U.S. Department Advisory of Transportation Circular Federal Aviation Administration AC 91-45C DATE 2/1/90
STRODUEINE WAIVERS:
AVIATION EVENTS
U.S. Department of Transportation Federal Aviation Administration Subject: WAIVERS: AVIATION EVENTS
1. PURPOSE. This Advisory Circular (AC) provides prospective aviation event sponsors and other interested parties with information necessary to assist in planning and conducting a safe aviation event. In addition, it provides information on the application process for a Certificate of Waiver or Authorization.
2. CANCELLATION. AC 91-45B, Waivers - Airshows/Contests/Races, dated August 5, 1981, is cancelled.
3. RELATED FAR SECTIONS. Parts 61, 91, 103, and 105.
4. FORMS AND REPORTS. Samples of the following forms are provided in Appendix 1.
a. FAA Form 7711-2, Application for Certificate of Waiver or Authorization. This form can be obtained from the local FAA Flight Standards District Office (FSDO).
FAA Form 7711-1, Certificate of Waiver or Authorization, will be issued by the FAA FSDO upon approval of FAA Form 7711-2.
5. BACKGROUND. Numerous waivers are issued each year by the Federal Aviation Administration (FAA) for the purpose of aviation events or aerial demonstrations. These waivers are issued based on the FAA policy that anytime the agency determines a proposed event will be in the public interest in terms of safety and environmental concerns, a waiver will be issued predicated on specific requirements of the event.
Regardless of the purposes for which an aviation event is sponsored, events or show sites judged unsafe shall not be accepted for waiver or author- Advisory Circular Date: 2/1/90 AC No: 91-45C Initiated by: AFS-20 Change:
ization consideration. Based on the foregoing, this AC is intended to explain many of the requirements necessary when considering the show site, facilities, the level of competence of participants, waivers and/or authorizations required, and other items of concer to the prospective aviation event sponsor.
DEFINITIONS. Many terms used in this AC are unique to aerial demonstration/aviation events; therefore, the following definitions shall enhance the understanding of their application:
a. Aerobatic Flight. The FAA has determined that for purposes of an aviation event, an aerobatic maneuver means an intentional maneuver in which the aircraft is in sustained inverted flight or is rolled from upright to inverted or from inverted to upright position. All standard aviation event aerobatic maneuvers such as slow rolls, snap rolls, loops, Immelmanns, cuban eights, spins, hammerhead turns, etc., may not be performed over congested areas or over specta- Steep banked, level, climbing, or descending tums necessary during maneuvering between aerobatics are not considered to be aviation event aerobatic maneuvers. Normal positioning turns for high performance aircraft operated by the military regardless of angle or bank or pitch attitude, are not considered to be aviation event aerobatic maneuvers. Normal maneuvers, such as steep turns, involved in air racing are not considered aerobatic.
Aviation Events include airshows, air races, aerobatic contests, parachute demonstration jumps, practice areas designated for aerobatic proficiency or training, and balloon meets and races. Most events are held at or immediately
AC 91-45C adjacent to an airport. An increasing number, however, are held offshore (within gliding distance of land), over water, in the vicinity of a state fairground, or at other off-airport locations.
Aerobatic school activities or aerobatic meets may occur which are not aviation events, contests, or races, even though a waiver must be issued. At these school activities or meets that are not advertised as aviation events, it may not be necessary to provide public aviation event policing and emergency facilities.
Certificate of Waiver or Authorization.
FAA Form 7711-1, Certificate of Waiver or Authorization, is issued after proper application and approval, for the purpose of providing TEMPO- RARY RELIEF from certain designated Federal Aviation Regulations (FAR).
Control Point. A specified location where the show sponsor, a designated representative, or safety director manages the aviation event. The communications capability necessary to control the aviation event must also be located at this site.
e.
line marked on the ground which, with added policing, serves as a restraining line. The crowd ce rom the line is placed at a specified distance from the showline. The barrier must prevent spectators or other nonparticipants from encroaching upon the showline.
f. Inspector-in-Charge. The FAA inspector-in-charge is an individual who conducts the feasibility study (if needed), participates in the preseason evaluation meeting, evaluates the application for waiver or authorization, recommends issuance or denial, and who conducts the surveillance of the aviation event.
Markers used in balloon competition tasks for dropping or marking targets are small flour bags, with a maximum weight of 3 ounces and a fabric tail 4 inches wide and 6 feet long.
