ML20040G968

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Suggests That Regulatory Reform Task Force Consider Legislative Changes to Permit NRC to Designate Private Persons to Act as NRC Representatives in Inspecting Nuclear Power Plants.Faa Info Encl
ML20040G968
Person / Time
Issue date: 02/11/1982
From: Murley T
NRC OFFICE OF THE EXECUTIVE DIRECTOR FOR OPERATIONS (EDO)
To: Tourtellotte J
NRC - REGULATORY REFORM TASK FORCE
References
NUDOCS 8202160675
Download: ML20040G968 (13)
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Text

{{#Wiki_filter:- - -.. t ,? ,1 a : ", a "l u, 8 - FEB 1 11982 ) 'qS NDEwg. h-FEB Q iss / -w Npg E EMORANDUM FOR:~ James R. Tourte11otte, Chaiman-g , ' g, ' Regulatory Refom Task Force - ( FROM: Thomas E. Murley, Director -. Regional Operations and Generic Requirements Staff

SUBJECT:

SUGGESTION FOR TASK FORCE CONSIDERATION: In announcing the establishment of the Regulatory Reform-Task Force. Chaiman Palladino encouraged employees interested in this subject 1 ~. a to provide their views in writing to the Task Force Chairman. The ~- 4 purpose of this memo is to suggest that the Task Force may wish to consider legislative changes to pemit NRC to designate private ' 1 persons.to act as representatives of NRC in inspecting and examining persons,- equipment and structures associated with nuclear power plants. ~ The intent of this suggestion is to provide NRC with the means for improving the level of QA/QC in the design, cafety anajysis and. construction of nuclear plants. It is unlikely that NRC will ever have sufficient staff to do more than audit a selected few of the thousands of drawings, calculations and reports that are ' carried out in the design of a plant. Likewise, in regard to the manu-facture of equipment (e.g., the pressure -vessel) and the construction of the plant itself, NRC.does not have resources to independently verify that all of the details of the plant are built in accordance with the approved design. Considering the number of plants licensed by NRC, it would take a small amy of engineering analysts and inspectors to check that each plant meets all of our regulatory requirements. The situation is not hopa!1ess, however. By using designated NRC-representatives to check key aspects of the design, fabrication and construction of a plant, it is feasible, in my judgment, to raise significantly the current level of quality. assurance in nuclear power plants. There is a precedent for this suggested procedure in the safety regulation approach used by the Federal Aviation Administration, and I am enclosing relevant information describing the legal basis and-how the system works for the FAA. Enclosure 1 is 14 CFR 183, the relevant part of FAA's regulations.which describes the requirements for designating private persons to act as representatives of the f Administrator, the privileges of those representatives, and the rules /' for exercising those privileges. In 1950, Congress passed Public-Law 81-858 providing for such delegation by amendment to the Civil Aeronautics Act. 0/ ...............;4

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~ ~ ~ F ( FEB 1. qyg . s. ~- .. is a section from the report entitled " Improving Aircraft Safety" bf a panel of the National Academy of Sciences in 1980. A , significan't fin: ling of this panel. is the following: "FAA ehgineers cannot review each of the thousands of u drawings, calculations, reports and tests; yet, the agency most be certain that the design for a new airplane meets i all.the regulatory requirements. The certification pre-cess thus depends not only on a review of high quality by the FAA but also on the assistance rendered by employees of the aircraft representatives...the connittee concludes that the designee system for hugmenting the capability of the TAA to review and certificate the type design is not ~ 1 only' appropriate but indispensable." > is an extract from the FAA response to the NAS report. The relevant significant quote from their response is the following: f' ...the use of designees fs necessary, their duties appropriately monitored, and the potential for abuse of the designee's authority is adequately counterbalanced by real-world checks and balances." i~ l The enclosures have been included to provide answers to questions L concerning the feasibility and practicality of using private persons as' designated representatives of a safety regulatory agency. The ~ fact is that each of us routinely flies on airplanes designed and built using such a system of designated representatives. I will'be pleased to discuss this further if you wish. Original signed by N a=F. Murley i Thomas E. Murley, Director 4 Regional Operations and Generic Requirements Staff

Enclosures:

