U.S. Department of Transportation Federal Aviation Administration Advisory Circular Subject: Additional Pilot Program for Phase I Flight Test Date: 9/23/14 Initiated by: AFS-800 AC No: 90-116 Change:
1. PURPOSE. This advisory circular (AC) provides information and guidance on the Additional Pilot Program (APP) for flight testing experimental aircraft. The APP was developed to improve safety by enhancing Builder/Owner Pilot (BP) skills and mitigate risks associated with Phase I flight testing of aircraft built from commercially produced kits through the use of a qualified additional pilot and powerplant testing. The APP is an optional program which provides another pathway to conducting Phase I flight testing. The traditional option for a pilot to test their aircraft solo during Phase I is not covered or affected by this AC, and remains an option for those who choose to do so in accordance with their aircraft’s operating limitations.
2. APPLICABILITY. This AC provides information for any person who chooses to utilize an additional pilot on board in accordance with the APP described herein for a Phase I flight test.
3. RELATED CFR PARTS. Listed are the relevant Title 14 of the Code of Federal Regulations (14 CFR) parts and sections.
• Part 21, § 21.191, Experimental Certificates.
• Part 61, § 61.31, Type Rating Requirements, Additional Training, and Authorization Requirements.
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• Part 61, § 61.56, Flight Review.
• Part 61, § 61.57, Recent Flight Experience: Pilot in Command.
• Part 61, § 61.317, Is My Sport Pilot Certificate Issued with Aircraft Category and Class Ratings?
• Part 91, § 91.9, Civil Aircraft Flight Manual, Marking, and Placard Requirements.
• Part 91, § 91.319, Aircraft Having Experimental Certificates: Operating Limitations.
4. RELATED READING MATERIAL (current editions).
• AC 60-22, Aeronautical Decision Making.
• AC 90-89, Amateur-Built Aircraft and Ultralight Flight Testing Handbook.
• AC 120-51, Crew Resource Management Training.
• Federal Aviation Administration (FAA) Order 8130.2, Airworthiness Certification of Aircraft and Related Products.
• FAA Order 8900.1, Flight Standards Information Management System (FSIMS).
5. BACKGROUND.
a. Current Operations. Currently, experimental amateur-built (E-AB) aircraft and experimental light-sport aircraft (E-LSA) are operated in two phases following issuance of their experimental certificate—Phase I and Phase II. In Phase I operations, the aircraft undergoes flight testing to ensure the proper operations of aircraft systems and to develop the aircraft’s flight envelope. At the completion of Phase I, the aircraft enters Phase II, where it will normally reside for the remainder of its operational life. However, after certain modifications, the aircraft is required to reenter Phase I testing. The aircraft then enters Phase II upon completion of that testing. This cycle continues for the life of the aircraft.
b. Increasing Safety. During Phase I testing, the minimum crew for typical E-AB aircraft and all E-LSA is one. Operating limitations issued for Phase I operations currently restrict the number on board an aircraft to minimum flightcrew. In 2012, the National Transportation Safety Board (NTSB) issued Safety Recommendation A-12-31 recommending the FAA “revise FAA Order 8130.2, and related guidance or regulations, as necessary, to clarify those circumstances in which a second qualified pilot could be authorized to assist in the performance of flight tests when specified in the flight test plan and Phase I operating limitations.” Today’s reality of the ever-increasing complexity and capability of the modern kit aircraft is that Phase I flight testing tests not only the capability of the aircraft, but also the pilot.
c. Mitigating Risks. With this understanding, the FAA reviewed the causal factors surrounding Phase I accidents using over 10 years of historical data, with a focus on high-fidelity data collected in 2011 found to correlate very well to the historic numbers. The goal was to determine if a second qualified pilot on board could have mitigated the risks that led to 224 accidents in 2011. As shown in Figure 1, Causal Factors for E-AB Accidents in 2011, it was found that approximately one-third of all accidents were related to the powerplant, and a third were related to loss of control (LOC). The remaining third consisted largely of accidents similar to LOC, like hard contact with runway. By first placing mitigations in place to reduce powerplant-related risks, utilizing a qualified additional pilot to mitigate risks associated with LOC in Phase I flight, under controlled circumstances, is appropriate.
