation to certify that the control measures meet the performance criteria in SAE AS6029, Criteria for Laser Control Measures Used for Aviation Safety (current edition).
What Action Will FAA Take Regarding this Information?
The FAA service center that receives the notice will review the information. If FAA personnel have any questions or need to verify data, FAA will contact the proponent. If FAA has no initial questions for a proponent, FAA will coordinate with parties potentially affected by the proposal as part of its aeronautical review for all proposed outdoor laser operations in the NAS.
The goal of the review is to identify any potential negative effects to aviation safety from the proposed operation. Once complete with the aeronautical review, FAA will issue a letter of determination (LOD) to the proponent. The letter will either state that FAA has no objection to the proposed laser use or that FAA objects and the laser use should not proceed until resolution of objectionable effects.
6. PRINCIPAL CHANGES The FAA revised this AC to reflect changes to FAA Form 7140-1. The FAA also modified content with the goal of enhancing readability. A summary of changes follows.
• Use of decimal notation to improve ease of use.
• Revised instructions to determine MPE, nominal ocular hazard distance (NOHD), and exposure distances.
• Included examples to assist proponents with form completion based on common applications.
• Updated source notes and glossary to increase clarity.
• Updated graphics products to augment items described in the text.
7. RELATED DOCUMENTS This AC should contain sufficient instructions for proponents to complete FAA Form 7140-1, Notice of Proposed Outdoor Laser Operation(s). A list of additional resources useful in understanding the general background of laser safety and regulations regarding aviation procedures and laser safety is as follows.
• Title 49 U.S.C., Subtitle VII, AVIATION PROGRAMS, Part A—Air Commerce and Safety and Part B—Airport Development and Noise: FAA’s regulatory authority.
• FAA Order JO 7400.2, Procedures for Handling Airspace Matters, Chapter 29: Outdoor Laser Operations: Additional information and process for handling notices.
• FAA Advisory Circular 70-2, Reporting of Laser Illumination of Aircraft: Provides guidance for aircrews and air traffic control on the formal reporting of laser illumination incidents.
• FDA 225-99-6000, Memorandum of Understanding between the FDA/CDRH and FAA (available on the FDA/CDRH website): Defines roles and collaboration between FAA and FDA/CDRH.
• 21 CFR Part 1010, Performance Standards for Electronic Products, and Part 1040, Performance Standards for Light Emitting Products (§ 1040.10 applies to laser products and § 1040.11 applies to specific purpose laser products): FDA regulations.
• FDA/CDRH Laser Products-Conformance With IEC 60825-1 Ed. 3 and IEC 60601-2-22 Ed. 3.1 (Laser Notice No. 56); Guidance for Industry and Food and Drug Administration Staff; Availability, 84 FR 20140 (May 8, 2019).
• FDA information on laser light shows (e.g., description, uses, and industry guidance):
Available at https://www.fda.gov/radiation-emitting-products/home-business-andentertainment-products/laser-light-shows.
• International Electrotechnical Commission (IEC) IEC 60825-1 Ed. 3: Safety standards for laser products.
• American National Standards Institute (ANSI) Z136.1 and Z136.6 laser standards:
Standards for the safe use of lasers (in general and outdoors); helpful to determine potential hazards and resulting control measures for outdoor laser uses that may have special characteristics or conditions not addressed in Form 7140-1 and/or this document.
• SAE International (SAE) documents related to outdoor laser operations and aviation safety: Aerospace recommended practices (ARP) and aerospace standards (AS).
o SAE ARP5290: Laser Beam Divergence Measurements Techniques Comparison.
o SAE ARP5293A: Safety Considerations for Lasers Projected in the Navigable Airspace.
o SAE ARP5535: Observers for Laser Safety in the Navigable Airspace.
o SAE AS4970: Human Factors Considerations for Outdoor Laser Operations in the Navigable Airspace.
o SAE AS6029B: Performance Criteria for Laser Control Measures Used for Aviation Safety.
• United States Geological Survey (USGS): Use the following methods as examples to contact USGS and/or acquire topographical (quadrangle) maps.
o USGS National Center: 12201 Sunrise Valley Drive, Reston, Virginia, 22092, or
(703) 648-5953.
o https://www.usgs.gov/products/maps/topo-maps or https://store.usgs.gov/maplocator.