The international standard for markers is 100 grams maximum weight, with a tail 10 cm wide 2/1/90 and 2 meters long. Markers made to this specification should not injure persons or damage property.
h. The Primary Spectator Area is the main area provided by the sponsor for spectator use.
This is the area where the public can generally be expected to view the airshow.
i. The Secondary Spectator Area may be any other area where persons have a natural tendency to gather to observe the event. This is generally an area opposite the showline from the primary spectator area or a road, etc. Secondary Spectator Areas should be agreed upon by the show sponsor and the FAA inspector-in-charge before the aviation event begins. These are areas where it is usually not possible to eliminate the presence of people.
j- Show Center is a reference point along the showline denoting the center of the operating area.
k. A Showline is a prominent, readilyvisible ground reference such as a river, runway, taxiway, canal, breakwater, road, or any straight line that enhances pilot orientation during aerobatic routines (Appendix 1, Figure 1). The showline also serves as the horizontal axis for the Snow fences spread flat on the ground may also make acceptable references depending on the visual contrast. Lines of parked buses, cars, or boats, although less desirable, may be the only alternatives when natural showlines are not available.
1. A Show Season generally runs from April through October of a given year. Geographical and climatological circumstances can lengthen or shorten the show season.
m. A Waiver is an official document issued by the FAA which authorizes certain operations of aircraft in deviation from a regulation, but under conditions ensuring an equivalent level of satety.
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7. DISCUSSION.
a. Scope of Waivers. Waivers vary insofar as the rules that are requested to be waived.
Some events require nothing more than waiving FAR § 91.71(d) to permit aerobatic flight at less than 1,500 feet above the surface. Others may require waiving aircraft speed limitations, minimum safe altitudes, or limitations while operating in the vicinity of airports or even within a Terminal Control Area (TCA).
A request for a waiver of the basic Visual Flight Rules weather minimums specified in FAR § 91.105 shall be considered only --
(1) In areas where the entire event can be conducted with Air Traffic providing separation between participating aircraft and nonparticipating aircraft, and
(2) When provisions are made to advise participants of uncontrolled aircraft that may present a hazard. This does not imply that Air Traffic assumes the responsibility for providing separation of performing aircraft.
Regulations Affected. A sponsor should consider factors that directly affect the rules to be waived. These include show site, type of aircraft maneuvers to be performed, etc. Sections of the FAR that should be waived for some other events in certain locations or that are more complex are:
(1) FAR § 91.70, Aircraft speed.
(2) FAR § 91.79(b) and (c), Minimum safe altitude.
(3) FAR § 91.85, Operating on or in the vicinity of an airport.
(4) FAR § 91.87, Operations at airports with operating control towers.
(5) FAR § 91.89, Operations at airports without operating control towers.
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(6) FAR § 91.90, Terminal control areas.
d. Regulations that May or May Not Be Waived. FAR § 91.79(a) SHALL NOT BE
WAIVED FOR AERIAL DEMONSTRATION PURPOSES. FAR §§ 91.79 (b) and (c) may be waived only when the following conditions are
(1) A waiver of the requirements of FAR §§ 91.79(b) and (c) is issued for aerial demonstrations by the U.S. Air Force "Thunderbirds," the U.S. Navy "Blue Angels," tactical aircraft demonstrations approved by the appropriate military command, and the Canadian "Snowbirds." These performers or teams have Command-approved maneuver packages that are submitted to and approved by the FAA. These maneuver packages describe normal routines that do not call for aviation event aerobatic maneuvers over congested areas, over persons, or over the primary or secondary spectator areas.
(2) A waiver may be issued to performers, other than those covered in the preceding paragraph, to transition a congested area at less than the minimum altitudes described in FAR §§ 91.79(b) and (c) in nonaerobatic flight. The ingress and egress to the aerobatic/ily-by area must be in compliance with the following:
Aerobatic demonstration -- (A) During pendix 1, Figure 2) to the aerobatic area from flight above a congested area, the pilots are expected to leave the altitude being flown as described above so that a smooth transition may be made to the performance altitude in the aerobatic area. Steep approaches may be made; however, in no case shall the descent angle to the aerobatic area be less than that required for a normal approach for a landing for the aircraft involved.