Par 5 Page 3 FIGURE 1. CAUSAL FACTORS FOR E-AB ACCIDENTS IN 2011
d. Setting Qualifications. The difficulty is determining when an additional pilot should be allowed on board, and what minimum qualifications that additional pilot should possess. The objective is to set the qualifications of the additional pilot high enough to mitigate the risks of LOC, but low enough to yield a useful pilot population as illustrated in Figure 2, Balancing the Pilot Qualifications to Ensure an Acceptable Level of Safety.
Par 5 Page 4 FIGURE 2. BALANCING THE PILOT QUALIFICATIONS TO ENSURE AN
ACCEPTABLE LEVEL OF SAFETY
e. Examining Phase I. Figure 3, Cumulative Portion of Phase I E-AB Accidents With Less Than 35 Airframe Hours (2011), shows when each of the 2011 Phase I accidents occurred. The first flight encompasses nearly one-fifth of all Phase I accidents. Furthermore, 65 percent of all Phase I accidents occurred within the first 8 hours of testing. This indicates that most benefits of an additional pilot would be realized early in Phase I. It is equally important to note the potential value of an additional pilot for flights occurring after the 8-hour mark of Phase I flights.
Par 5 Page 5 FIGURE 3. CUMULATIVE PORTION OF PHASE I E-AB ACCIDENTS WITH LESS THAN 35 AIRFRAME HOURS (2011)
f. Risk-Based Requirements. When looking at the available accident data, it becomes clear that the need for an advanced piloting skill set is necessary up front, until both the builder/owner and the aircraft have performed the required test events and maneuvers. This is accomplished through minimum flight time requirements and a cadre of test flights through the normal speed range and higher-risk maneuvers. Once the initial cadre of tests is accomplished, the advanced skill set for the additional pilot can be reduced with the reduction in risk.
g. Conclusion. It is clear that an additional pilot can help reduce the accident rate during Phase I testing. Based on a review of the data collected, by addressing the risk associated with a powerplant failure through proper means, the additional pilot, if properly suited for the role, could mitigate the potential for LOC as well as a number of the remaining causal factors comprising the last third of the accidents. Therefore, the FAA has created the APP that specifies:
• Applicant, aircraft, and powerplant eligibility.
• The testing requirements necessary to mitigate powerplant issues.
• Qualifications of an additional pilot.
• An initial cadre of tests done early in Phase I that can be used to ensure that the aircraft and builder/owner have reached experience levels that will reduce LOC-related accidents.
• Guidance material describing and emphasizing the importance of Crew Resource Management (CRM), including division of duties and tasks during flight test to enhance safety.
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6. DETERMINING APP ELIGIBILITY. Those wanting to utilize the APP must:
a. Meet all eligibility requirements, conditions, and limitations found within this AC.
b. Have aircraft operating limitations that allow operation in accordance with this AC.
7. DETERMINING APPLICANT ELIGIBILITY. A builder or owner of the aircraft being tested who meets the qualification requirements to utilize the APP is known as a BP. This individual(s) must:
a. Own all or some portion of the aircraft being tested.
b. Hold at least a sport, recreational, private, commercial, or Airline Transport Pilot (ATP) Certificate with the appropriate category and class ratings for the test aircraft, and have received all necessary endorsements, as required per § 61.31, appropriate to the test aircraft. For light-sport aircraft, have at least a Sport Pilot Certificate and the appropriate logbook endorsements for the category and class of the aircraft to be flown, as required per § 61.317.
c. Meet the requirements of § 61.56, Flight review.
d. Meet the requirements of § 61.57(a), Recent flight experience: Pilot in command, in the same category and class as the test aircraft.
e. Denote the name of the additional pilot in the pilot logbook for each flight utilizing an additional pilot. See Figure 9, Sample Pilot Logbook Example, for an example of the logbook entry.