Appendix A A-1 Appendix A. Instructions for Completing FAA Form 7140-1, Notice of Proposed Outdoor Laser Operation(s) A.1. Introduction This appendix provides detailed instructions to assist those completing FAA Form 7140-1. For additional information on MPE limits or visual correction factors to assist with completing the form, consult Appendix B.
A.2. Submission, Preparation, and Processing General: Fill out Form 7140-1 completely. If the form requires information that does not apply to the submission (e.g., fax number), enter N/A. Submit any additional information sufficient for FAA to analyze the proposed laser operation via attachments to the form. This additional information may include necessary details that require more space to explain, e.g., diagrams, or worksheets requested on the form or within these instructions. Failure to provide all requested information may delay processing.
Data sources: This form requires calculations based on data concerning characteristics of the laser beam(s). Proponents may obtain data from direct measurement, manufacturer specifications, or specialized instruments. Proponents may also derive data by making reasonable, conservative assumptions, e.g., that a certain value makes the beam more hazardous than it could be in reality. All data should err on the side of safety. In borderline situations where data accuracy is crucial to compliance, provide additional information on measurement techniques, data sources, and assumptions.
Alternative analysis: This AC and its tables (see Appendix B) cover a wide variety of laser configurations. They are necessarily simplified and make conservative assumptions. Some laser configurations may warrant a more complex analysis. Use the ANSI Z136 series of standards or other established methods as basis for any such alternative analysis. Document the method(s) and calculations and include them when submitting Form 7140-1 to FAA.
Laser configurations: A single outdoor laser operation may have a number of lasers or “laser configurations.” A laser configuration is a laser, or group of similar lasers, aimed in a given direction or area that needs airspace protection.
If a setup operates with more than one laser, with different beam characteristics (e.g., power setting, pulse mode, divergence, or wavelength), or has multiple output devices (e.g., projector heads) aimed into the airspace, it has multiple configurations and requires analysis as a separate laser configuration. For each configuration, fill out one copy of the Laser Configuration Worksheet (page two of the form). An example and resulting requirements follows.
Appendix A A-2 Example: At a laser light show, there may be two configurations.
• A group of lasers all aimed in the same general direction over the audience, e.g., 10 RGB (red-green-blue) diode laser projectors above a stage, aimed from 30 to 45 degrees horizontally and from 5 to 45 degrees vertically.
• A beacon laser pointing straight up.
In the group example above, report all 10 laser projectors and their beam characteristics (power, divergence, and wavelength) to FAA on the form or an attachment. Since, however, all lasers have similar characteristics and are all aimed into the same area of airspace, complete as few Laser Configuration Worksheets as required.
• If the laser with the longest eye hazard distance (NOHD) is also the laser with the longest visual interference distance (laser-free exposure distance/LFED):
o Complete one worksheet.
o Rationale: The other, less-powerful projectors have shorter protection distances that remain within the longest distances needed to protect airspace.
• If the laser with the longest eye hazard distance (NOHD) is not the laser with the longest visual interference distance (LFED):
o Complete an additional worksheet for the laser with the longest visual interference distance (LFED).
o Use the data to determine the other protection distances, e.g., SZED and CZED.
o Rationale: While this laser is similar to the one in the some group with the longest NOHD, the visual interference value is different. This laser does not remain within the protection distances of the other laser and therefore requires additional analysis to protect airspace.
In the beacon example above, a separate beacon laser is aimed straight up (90 degrees vertically). This is another configuration, requiring completion of an additional Laser Configuration Worksheet and associated attachments.
Aeronautical study: FAA service center personnel will use the submitted information to perform an aeronautical study to evaluate the safety of a proposed laser operation. Provide all requested information to FAA to enable service center personnel to perform the study. If a proponent needs to include additional details not requested on the form, list these in cell 7b and include with the submission.
Appendix A A-3 A.3. Section 1. General Information 1a. Enter the FAA service center responsible for the area that includes the laser operation site.
For airborne laser operations, enter the service center where the majority of aircraft basing will occur. Consult Appendix E for FAA service center contact information.