(B) During egress (Appendix 1, Figure 3) from the aerobatic area for flight above a congested area, the pilots are expected to climb iii
AC 91-45C at a rate consistent with a safe operation or the best angle of climb pitch attitude for the aircraft involved. If prolonged flight over a congested area is required, the climb shall be continued to at least 1,000 feet above the highest obstacle within a horizontal radius of 2,000 feet of the aircraft. During the positioning turns above the congested area, there shall be no aviation event aerobatic maneuvers performed.
(ii) Fly-by Demonstrations -- (A) During ingress (Appendix 1, Figure 2) to the fly-by area from flight over a congested area, pilots are expected to leave the altitude flown above the congested area so that a smooth transition may be made to the fly-by altitude in the fly-by area. Steep approaches may be made; however, in no case shall the descent angle to the fly-by area be less than that required for a normal approach for a landing for the aircraft involved.
Figure 3) from the fly-by area for flight over a congested area, the pilots are expected to climb at a rate consistent with a safe operation or the best angle of climb pitch attitude for the aircraft involved. If prolonged flight is to be conducted above a congested area, the climb shall be continued to at least 1,000 feet above the highest obstacle within a horizontal radius of 2,000 feet from the aircraft. During positioning turns above a congested area there shall be no aviation event aerobatic maneuvers performed. The showline for fly-by demonstrations shall not be closer than 500 feet to the primary or secondary spectator iv 2/1/90
e. Performers must determine, at each show site, that geographical/atmospheric conditions allow performance within the limitations of their aircraft. If there are obstructions or atmospheric conditions, such as density altitude, which do not allow a safe transition over a congested area or back into the performance area, the operation may be allowed if the performers raise the altitude of the aerobatic or fly-by maneuver so that the ingress and egress over the congested area can be safely accomplished.
f. Ultralight Vehicle Operations.
(1) Any ultralight that meets the applicability of FAR § 103.1 may be operated as an ultralight vehicle in accordance with FAR Part 103 or the operator may elect to certificate the vehicle and operate under applicable aircraft regulations. It is important to remember that an ultralight vehicle that has been certificated as an aircraft and no longer operated under FAR Part 103 must meet the same requirements as a conventional aircraft. This includes aircraft operational limitations, pilot certification, and statement of aerobatic competency.
(2) Aerobatic flight demonstrations by ultralight vehicles shall be included on an FAA Form 7711-1, with appropriate special conditions, only when a statement of determination that the vehicle and the operator are able to conduct the proposed demonstration without creating a hazard to persons and property on the surface has been submitted with the application. The statement should contain a summary of how the determination was made.
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(3) Regardless of the category (aircraft/ultralight vehicle), aerobatic demonstrations by ultralights must meet the separation standards for aviation event performances that are applica- DCBeaudittt Daniel C. Beaudette Director, Flight Standards Service AC 91-45C ble to conventional aircraft with a level flight cruise speed that is less than 156 knots using 75 percent power.
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2/1/90 AC: :91-45C
CONTENTS Page No.
CHAPTER 1. GENERAL 1 Who May Sponsor an Aviation Event? 1 Sponsor Experience Industry Assistance Sponsor Planning
5.-10. Reserved CHAPTER 2. PREPARATION FOR AN AVIATION EVENT 7 SECTION 1. PREAPPLICATION PREPARATION
11. Determining Which Sections of the FAR Need to be Waived
12. Site Selection
13. Supporting Data
14. Selection of Performers
15. Establishing the Showlines
16. Policing
17. Emergency Facilities 13
18. FAA Form 7711-2 13
19. Schedule of Events 14
20.-24. Reserved 14 SECTION 2. MANAGING THE AVIATION EVENT 15
25. Preshow Activity 15
26. Aviation Event Personnel 15
27. Flying Participants 17
28.-30. Reserved 17 CHAPTER 3. MILITARY DEMONSTRATION TEAMS 23
31. Scope and Contents 23
32. Approved Profiles
33. DOD Sanctioned Teams
34. Other Military Teams Not Sanctioned by DOD
35. Military Parachute Teams
36. Team Qualifications and Training
37. Military Participation
38. Specialized Teams
39. Arrival Demonstrations
40. Foreign Military Teams
41. DOD Feasibility Study
42. Special Waiver Provisions
43.-48. Reserved vii
CONTENTS Page No.
