[Federal Register Volume 84, Number 188 (Friday, September 27, 2019)]
[Notices]
[Pages 51222-51225]
[FR Doc No: 2019-20986]

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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

Notice of Submission Deadline for Schedule Information for
Chicago O'Hare International Airport, John F. Kennedy International
Airport, Los Angeles International Airport, and San Francisco
International Airport for the Summer 2020 Scheduling Season

AGENCY: Federal Aviation Administration (FAA), Department of
Transportation.

ACTION: Notice of submission deadline.

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SUMMARY: Under this notice, the FAA announces the submission deadline
of October 3, 2019, for Summer 2020 flight schedules at Chicago O'Hare
International Airport (ORD), John F. Kennedy International Airport
(JFK), Los Angeles International Airport (LAX), and San Francisco
International Airport (SFO). The deadline coincides with the schedule
submission deadline for the International Air Transport Association
(IATA) Slot Conference for the Summer 2020 scheduling season.

DATES: Schedules must be submitted no later than October 3, 2019.

ADDRESSES: Schedules may be submitted by mail to the Slot
Administration Office, AGC-200, Office of the Chief Counsel, 800
Independence Avenue SW, Washington, DC 20591; facsimile:<PHONE_NUMBER>;
or by email to<EMAIL_ADDRESS>
FOR FURTHER INFORMATION CONTACT: Al Meilus, Manager (Acting), Slot
Administration, AJR-G, Federal Aviation Administration, 800
Independence Avenue SW, Washington, DC 20591; telephone<PHONE_NUMBER>;
email<EMAIL_ADDRESS>
SUPPLEMENTARY INFORMATION: This document provides routine notice to
carriers serving capacity-constrained airports in the United States.

General Information for All Airports

    The FAA has designated LAX, ORD, and SFO as IATA Level 2 airports
\1\ and JFK as an IATA Level 3 airport consistent with the Worldwide
Slot Guidelines (WSG).\2\ The FAA currently limits scheduled operations
at JFK by