1b. Enter the proponent's name and contact information; e.g., address, telephone, fax, and e-mail.
The proponent is the party primarily responsible for the laser safety of this operation. When the proponent is a manufacturer or a governmental agency (e.g., NASA) and the laser is located at a different site, list the proponent’s information here then reference cell 1f.
1c. Enter the event name (for temporary shows) or the facility name (for permanent installations).
1d. Enter the date the proponent prepared or sent the report to FAA. The date in this cell is not the date of the laser operation.
1e and 1f. If the laser user is different from the proponent, complete these cells. If not, enter “Same as proponent.” Enter the customer and site address in 1e and 1f.
A.4. Section 2. Date(s) and Time(s) of Laser Operation 2a and 2b. Enter the date(s) and time(s) of the testing, alignment (if applicable), and operation.
Include the time zone at the site. Example: May 20, 2021, 7:00 p.m. to 12:00 a.m. (midnight), Central Time.
A.5. Section 3. Brief Description of Laser Operation Provide a general overview of the operation. Describe specific laser configurations of the operation in detail using the Laser Configuration Worksheet found on page two of Form 7140-1.
If necessary for multiple configurations, attach additional copies of the Laser Configuration Worksheet.
A.6. Section 4. On-site Operation Information List the names and titles (if available) of the laser operators in 4a. Proponents should provide one (or more) working, direct telephone links to the laser operator or an equivalent method of quickly reaching the operator, e.g., telephoning a central station that reaches the operator via radio. FAA provides space for two telephone numbers on the form. List the primary phone number in cell 4b and the secondary/alternate/backup number in cell 4c. The on-site phone numbers in cells 4b and 4c must be U.S. phone numbers.
A.7. Section 5. FDA/CDRH Information If the operation uses or is a “demonstration laser” (generally, a laser light show) regulated by FDA/CDRH, enter the variance number for the laser light show, the variance expiration date, and the accession number. The accession number may or may not have an “RH” prefix or a suffix,
e.g., “-001.” At a minimum, enter the seven alphanumeric digits provided by FDA/CDRH.
NOTE: The variance number may remain valid even if issued in the past. FDA/CDRH may require periodic reports (usually annually) to keep variances active as stipulated in the variance
Appendix A A-4 if approved. If the report is acceptable, FDA may send an acknowledgement letter that may or not contain a new variance expiration date. The variance number may not change.
A.8. Section 6. Brief Description of Control Measures Describe the proposed method(s) to protect airspace from the laser, e.g., termination on a building or surface (where the beam path from the laser origin to the termination point is not accessible by aircraft, including helicopters), use of observers, use of radar and/or imaging equipment, or physical methods of limiting the beam path. As the level of reliance on the control measure(s) to ensure safety increases, FAA expects a commensurate increase in the level of detail used to describe the control measure(s).
NOTE: If a proponent is utilizing an electronic protection system in lieu of safety observers, enter the description into Section 6 of FAA Form 7140-1 and provide additional documentation to certify that control measure meets the performance criteria in the SAE AS6029, Criteria for Laser Control Measures Used for Aviation Safety (current edition).
A.9. Section 7. Attachments 7a. List the total number of laser configurations submitted with this notice (see the example described earlier in paragraph A.2.).
7b. List all attachments/associated file names and the correlation between each attachment (and/or file) and the specific configuration listed in cell 10a. This will assist FAA in evaluating the proposal. Examples of attachments are maps, diagrams, and details of control measures.
A.10. Section 8. Designated Contact Person Specify the person who FAA may contact for additional information. This contact should be the person most knowledgeable about the laser safety of this operation. The person could also be the laser operation central contact who interfaces with FAA. The designated contact person should work for or represent the proponent listed in cell 1b.
A.11. Section 9. Statement of Accuracy The person signing the form must have the authority to bind the proponent to follow the control measures described in the submitted notice. This person may also serve as the contact person.
A.12. Section 10. Configuration Information 10a. Enter the configuration number of the specific configuration entered on this Laser Configuration Worksheet. If there is only one configuration, enter “Configuration number 1 of
1.” If there is more than one configuration, enter the number of the specific configuration entered on this page and the total number of configurations submitted. Example: “Configuration number 7 of 9.”