CHAPTER 4. AIR RACE COURSE DESIGN 31
49. Sponsor Responsibilities 31
50. Personnel 31
51. Typical Race Courses 31
52. Race Course Design 31
53. Race Course Speeds 31
54. Race Course Showline 32
55.-58. Reserved 33 CHAPTER 5. BALLOON MEETS AND BALLOON COMPETITIONS 39
59. Public Safety 39
60. Balloon Operations 39
61. Description and Terminology 39
62. Balloon Meets 39
63. Types of Competitive Tasks 39
64. Balloon Competition Event Waivers 41
65. Balloon Competition Manual 42
66. Balloon Crewmembers 42
67. Maximum Windspeed 42 68 Designated Spectator Area 42
69. Duration of Waiver 42
70. Letters of Agreement 42
71. Carriage of Passengers for Hire 42
72. Manual Approval 42
73.-76. Reserved 42 CHAPTER 6. PARACHUTING AND PARACHUTISTS 47
77. Certificate of Authorization 47
78. Parachute Associations/Organizations 47
79. Parachutist's Competence 47
80. Landing Areas 48
81. Alternate Landing Areas 48
82.-86. Reserved 48 CHAPTER 7. WAIVER PROVISIONS 53
87. General Provisions 53
88. Special Provisions 53
89.-92. Reserved 53 viii
CONTENTS Page No.
APPENDIX 1. FIGURES (27 pages) 1 Figure 1. Showline Figure 2. Ingress Figure 3. 4 Figure 4. Sample of FAA Form 8710-7, Statement of Aerobatic Competency Figure S. Category I Showline - Optimum Layout 6 Figure 6. Category I Showline - Moved Closer to Primary Spectator Area 7 Figure 7. Category I Showline - Moved Closer to Secondary Spectator Area 8 Figure 8. Category II Showline Figure 9. Category III Showline 10 Figure 10. Aerobatic Maneuvers After Takeoff (I) 11 Figure 11. Aerobatic Maneuvers After Takeoff (II) 12 Figure 12. Takeoff and Landing Area - Normal Landing Speed >100 Knots and "Flying Farmer" Acts 13 Figure 13. Takeoff and Landing Area - Normal Landing Speed <100 Knots 14 Figure 14. Sailplane/Airplane Takeoff Area (I) 15 Figure 15. Sailplane/Airplane Takeoff Area (II) 16 Figure 16. Instructions for Completion of FAA Form 7711-2 17 Figure 16. Sample FAA Form 7711-2, Application for Certificate of Waiver or Authorization (Front) - continued 19 Figure 16. Sample FAA Form 7711-2, Application for Certificate of Waiver or Authorization (Reverse) - continued 20 Figure 17. Sample FAA Form 7711-1, Certificate of Waiver or Authorization Figure 18. Typical Air Race Site Figure 19. Reno, NV, Race Course Figure 20. Examples of Air Race Courses Figure 21. Pylon Air Racing (Race Course Design Parameters) Figure 22. Typical Hot Air Balloon Figure 23. Balloon Terminology 27 APPENDIX 2. GENERAL PROVISIONS (2 pages) 1 APPENDIX 3. SPECIAL PROVISIONS (3 pages) 1
CHAPTER 1. GENERAL
1. WHO MAY SPONSOR AN AVIATION EVENT? Anyone, either an individual or an organization, who wishes to sponsor an aviation event may do so as long as the proper forms and supporting documentation are submitted to the FAA and subsequently approved.
2. SPONSOR EXPERIENCE. The experienced sponsor of an aviation event is generally well acquainted with the requirements and procedures for obtaining the necessary waiver. However, in some instances, individuals or organizations attempting to sponsor an event for the first time are not aware that an FAA Form 7711-1, Certificate of Waiver or Authorization, is required. For an inexperienced sponsor, the local FAA Flight Standards District Office (FSDO) can provide valuable information and assistance.
INDUSTRY ASSISTANCE. Additional guidance from industry representatives may be obtained by contacting the International Council of Air Shows (ICAS), P.O. Box 1105, 1910 Horton Road, Jackson, Michigan 49204, (517) 782-2424.
This organization, comprised of aviation event sponsors and performers from all over the world, can provide valuable assistance. Also, numerous independent clubs and associations formed by airshow performers, such as the Professional Airshow Performers Association (PAPA), can provide the same type of information. In addition, there are several commercial aviation event groups that offer a wide variety of services ranging from assisting and staging, to contracting an entire aviation event. Many of these clubs, associations, and commercial groups are affiliated with the Experimental Aircraft Association (EAA), Wittman Airfield, Oshkosh, Wisconsin 54903. Further information may be obtained by contacting the EAA at (414) 426-4800.