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'W " N 833.17 Reporta. is a need for one. ~' /'i';tE C. (c)(1) The Chief of the Aircraft En- ~ N- - h sap.n c -Kinds of Designetiensa Privueses gineering Division. or the Chief's des-i-!.O2'.D. ?'@i' @(.,"- d."YT;S1/%yg I%. ~ t8:3.21 Avi:.tlon Medical mmfners, ignee, may select Designated Engi-lE83.23 P!1:t examiners. neering Representatives from quali. '. '. f.. - l183.25 Technical personnel examiners. - fled persons who apply by a letter ac-t '# . :..Yj '. "' 6 1153.27 Designated aircraft maintenance in-companied by a " Statement of Qualifi. /?.'.P

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.a < ~v i. This part describes the requirements and an appropriate Identification .Y.."Wi '/ ' l far designating private persons to act Card is issued to each Aviation Medi- ~- ' as representatives of the Administra-cal Eraminer and to each forensic pa- . ' h. '.W tor in examining. Inspecting, and test-thologist derignated under i183.11(a). ing persons r.nd aircraft for the pur- -(b) A " Certificate of Authority"

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( .vj. s! ;.,.y.V.tg. additional periods of 1 year in the Fed. this chapter; eral Air Surgeon's discretion. A renew-(b) Under the general supervision of % g,Jg;,97 .c, al is effected by a letter and issuance the Federal Air Surgeon or the appro., jg q.-'g.At g..g;f..(.pj. g e g 7,g ig of a new identification card specifying priate sen!or regional flight surgeon p.W:,..,.g;.s 'g sq.q'%g - e.e the renewal period. . conduct those physical examinations;.. 9.r ^-M"- (b) Unless sooner terminated under (c)Is:ue or deny medical certificates 6 N* N.. i.N*:.MTO" > W s.L- .X 'l - '" paragraph (c) of this section, a desig* in accordance with Part 67 of this Ydt dWAM nation as a Flight Standards Designat. chapter, subject to reconsideration by S4ft.h"U'a.8,7DM h E(. Q b'E d,Y h?'"??.'. M #' r ed Representative is effective for on3 the Federal Air Surgeon or his author. - O O$'i.Nlh.-#N@'On year after the date it is issued and ized representatives within the FAA: Oh-F2' H-may be renewed for additional periods (d) 1ssue student pilot certificates as W M# i f:"b?'*dEhbN'WD@4' N of one year in the Administrator's dis. specified in i 61.85 of this chapter; and 5 cretion. (e) As requested, participate in inves. J 5-31 T.s (c) A designation ma.ste under this tigating aircraft accidents. );<c.' W.Y. subpart terminates-(secs sol sn' d 602. 72 Stat. 752, 49 U.S.C. %yg.y.m-p f ,.".u. e representatlve,. (Doc.1151, 27 FR 4951. May 26,1962. as "!.f.M Os: M - % g~~*e@f (1) Upon the written request of the II' r*..:. - M -M.S -(2) Upon the written request of the amended by Amdt. 183-2. 32 FR 46. Jan. 5 D.1~~~'-M '7 7 W.x employer in any case in which the rec-1967; Amdt.183-5, 38 FR 12203, May 10* i M ~E' Y d'~ N. 't< 19733

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.O.'! employer who recommended him for rating examiner, or airline transport "O,4d ' p!!ot examiner may-certification; /f N.-. J..ij.W.**M.'. (4) Upon a finding by the Adminis. (a) As authorized in his des!gnation, ' ~ ',.t, 4-'l}.,a:h.. ;;; m A M 'E trator that the representative has not accept applications for fifght tests nee. s?c L -, 'b properly performed his duties under essary for issuing pilot certificates and y9.C..c ',.'3.WA Jhs.7 '..,' ~,- ratings under this chapter; the designation;

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t. (b) Under the general supervision of (5) Upon the assistance of the repre, the appropriate local Flight Standards. W:g.El. J.7y.r:% :j 7,y,.y,y.2..l sentative being no longer needed by Inspector, conduct those tests; and - c g y 1.-C e M M h;m.t c,,p' K-$ @ the Administrator; or 7)Q g.g.L,m. yg';c (c)In the discretion of the appropr!. (6) For any reason the Ariministra. ate local Flight Standards Inspector, .a 7.c 'p]p.;. y%g. 't5.'y>;@r .q;.p;;ph.ca; tion considers appropriate. 'Q Issu tempo llot rtificates and ,c;4,.%, C f.( (Doc. No.1151,27 FR 4951. Mar 26,1962, as g-amended br Amdt. 183-3. 33 FR 1072, Jan. B 183.25 Technles! personne! examiners.