8. DETERMINING AIRCRAFT ELIGIBILITY. Eligible aircraft must meet all of the following requirements detailed below:
a. Experimental Certificate. Experimental certificate issued under § 21.191(g), Operating amateur-built aircraft, or § 21.191(i)(2), Operating light-sport aircraft.
b. Kit-Built Aircraft. Currently the FAA is limiting aircraft eligibility to those aircraft built from a kit. These aircraft have the highest population and consistency from aircraft to aircraft.
Plans-built aircraft will not be considered at this time. There is currently no intention to consider original designs for this program. Eligible aircraft kits are those that have been evaluated and found eligible to meet the “major portion” requirement of part 21, Certification Procedures for Products and Parts, specifically § 21.191(g), and are listed in the “Revised Listing of Amateur-Built Aircraft Kits.” This list is periodically updated and can be downloaded at:
http://www.faa.gov/aircraft/gen_av/ultralights/amateur_built/kits/media/amateur_built_kit_listin
g.pdf.
c. Fully Functioning Dual Controls. The aircraft must have fully functioning dual controls. This includes, at minimum, power and control of all three flight axes (pitch, roll, and yaw). Central controls, such as power, available to both pilots simultaneously are acceptable.
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9. POWERPLANT ELIGIBILITY. Powerplant-related accidents account for one-third of all E-AB accidents, including those with fatalities. Therefore, to mitigate powerplant issues to the extent necessary, powerplant eligibility and minimum initial testing standards are specified.
a. Powerplant Eligibility. Only powerplants recommended, supported, or provided by the kit manufacturer for the kit will be eligible. Regardless, turbine-engine-powered aircraft are not eligible at this time. The eligibility includes engines that have been customized by third parties, to include painting, polishing, porting, and the addition of commercially available accessories such as electronic ignition and commercially available propellers. However, autoconversion engines will only be considered if they are specifically recommended by the kit manufacturer.
Except for turbine engines, any engine recommended by the kit manufacturer will automatically be considered as eligible.
b. Powerplant Testing. Powerplant testing is required prior to the initial flight and any time warranted thereafter to help ensure the reliability of the powerplant. Based on the recommendations of AC 90-89 and the industry on testing of the powerplant and fuel system, the following tests, if applicable, are required:
• Mixture and Idle Speed Check,
• Magneto Check,
• Cold Cylinder Check,
• Carburetor Heat Check,
• Fuel Flow Check,
• Unusable Fuel Check, and
• Compression Check.
c. Documented Testing. Documented testing similar to that of the build is required as proof of compliance. This includes appropriate logbook entries with test results. Photographs and diagrams should also be provided for tests where the applicant deems them beneficial or necessary.
d. Changes to Fuel System. Any change to the fuel system after conducting the fuel flow tests, except for normal fuel system/filter maintenance, requires a repeat of the tests prior to additional flight. All tests, including repeated tests, require documentation.
10. INITIAL TESTS PACKAGE (ITP). When looking at a well-created Phase I test plan, it becomes clear that the need for an advanced piloting skill set is necessary until both the BP and the aircraft have performed the required test events and maneuvers. The ITP is a combination of Aircraft Initial Tests (AIT) and a Builder/Pilot Maneuvers List (BPML) that encompasses flight throughout the normal speed range and through the higher risk maneuvers, as shown in Figure 4, Initial Tests Package. The ITP aligns the mitigations provided by a qualified additional pilot to the hazard level of early flight test. Once the AIT is accomplished, the advanced skill set for the additional pilot can be reduced for any BP who has personally performed, in the test aircraft, all items in the BPML, thus completing the ITP for that BP. The ITP requirement is applied to the aircraft and to each BP individually.
Par 10 Page 8 FIGURE 4. INITIAL TESTS PACKAGE
11. QUALIFICATIONS FOR AN ADDITIONAL PILOT AT THE QUALIFIED PILOT (QP) LEVEL.
a. Aligning Skill and Risk. A set of additional pilot qualifications is used to ensure necessary skills mitigate the safety risks largely associated with LOC that remain after the powerplant mitigations. This requires higher levels of experience, in alignment with higher risk, for early flights in the test program. A pilot meeting the criteria for this program is known as a Qualified Pilot (QP). The additional pilot criteria at the QP level will remain in place, as illustrated in Figure 5, Qualified Pilot Qualifying Process Overview, until:
(1) The test aircraft has been flown through all of the AITs required by the ITP.