10b. Describe the system that aims and projects the beam(s) into airspace, e.g., fixed mirror, scanning galvanometers, or manually aimed. Include a description of the site layout. Attach additional pages if needed to describe the laser use.
Appendix A A-5 A.13. Section 11. Geographic Location 11a. Enter the ground elevation of the site in feet mean sea level (MSL).
11b. Enter the height of the laser above the site elevation. This value should reflect the total height including any tall structure or building on which the laser may be located.
11c. Enter the overall laser elevation (site elevation plus height above site elevation). This number is the total height of the laser in MSL. For laser operations from aircraft or spacecraft operations, attach additional information on the flight locations and altitudes.
11d. Select global positioning system (GPS), map (e.g., USGS topographical or quadrangle), or other as the method used to determine data in section 11. If selecting “other,” describe the method (e.g., application or software name, program, or service) to FAA in cell 10b (Brief description of configuration) and mention cell 11d in the description.
11e and 11f. Enter the latitude and longitude in degrees, minutes, and seconds. Some maps or devices may provide this information in “decimal degrees” form. If the source provides decimal degrees, convert this value into degrees, minutes, and seconds. The Federal Communications Commission furnishes a website with a converter (https://www.fcc.gov/media/radio/dmsdecimal).
A.14. Section 12. Beam Characteristics and Calculations Determine the laser’s mode of operation (single pulse, continuous wave [CW], or repetitively pulsed). Check the appropriate column header and complete only that column for section 12.
For the purposes of this form, use these characteristics:
• “Continuous wave” refers to a laser that produces a continuous (non-pulsed) output for a period greater than 0.25 seconds.
• “Repetitively pulsed” refers to a laser with a pulse repetition frequency (PRF) of equal to or greater than one hertz.
NOTE: Repetitively pulsed versus scanning lasers “Repetitively pulsed” refers to lasers that naturally emit repetitive pulses, such as Q-switched lasers.
The intent of the design of the form and the tables within this Advisory Circular does not include safety analysis of pulses of a beam scanned over a viewer or aircraft, such as graphics or beam patterns used in laser displays, or scanned patterns used for light detection and ranging (LIDAR).
Pulses resulting from scanning are often extremely variable in pulse width and duration. For a conservative analysis, assume the beam is static (non-scanned). If a proponent relies on scanning to remain in compliance, they must provide a more comprehensive analysis that
Appendix A A-6 documents methods and calculations, and must document and use scan-failure protection devices.
A.14.1. Considerations for Multiple Visible CW Laser Beams Aimed Within the Same Area For a configuration that aims multiple lasers in the same direction, all of which emit visible wavelengths (from 400 nm to 700 nm), consider the following before completing cell 12a.
Example: Multiple lasers on a stage projecting over the audience into the same area of airspace requiring protection.
• Simplest, most conservative analysis.
o In cell 12a, enter the data for the laser with the highest power. All other lasers will have a shorter hazard distance.
o In cell 12c, enter “1” as the Visual Correction Factor (VCF).
o Notes for this approach follow.
▪ The pre-corrected power (PCP) and the Visually Corrected Power will be the same as the power from the highest-power laser.
▪ Because of no allowance for the beams’ visibility, the SZED, CZED, and LFED distances will be longer than analyzing each laser separately.
• Analyze each laser separately: This analysis will determine which laser beam has the longest NOHD, and which has the longest LFED.
o For each laser projector, determine the NOHD, SZED, CZED, and LFED. Attach documentation showing the data and calculations. See Appendix B for an example.
o Cells 12a and 14a: Enter the data for the projector with the longest NOHD.
o Cells 12c, 14b, 14c, and 14d: Enter the data for the projector with the longest LFED.
A.14.2. Section 12a. Laser and Beam Characteristics Laser type: Enter the lasing medium, e.g., CO2, copper-vapor, diode, or Nd-YAG.
Laser hazard class: Enter the hazard class for the laser, e.g., Class 2, Class 3R, Class 3B, or Class 4.
Power: If a continuous wave laser, enter the maximum power in watts (W). If a repetitively pulsed laser, enter the average power in watts (W).
Pulse energy: If a single pulse or repetitively pulsed laser, enter the pulse energy in joules (J).