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T.arh %?/f M.;N"~.;.,M Q 2 % $ Q:f representative designated under this part shall make such re. (1) Accept applicat!ons for, and con. tW .-""iMM *. $~A'IJ.?" l , ports as are prescribed by the Admin-. duct, mechanic, oral and practical MM.,*3fM~4t' V.0,.~ "..M?/* NI'*'b'*d! istrator. tests necessary for issuing mechanic T ' ~ G,. ; - f certificates under Part 65 of this chap. ....'i.c,. J.' l.' ;f.f Y) MJ id W~'- lv.pg.rW w ter; and f (2)In the discretion of the appropri.

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. ' ?.M..,.;<^f~.:F.':' (2)In the discretion of the'appropri. . p nta m e t ate local Flight Standards Inspector. (a) A structural engineering repre, f ',.. f,J $$ 2.7 f,2,*.T, ' ' ~ issue temporary parachute rigger cer-sentative may approve structural engl. ,. A. /E 7 '. '. J v A H /F - tificates to qualified applicants. neering information and other struc-

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tural considerations within limits pre.. > ;. -C ?. J. - ^ e:E 'w (c) An air traffic control tower oper-1,p'Mc ;. -s,. Q iyi:),.,; M,. $'9i.9'/ *> scribed 'by. and under the general su. ' W: . S 'O. P. % ', i (1) Accept applications for, and con. pervision of the Administrator, when-duct, written and practical tests neces. ever the representative determines

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. '., E.,. g'j, :c. - certificates under Part 65 of this chap-considerations comply with the app 11 te.r; and cable regulations of this chapter. . "f.,. {. (2)In.the discretion of the Director, (b) A power plant engineering repre- ... c; ;-;. - :-.; c.,l. . e g./:3.:q* Air Traffic Service, issue temporary sentative may approve informati n re- " -. g. ;..., q. contrcl tower operator certificates to lating to power plant instaHations qualifl:d applicants. within limitations prescribed by and l'.$'.'Y'C d M :E C-tNy _ < w"--~ ~n. c. a.- a.Wd M'~ -I under the general supervision of the --n s - (d) A designated flight engineer ex* EN~=M"61"E?P;. v-M* Administrator..whenever the repre-n smin:r (DFEE) may-sentative determines that information (1) Accept applications for, and con-complies with the applicable regula- . ~. -MZ-C['.C 'W1P 5 duct, cral and practical tests necessary tions of this chapter. 99.Nb.ddh6Ihh.hMV .f:r issuing flight engineer certificates (c) A systems and equipment engi-ji'N.$ij undIr Part S3 of this chapter; and neering representative may approve O.~" _~_ ".f;g y_.ff:, - -. 6 g.f.