order that expires on October 24, 2020.\3\ The FAA has also designated
Newark Liberty International Airport (EWR) as a Level 2 airport and
intends to issue a separate schedule submission notice for EWR for the
Summer 2020 season.
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    \1\ These designations remain effective until the FAA announces
a change in the Federal Register. The FAA suspended Level 2 schedule
review at ORD on a trial basis for the Winter 2019/2020 scheduling
season only. 84 FR 18630 (May 1, 2019).
    \2\ The FAA applies the WSG to the extent there is no conflict
with U.S. law or regulation. The FAA is reviewing recent substantive
amendments to the WSG adopted in version 10 and considering whether
to implement certain changes in the U.S.
    \3\ Operating Limitations at John F. Kennedy International
Airport, 73 FR 3510 (Jan. 18, 2008), as amended 83 FR 46865 (Sep.
17, 2018). The slot coordination parameters for JFK are set forth in
this Order.
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    The FAA is primarily concerned about scheduled and other regularly
conducted commercial operations during peak hours, but carriers may
submit schedule plans for the entire day. The peak hours for the Summer
2020 scheduling season are: At LAX and SFO from 0600 to 2300 Pacific
Time (1300 to 0600 UTC), at ORD from 0600 to 2100 Central Time (1100 to
0200 UTC), and at JFK from 0600 to 2300 Eastern Time (1000 to 0300
UTC). These hours are unchanged from previous scheduling seasons.
Carriers should submit schedule information in sufficient detail
including, at minimum, the marketing or operating carrier, flight
number, scheduled time of operation, frequency, aircraft equipment, and
effective dates. IATA standard schedule information format and data
elements for communications at Level 2 and Level 3 airports in the IATA
Standard Schedules Information Manual (SSIM) Chapter 6 may be used. The
WSG provides additional information on schedule submissions at Level 2
and Level 3 airports.
    The U.S. summer scheduling season is from March 29, 2020, through
October 24, 2020, in recognition of the IATA northern Summer scheduling
period.
    As stated in the WSG, schedule facilitation at a Level 2 airport is
based on the following: (1) Schedule adjustments are mutually agreed
upon between the airlines and the facilitator; (2) the intent is to
avoid exceeding the airport's coordination parameters; (3) the concepts
of historic precedence and series of slots do not apply at Level 2
airports; although WSG recommends giving priority to approved services
that plan to operate unchanged from the previous equivalent season at
Level 2 airports, and (4) the facilitator should adjust the smallest
number of flights by the least amount of time necessary to avoid
exceeding the airport's coordination parameters. Consistent with the
WSG, the success of Level 2 in the U.S. depends on the voluntary
cooperation of all carriers.
    The FAA considers several factors and priorities as it reviews
schedule and slot requests at Level 2 and Level 3 airports, which are
consistent with the WSG, including--historic slots or services from the
previous equivalent season over new demand for the same timings,
services that are unchanged over services that plan to change time or
other capacity relevant parameters, introduction of year-round
services, effective period of operation, regularly planned operations
over ad hoc operations, and other operational factors that may limit a
carrier's timing flexibility. In addition to applying these priorities
from the WSG, the U.S. Government has adopted a number of measures and
procedures to promote competition and new entry at U.S. slot controlled
and schedule facilitated airports.
    At Level 2 airports, the FAA seeks to improve communications with
carriers and terminal schedule facilitators on potential runway
schedule issues or terminal and gate issues that may affect the runway
times. The FAA also seeks to reduce the time that carriers consider
proposed offers on schedules. Retaining open offers for extended
periods of time may delay the facilitation process for the airport.
Reducing this delay is particularly important to allow the FAA to make
informed decisions at airports where operations in some hours are at or
near the scheduling limits. The agency recognizes that there are
circumstances that may require some schedules to remain open. However,
the FAA expects to substantially complete the review process on initial
submissions each scheduling season within 30 days of the end of the
Slot Conference. After this time, the agency would confirm the
acceptance of proposed offers, as applicable, or issue a denial of
schedule requests.
    Slot management in the U.S. differs in some respect from procedures
in other countries. In the United States, the FAA is responsible for
facilitation and coordination of runway access for takeoffs and
landings at Level 2 and Level 3 airports; however, the airport
authority or its designee is responsible for facilitation and
coordination of terminal/gate/airport facility access. The process with
the individual airports for terminal access and other airport services
is separate from, and in addition to, the FAA schedule review based on
runway capacity. Approval from the FAA for runway availability and the
airport authority for airport facility availability is necessary before
implementing schedule plans. Carriers seeking terminal approval should
contact the schedule facilitator for that airport.
    Generally, the FAA uses average hourly runway capacity throughput
for airports and performance metrics in its schedule review at Level 2
airports and determining the scheduling limits at Level 3 airports
included in FAA rules or orders.\4\ The FAA also considers other
factors that can affect operations, such as capacity changes due to
runway, taxiway, or other airport construction, air traffic control
procedural changes, airport surface operations, and historical or
projected flight delays and congestion.
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    \4\ The FAA typically determines an airport's average adjusted
runway capacity or typical throughput for Level 2 airports by
reviewing hourly data on the arrival and departure rates that air
traffic control indicates could be accepted for that hour, commonly
known as ``called'' rates. The FAA also reviews the actual number of
arrivals and departures that operated in the same hour. Generally,
the FAA uses the higher of the two numbers, called or actual, for
identifying trends and schedule review purposes. Some dates are
excluded from analysis, such as during periods when extended airport
closures or construction could affect capacity.
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    Finally, the FAA notes that the schedule information submitted by
carriers to the FAA may be subject to disclosure under the Freedom of
Information Act (FOIA). The WSG also provides for release of
information at certain stages of slot coordination and schedule
facilitation. In general, once it acts on a schedule submission or slot
request, the FAA may release information on slot allocation or similar
slot transactions or schedule information reviewed as part of the
schedule facilitation process. The FAA does not expect that practice to
change and most slot and schedule information would not be exempt from
release under FOIA. The FAA recognizes that some carriers may submit
information on schedule plans that is both customarily and actually
treated as private. Carriers that submit such confidential schedule
information should clearly mark the information as ``PROPIN''. The FAA
will take the necessary steps to protect properly designated
information to the extent allowable by law.

Level 2, FAA Designation Review

    In the previous Notice of Submission Deadline published for the
Winter 2019/2020 scheduling season, the FAA advised it was reviewing
the Level 2 runway designations at LAX, ORD, and SFO to determine if
the designations at these airports continue to be necessary for future
scheduling seasons and announced a suspension on a trial basis of the
Level 2 runway designation at ORD for Winter 2019/2020 schedules.\5\

The FAA also indicated it would engage with the airport operators,
carriers, and other stakeholders to determine whether the FAA
designation provides substantive benefits to the traveling public by
reducing potential runway congestion and delay. The FAA reiterates that
its review at LAX, ORD, and SFO was for runway purposes only as the
separate airport facility designations are made by the local airport
operator.
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    \5\ Notice of Submission Deadline for Schedule Information for
John F. Kennedy International Airport, Los Angeles International
Airport, Newark Liberty International Airport, and San Francisco
International Airport for the Winter 2019/2020 Scheduling Season;
Suspension of Level 2 at Chicago O'Hare International Airport, 84 FR
18630 (May 1, 2019).
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    The FAA held discussions with the airport operators of LAX, ORD,
and SFO as well as various airlines serving the airports to obtain
their views on whether Level 2 remains appropriate and whether the
FAA's advance review of scheduled demand can yield improved
performance. The FAA discussed the Level 2 review with airlines and
airport operators in meetings at the 144th IATA Slot Conference, the
domestic slot conference hosted by Airlines for America, as well as
other individual meetings. No formal written comments were received.
The FAA reviewed air traffic operations and constraints, performance
metrics, and airport/airfield construction plans at the individual
airports that might impact airport operations or capacity. The Air
Traffic Organization and other FAA offices also regularly meet with
stakeholders on national and local levels to address operational issues
and ways to improve efficiency.
    The FAA has determined that a Level 2 designation for LAX, ORD, and
SFO remains appropriate at this time and these designations will remain
in effect until the FAA announces a change in the Federal Register. The
results of the FAA review for the individual airports are discussed
below. The FAA will continue to monitor operations and demand at the
airports and regularly consult with the airport operators and
stakeholders to determine if a level change is warranted in the future.