4. SPONSOR PLANNING. Thorough planning has a direct bearing on the success and safety of any event. Therefore, it is in everyone's best interest that an effective plan for all facets of the event be developed.
a. Preshow Planning. The following items should be discussed with the FAA FSDO before beginning preparation of FAA Form 7111-2, Application for Certificate of Waiver or Authorization.
(1) Type of Event (aerobatics, balloon race, parachute demonstration, etc.).
(2) Status of Performers (military versus civilian).
(3) Site Selection.
(1) Airport sites.
(ii) Fairgrounds.
(iii) Other sites.
(iv) Planned crowd control.
(4) Policing of the safety zone.
(5) Communications.
(6) Emergency equipment and personnel.
(i) Physician.
(ii) Ambulance.
(iii) Firetruck.
(iv) Crash wagon.
(V) Other.
(7) Normal airport traffic.
(8) Vehicular traffic problems.
Chap 1 Par 1
AC 91-45C Post-event Planning. Most successful sponsors dedicate considerable time and effort planning for the conclusion of the aviation event.
They do this because they understand that all the effort expended producing a successful show could be ruined in the chaos that follows the termination of the event. With the disappearance of crowd control personnel, sponsors have leamed that the more spectators kept at the show site for a period of 30 to 40 minutes after the main attraction, the safer it will be for everyone. Some examples of ways to keep spectators at the show site are:
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(1) Have the demonstration pilots remain after the show to talk with the spectators and sign autographs.
(2) Conduct a raffle or drawing and give away the prizes after the show ends.
(3) The demonstration aircraft can be put on display at the end of the show so that the remaining spectators can get a closer look at both aircraft and performer.
5.-10. RESERVED.
Chap 1 Par 4
CHAPTER 2. PREPARATION FOR AN AVIATION EVENT SECTION 1. PREAPPLICATION PREPARATION
11. DETERMINING WHICH SECTIONS OF THE FAR NEED TO BE WAIVED. The sections of the FAR that will need to be waived depend largely on the types of operations to be conducted at the aviation event. In an effort to determine which sections of the FAR need to be waived, the sponsor should ask himself or herself certain questions.
a. Questions that should be asked are:
() What sort of routines will be staged?
(2) Will there be demonstrations by small, slow-speed aircraft only or will high performance aircraft be involved?
(3) Will military demonstration teams participate?
(4) Will a parachute demonstration be staged!
(5) Will the event include hot air balloon ascensions?
b. The answers to these questions and other areas unique to each aviation event will help the sponsor in determining which FAR need to be waived.
12. SITE SELECTION.
a. Selection of a site for an aviation event is of the utmost importance. If the selected site does not permit the minimum separation distances discussed in paragraph 15, FAA Form 7711-2, Application for Certificate of Waiver or Authorization, shall not be approved. It is important that the selection accommodate all the specific types of aerial demonstrations, without derogating safety or creating a hazard to any nonparticipant or spectator. In addition, it is imperative that all areas adjacent to the show site containing homes, factories, major highways, well-traveled thoroughfares, or any occupied vessel, vehicle, or structure, be carefully evaluated before making a final decision for site selection.
(1) Airports. An airport environment is probably best suited for aerial demonstrations/aviation events. If the local airport environment provides the necessary separation distances, it should be given first consideration as a probable site since demonstration pilots prefer a runway within gliding distance of the demonstration The spectator area should be clearly defined. Frontage of the spectator area might range from 1,500 feet to 3,000 feet. It is not recommended that the spectator area frontage be greater than 3,000 feet. This is to allow proper run-in and exit corridors for participating
(ii) Depth of the spectator area is deter-mined by required display areas, paved surfaces, and other considerations which are peculiar to each facility. The important point is to define the frontage and sides of the spectator area, making them compatible with planned aerial demonstrations.
(2) Fairground Sites. In some instances, fairgrounds are selected as sites in lieu of attempting to stage an event at a less than ideal airport site. These sites offer certain advantages not normally found at an airport. The grounds are generally well fenced, usually making crowd control a simple task. Also, frequently, grandstands or bleachers, concession stand areas, well-marked first-aid stations, police, and some- Chap 2 Par 11