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~"- c ate local Flight Standards Inspector, equipment and systems, other than " *,.";.% :9,q:.?!:.)/p.Y;. *;;;[ Issue temporary flight engineer certifi-those of a structural, powerplant, or 1l8': cates to qualified appllcants. radio nature, within limits prescribed ..g. '. c. j; (e) A designated flight navigator ex. by and under the general supervision '-@i s aminer (DFNE) may-of the Administrator, whenever the .y' (1) Accept applicatbns for, and con. representative determines that infor- . ',cf duct, cral and practical tests necessary mation complies with the applicable '. - /. ~ ; - . v. l f:r issuing flight navigator certificates regulations of this chapter. yc., under Part 63 of this chapter; and (d) A radio engineering representa- '? (2) In the discretion of the appropri-tive may approve engineering informa ,.+ g., at? local Flight Standards Inspector, tion relating to the design and operat-7....c- ;.:;._. x. Issue temporary flight navigator cert! D'I characteristics of radio equipment, .,..; y.p;.g%p gg. 3.g.c within limits prescribed by and under D- --c. A.W. ficates to qualified applicants. the general supervision of the Admin-6.E '$lP T I.'.U.?s ~'.'I.2.TO D' 'i (D A designated aircraft d!spatcher 1strator whenever the representative " ^9 : examiner (DADE) may-determines that information cornplies ' ' ' '}7. :. <. '.i JY-t.. - (1) Accept applications for, and con-with the applicable regulations of this 9 - ~ ' duct, written and practical tests neces-chapter. '~ ~ sary far issulng aircraft dispatcher cer-(e) An engine engineering repre- ~~ ' '. M '7! ~' tificates under Part 65 of this chapter-sentathe may approve engineering in-and ~~d r ' 4 w;- 44 formation ; relating to engine design, t (2)In the discretion of the appropri-operation and service, within limits ^fL'-3 ';.s~l.: % 'O'.M C, %.... f.,'C J a .T ate local Flight Standards Inspector, prescribed by and under the general L A .? W~ issue temporary aircraft dispatcher ' supervision of the Administrator. ~ certificates 1o qualified applicants. whenever the representative deter-mines that information complies with 799 ~ ' ,---.:.,.,.,2,.,....,,_, ~. -- W e

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. m. - - ~ . pu;,ae,,!: u.v.g,. ,. W. ..- ~. g. yg .:_ e _ c.3 f,::;w pu..y,..;:.. .'r f.;.' M I h [I;,h.".sv ;,,. e. g:e,W.i.v.W),, /;..%-. j .s. M. - { 183.31 2-i.D,q....N..y; v.:.. x:+ Title 14-Aereneutles and 5 oce S p. e.,..? M.g *... b.gQ9,-Yf"s. i'D:... P gig ? 'the applicable regulations of i ds t .y @f .. w;c .h'- chapter. the general supervision of, the Admin. N., y ;-;3.D.,Jf.. f.'llM;. 1strator, do the following: Pi J j (f) A propener engineering repre. (a) Issue-- y.. '9 -N f;.N,. W.6 ;, sentative may approve engineering in. (1) Original airworthiness certift. ?I ' f. i %:E. Y9 *. Ei - formation relating to propeller design," operation, and maintenance, within cates for aircraft and airworthiness Tl.QdM'M'Jth*f".f'. .T..<. 0 ' - 67,.. f...'. limits prescribed by and under the approvals for engines, propellers, and MM-general supervision of the Administra* product parta that conform to the ap. WN-l l.p tor whenever the representative deter-proved design requirements.and are in W :'E G '#'h'W'y-p./l.F"'dM*Je ? mines that information compiles with a condition for safe operation:. .' 5 k rdY i5 the applicable regulations of this . (2) Export certificates of airworthi. di'I)'# ? 'A ' ' ne"s and airworthiness approval tags w. chapter. . f' (g) A flight analyst representativ'e in accordance with Subpart L of Part

f.* l b.-

tc. A N' may approve flight test information, 21 of this chapter- '.d v!,/.'.i.*t l i-G 2 ' ' / ' '. - 5 .i.'?J, P. + T. '> within limits prescribed by and under (3) Experimenta'l certificates for air. ./,* *-5ev ' 't "- the general supervision of the Admin. craft for which the manufacturer 1strator, whenever the representative holds the type certificate and which

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  • 'dy.gsper.fy,.h,c c..,. :h,.'

$n' determines that information complies have undergone changes to the type W:3,.g l ,./ t.;;,W (.6:9M, U $1 with the applicable regulations of this design requiring a flight test; and chapter. (4) Special flight permits to export ~ 3,;y. ; s,. e (h) A flight test pilot representative aircraft.. ,j y, may make flight tests, and prepare (b) Conduct any inspections that and approve flight test information re. may be necessary to determine that-c,.. 1, 'c @ ;_, ?,' >. "."-