(2) The BP has personally performed, in the test aircraft, all of the required items in the BPML. If multiple BPs exist, the requirement applies to each individual separately.
(3) Airframe logbook entries have been made, in accordance with this program, stating these facts.
Par 11 Page 9 FIGURE 5. QUALIFIED PILOT QUALIFYING PROCESS OVERVIEW
b. Reduction in Criteria. Once both the aircraft and the BP have conducted all of the required items in the ITP, a reduction in the criteria for the additional pilot can be made for that BP as a result of the reducing risk in flight test. A pilot meeting the reduced criteria for this
Par 11 Page 10 program is known as an Observer Pilot (OP). This process is illustrated in Figure 6, Determining Additional Pilot Qualification Level Required During Phase I.
FIGURE 6. DETERMINING ADDITIONAL PILOT QUALIFICATION LEVEL
REQUIRED DURING PHASE I
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c. Basic Additional Pilot Requirements. A Qualified Pilot (QP) must meet the following list of requirements as part of the qualification process:
(1) Hold at least a sport, recreational, private, commercial, or ATP certificate with the appropriate category and class ratings for the test aircraft, and have received all necessary endorsements, as required per § 61.31, appropriate to the test aircraft. For light-sport aircraft, have at least a Sport Pilot Certificate and the appropriate logbook endorsements for the category and class of the aircraft to be flown, as required per § 61.317.
(2) Meet the requirements of § 61.56.
(3) Meet the requirements of § 61.57(a).
(4) Have adequate vision forward and to each side of the aircraft.
(5) Complete the worksheet found in Appendix 1, Additional Pilot Program Guide, prior to initial flight as QP in each test aircraft and attach it to the airframe logbook. When acting as QP for further flights in the test aircraft, prior to each flight the QP must meet the QP criteria, but the checklist need not be attached to the logbook.
d. Recency-of-Experience Scoring Matrix.
(1) Scoring Matrix. The scoring matrix shown in Figure 7, Recency of Experience Scoring Matrix, is used to determine recency of experience. A score of 60 is the minimum value to satisfy recency requirements. A copy of the matrix in worksheet form is found in Appendix 1 for use prior to the initial flight as QP in the test aircraft. Only one selection should be made per question, including those where more than two choices are available. Values or ranges shaded in red indicate a lack of recency and are automatically disqualifying if selected. These areas of deficiencies should be studied and experience obtained for applicants intending to later qualify.
An applicant can attempt to qualify any number of times, and may attempt to do so at any time.
A qualified applicant might also find, due to a lack of recent experience, that they later do not meet the requirements. These applicants must then obtain the necessary experience to requalify.
Because of the recency requirement, this matrix is to be completed prior to each flight when acting as a QP.
(2) Explanation of Criteria: Time in Model or Model Family. A QP must have an understanding of the test aircraft and its expected flight qualities. Having flight experience in the same model or other makes and models that exhibit similar flight characteristics provides the QP with the knowledge necessary to make assumptions and judgments about the test aircraft. This is a vital link in the QP’s role of risk mitigation. The determination of similarities between models considered in a model family line should be left to the QP applicant who can then compare flight characteristics from one aircraft to another based on personal experience. In cases in which the QP requires a more detailed examination, the manufacturer(s), if in existence, or, where the manufacturer no longer exists or chooses not to participate, a type-club, industry group, or the FAA could aid in making the determination. Ultimately, an acceptable model family may have slightly differing characteristics between aircraft, but the similarities across the model line would enable a QP with experience in one aircraft to be confident and capable to fly any of the family variations. In cases where model grouping is not able to be accomplished, only experience in the
Par 11 Page 12 model of the subject aircraft (though not necessarily the subject aircraft) will be accepted to satisfy “time in model family”.