3. W c.c..;'e lating to compliance with the regula.

(1) Prototype products and related tions of this chapter,.d'hin limits pre-parts conform to design specifications; .;'. 1 v.8... ..M- -,.. j. p'. jp P. .e /. scribed by and under the general su-and ~ pervision of the Administrator. E..).'CW'h. 4 ,.. (2) Production products and related TlM;-3f:'Dl ~~ ~ " '1 (!) An acoustical engineering repre parts conform to the approved type aq I.ym'i sentative may witness and approve air-crafL noise certification tests and ap-design and are in condition for safe op- @' O N [-. Y~p.*" G" O p b, h m. a-f5?- erstion. prove measured noise data and evalu* NZUT ated noise data analyses, within the (c) Perform functions authorized by 2 '~' M N ?.b~'?h,[d,y 'C' b' h. limits prescribed by, and under the this section for the manufacturer, or

  • P.D$M ":- -

d b., general supervision of, the Administra* the manufacturer's supplier, at any lo. WEDfWM'#N *. tor, whenever the representative de-cation authorized by the FAA. T'~:#"* *" ** i termines that the noise test, test data, Q and associated analyses are in con. CDoc. No.183-6. 45 FR 1416, Jan. 7.19801 'M 'd' [ Mi @, formity with the applicable regula. W6-f.N;j*.ii.tM....Jjd' y., ri. y.lf. tlont of this chapter. Those regula. PART 185-TESTIMONY BY EMPLOY. 7 '; tions include, where appropriate, the EE5 ~ AND PRODUCTION OF RE. methodologies and any equivalencies CORDS IN LEGAL PROCEEDINGS

  • I~~

previously approved by the Director. AND SERVICE OF LEGAL PROCES$ .' 's - Environment and Energy, for that AND PLEADINGS ~ . noise test series. No designated acous. tical engineering representative may Sec.

L-determine that a type design change is 185.1 Purpose.

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not an acoustical change, ot' approve 185.3 Acceptance of service on behalf of .:} equivalencies to prescribed nolsa pro-3MQQ*I D"A",ponauon or the . 3-$ u,- 7 a u.r_.&

, %,,7, f,, *{j,Q,}_ ;,,,l,gg cedures or standards.

o 5,, 165.5 Testimony by employees and produe-9.~*.". IDoc. No.1151,27 FR 4951, May 26.1962, as tion of records in lesal proceed!nss. y

c..-. s. j' v amended by Amdt. 183-7,45 FR 32669, May 18' IIIU AUTNonrry* Secs. 303. 213. 72 Stat.147 1

752; 49 U.S.C.1344,1354,1655; Part 9 of the 8 183.31 Dedensted manufacturine Inspee. regulauons of the OfDee of the Secretary of 2 ~ ', D, '.- '. '.~ Transportation (49 CFR Part 9) as amended ['" "'"'"" 5 (34 FR 11972). h".h..$ "" "y.. i

  • 4.*(;ls.).},-p A designated manufacturing inspec"
f.y.u Souncr
Docket No. 9900, 34 FR 16622 L

tion representative (DMIR) may, ~I " M

  • k within lim!'.s prescribed by, and under Oct.17,1969 unless otherwise noted. -

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w._ ~ ENcLosuR.6 L r t e: I C L. i.' y .a l E IM3 ROVING l AIRCRAFT Tf L. SAFETY i~ p - FAA Certification of Commercial Passenger Aircraft E $m g. Committee on FAA Airworthiness k Certification Procedures. Assembly of Engineering d National Research Council Q.g...,- 4h n. tir-n S i a ~ as f-l l L 10 u.. p :. NATIONAL ACADEMY OF SCIENCES jr. WASHINGTON, D.C. 1980 g ~$L E I !Ew

l e l l i l Y l 1 r l l l t 1 1' f[ Desionated Engineering Representatives L occuoied with the certi-s l About 370 FAA. enciaaa* a ara fication pf aircraf t of all types. Half of these are,in the two regions with responsibility for Boeing, Douglas, and Lockheed. The FAA regional project engineering and flight test team certificating a new transport consists f i of 20 to 30 professionals, most of whom also perform other duties. By contrast with the number-of FAA engineers, Boeing l estimates it will concentratg'about 4,000 enoineers on l its new 767 transport at the peak of its oesign effort. i As a measure of the volume of work to be performed and i reviewed,' Lockheed has reckoned that, in the course of certificating a new wide-body aircraft, it would submit eaadaaarino draw!act and chances, j ,approximately }00.666 2,on0 aaadana i a -aaa-* s, and 200 vaade* ranorts. In i ~ addition, it would subject the air, plane to about 90 maior h ground tasts and 1,600 flicht test hours. Throughout tnis period, it would send some 1,500 letters to the i' i rAA.9 ~~~~FkA engineers cannot review each of the thousands of drawings, calculations, reports, and tests: yet the agency must be certain that the design for a new airplane The certificab , meets all the regulatory requirements. ll - tion process thus depends not only on a review of high '. l 1 e l

  • J

-~ 9 *.L - ..-.; i._ ; IMPROVING AIRCRAFT SAFETY /30. ^ quality by the FAA but also on the assistance rendered by employees of the aircraft manufacturers--the Desig-nated Engineering Representatives, who review the design and design process to make sure, on behalf of the. agency, .that all aspects of the re'gulations are complied with. These " designees" hold key technical positions and are usually selected'from the ranks of the firm's more senior engineers, typically having 15 to 20 years' et te-rience.. Many hold supervisory positions as well. In , general, they possess detailed knowledge of the design bas ~ed on day-to-day involvement. It is not practical for FAA personnel to acquir'e the same familiarity with details of the drawings, analyses, and tests,.

Although, the committee,was told, career path advancement is not affected by the designee role, the peer respect earned by virtue of the' individual's appointment evidently contributes to what the committee observed as a high degree of dedication and motivation in the individual

,^ performance of designees. Indeed, among those inter- .i. viewed, the committee dete ;ted that the job of a designee is a sought-af ter assignment. i.* Designees are usually nominated by the applicant 4 (i.e., aircraf t manufacturer) but are appointed by the FAA regional director only after he is satisfied with ,{ their personal and professional qualifications and expe-i- rie nce. Once appointed, they are delegated by the FAA l administrator, through the regional office, to repre-sent the FAA in helping to determine that the aircraft ' ~ des'ign complies with the relevant requirements'of the regulations. In this capacity, desionees are bound bv the "same requirements, instructions, procedures, and interpretations as FAA employees.=10 _ The use of designees has oeen successful in the past primarily because each of the three'ssgments of the air transportation system--government, manuf acturer, and. airline--seeks tor,4chttve a high degree of safety. While designees perform much work for the FAA, the agency re- , s. ser,ves to itself the approval of such necessary and prudent elements in the certification process as l e The regulatory basis. e The analytical criteria to be used. The major design philosophy affecting safety. e e All fault-type safety analyses. e All test proposals. e The witnessing of all major tests. All major flight testing. l ,^*- _ ~ _ y

' e s ~ . _ _ - _ =... A 31/, Type Certification and Ru'le Making { E, All in-service safe'ty, problems,. e The aircraft flight manual. i; The advantages,of the designee system are apparent. h It enables the FAA to have a substantially increased 1 number of highly qualified technical people reviewing l cnd c'hecking thousands of pages of data to determine whether or not all. the pertinent regulations and proce-dures have been satisfied. The possible disadvantage of the system, one that has been of ten assert'ed by some members of the public and representatives of interest ( groups other than the companies and the FAA itself, is i the appearance, if not the existence, of a lack of inde-pendent objectivity--i.e., a conflict of interest for [ the designee, who is in the position of serving two masters. The committee finds, however, that potentials for conflict are checked by: (i) the ethical motivation of engineers to maintain a reputation for technical integ-rity and professionalism (ii) the fact that, recognizing the stake of the manufacturer in assuring a safe, serv-iceable, and reliable product, the company's designees are senior engineers who perform traditional engineering review tasks for the FAA that would, by and large, be performed on behalf of the company: (iii) the organiza-A tional. structure by which the designees perform their k work under the supervision of the FAA staff s and (iv) ~ ,i a the arrangement that the FAA reserves to its own staff the most critical design decisions and approvals. As thefsystem is presently organized, therefore, the [ committee concludes that the desionaa svrtam for auomen*- ing the capability of the FAA to ravi=w and cartificate - _tne tyoe desian is not only acorooriate but indiscen-t sab1_. The Co mittee, therefore, TeCom ends that the e FAA continue'to use Designated Engineering Representa-1 tives to perform the functions _nou delegated to them. V, t l ~, .=. ~. l 1 i 1 W

l l a l. 6NcLoggg6 3 ^ '~ 'O i .r 1 FAA CERTIFICATIdN PROCEDURES: AN FAA PERSPECTIVE l In Response To The " Blue Ribbon Panel" Report t JANUARY 1981 4 I I L g U. S. DEPARTMENT OF TRANSPORTATION FEDERAL AVIATION ADMINISTRATION WASHINGTON, D. C. 20591 s ..f \\ l 1 S l

FOREWORD January 15, 1981 At my' request, the National Research Council commissioned a Blue Ribbon Panel of experts to evaluate the Federal Aviation Administration's procedures and ~ practices in assuring the safety of commercial jet aircraft in the certification process. I requested that this independent analysis-be undertaken to maintain a high degree of safety in air travel and to protect the integrity of U.S.-made aircraft and parts in international commerce. In June 1980,' the Blue Ribbon Panel completed ltis work, Improving Aircraf t Safety, FAA Certification of Commercial Aircraft. Since that time, the Federal Aviation Administrator and his staff have undertaken a thoroagh evaluation of the Panel's report and have produced a report to me, which I am releasing today. This report, which my own staff has closely reviewed and which in large part agrees with the findings and conclusions of the Panel, is a candid evaluation of measures that are to be taken by the Federal Aviation Administration that will lead to improvement in today's airworthiness certification system. ? I intend to turn over this report to the incoming Secretary and Administrator in order that continuity on this important issue will not be lost and so that they. l may implement those measures that will ensure that the Federal Aviation Administration continues its world leadership in aviation safety. I I V 'eil Gold chm'idt t s l e f ~ D 9

l ~ 1 .10 RECOMMENDATION 2: The Committee r commends that the FAA continue to use Designated Engineering Representatives to' perform the functions now delegated to them. .SIM1ARY OF RESPONSE: The FAA concurs with the Panel's assessment that the use of designees is nece.ssary, their duties appropriately monitored, and the potential for abuse o'f the designees' authorities is adequately counterbalanced by real-world checks and balances. DISCUSSION: In the late 1940's, a basic question was framed: "Should the Civil Aeronautics Act of 1938 be' amended to permit delegation of certain responsibil-i ities and authorities to private persons, who would then be empowered to act! on behalf of the' Administrator?" In. order to provide for more efficient and economi' cal ad=inistration of F.ederal aviation safety responsibilities, in 1950 Congress passed Public Law 81-858 providing for such delegation by amendment to the (then) Civil Aeronautics Act. This authority is carried through as Section 314 of the FA Act.. The,use of designees by the FAA has, from time to time, been questioned by various factions. As of early 1980 there were some 861 " designated encineerine representatives" used by TAA, usually for' the purpose of assisting in the l certification of aircraft by witnessing tests, approving technical reports required by regulations, etc. In ' addition, about 615 " designated manufacturer's. inso'ection reeresentatives" are used by FAA_to effect detailed in process ' manufacturing inspection. Taking into account all facility, training, travel, and other support requirements for such a staff, it is clear that this represents a government economy of about $100 million annually. Questions generally centered around the " appearance of a conflict of interest" will likel'y re=ain as long as i:he Congressional authority to appoint designees I is exercised. FAA emolovees cenerally directiv check about 5% of a desienee's g until telltale signs begin to appear. Then a much more detailed audit, and f requently 100% monitoring, of the designee's work is undertaken until FAA is satisfied that the designee is responsibly carrying out the assigned tasks. Rarely is FAA required.to rescind a designation, but it has happened in a few cases and FAA.does not,hestrate to do so, with cause.

  • The use of designees was carefully reviewed by the Blue Ribbon Panel.

It analyzed the place of designees in their e=ployers' organizations and the c i pressures on them to maintain professional int'egrity, in contrast to what might be characterized as a tecptation to look th.e other way when -a defect in certification tests or analyses is uncovered. It concluded that any potential for conflict is sufficiently outweighed by other factors to recommend continuation of this practice, with the expectation that their record of ~ professional integrity will continue at the high level it has demonstrated over 30 years of experience. l l M 4 w- , -, -}}

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