LAX

    LAX was designated Level 2 in 2015 based on multiple runway
construction projects that were planned through 2018.\6\ Since that
time, other runway and taxiway have been planned by the Los Angeles
World Airports (LAWA), including a closure of Runway 7R/25L during
parts of the Winter 2020/2021 and Summer 2021 scheduling seasons, and
construction of taxiway exits on Runways 6L/24R and 6R/24L in the
planning stages for 2022.
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    \6\ Notice of Submission Deadline for Schedule Information for
Los Angeles International Airport for the Summer 2015 Scheduling
Season, 80 FR 12253 (Mar. 6, 2015).
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    The FAA reviewed the recent scheduled demand at LAX, the typical
airport arrival and departure rates with four available runways, how
runway capacity was impacted with the series of runway construction
projects since 2015, and the anticipated impacts when Runway 7R/25L
closes for construction. Surface operations at LAX present a
challenging air traffic operational environment with limited movement
and holding areas, multiple taxiway and runway restrictions based on
aircraft types and operating characteristics, and limitations due to
the distance between the north runways. The airfield construction over
the last few years and continuing with current and upcoming taxiway and
terminal construction increases the operational complexity for runway
configuration and surface movements.
    Stakeholders did not have strong views on whether the FAA's
schedule review is needed in the long term as LAWA is also actively
managing gates and terminal access for international passenger flights,
has relocated terminals and gates for multiple airlines to improve
efficiency and better match airport facilities with airline operations,
and recently deployed surface management tools. Stakeholders
acknowledged LAWA efforts and some international operators viewed
LAWA's schedule facilitation for terminal access as sufficient. Some
airlines expressed concern that the airport has been under construction
for significant portions of the past several years with ongoing taxiway
and terminal construction and this has increased delays and operational
challenges. Some expressed concern that it may not be appropriate to
change the airport level and that it should be considered after the
next runway closure and major construction projects are done. Some
airlines indicated that they wanted to grow their operations at LAX in
the future and the airport could benefit from Level 2 to help prevent
delays through facilitation of voluntary schedule adjustments while
others were concerned that under Level 2 they might not be able to
operate at their preferred times. The airlines generally indicated
there is minimal burden associated with providing schedules noting that
they were already providing information to the airport for terminal
planning purposes or that providing information to the FAA was largely
an automated process. Airlines noted that providing schedule
information to the FAA before it is final and, in many cases, before it
is publicly available, allows the FAA to identify periods of potential
congestion. Several airlines stated that if changes were needed to
avoid or reduce delays, they would rather know as early as possible in
the planning process when it is easier to adjust schedules.
    The FAA has determined that Level 2 at LAX remains appropriate
given the airport demand and the potential capacity impacts and
anticipated operational impacts from the upcoming airport construction.
The aircraft fleet mix includes a significant percentage of heavy
aircraft that require additional spacing in the air and specific
routings or other limitations on the surface. Multiple airlines operate
at LAX as a hub airport or focus city and plan schedules independently.
There are periods when scheduled demand is relatively high such as the
morning and evening hours and excessive demand has the potential to
increase air traffic delays. The schedule facilitation and cooperation
by airlines to voluntarily make necessary schedule changes would
continue to provide an opportunity to manage scheduled demand during
upcoming construction.

ORD

    The FAA designated ORD as Level 2 in 2008 to allow for a smoother
transition as slot control under Level 3 was phased out with the
opening of a new runway in November 2008.\7\ The FAA concluded that
Level 2 was necessary to facilitate the scheduling of operations so
that the airport would not suffer from periods of overscheduling as it
adjusts to new capacity and as modernization plans continued.
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    \7\ Notice of Submission Deadline for Schedule Information for
O'Hare International, John F. Kennedy International, and Newark
Liberty International Airport for the Summer 2009 Scheduling Season,
73 FR 54659 (Sep. 22, 2008).
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    While it conducted its review of the ORD Level 2 designation, the
FAA suspended the runway schedule review on a trial basis for the
Winter 2019/2020 scheduling season noting that demand is typically
within the airport's runway capacity. This suspension was for Winter
2019/2020 only and does not change the designation for any other
scheduling season unless a subsequent change is announced. The FAA also
indicated it would publish the findings of its broad review of the ORD
Level 2 designation in the notice for the Summer 2020 scheduling
season. The FAA noted when it announced the trial suspension that it
was not aware of any major schedule or hub structure changes planned
for the Winter 2019/2020 season and none are apparent based on
currently published schedules. The FAA will continue to monitor
schedules

and operational data to assess if there are significant impacts or
other issues related to the trial suspension that might inform future
decisions.
    The City of Chicago is continuing plans to improve the airport's
throughput, efficiency, and terminal access. New construction of Runway
9C/27C is expected to continue through 2020. An extension of Runway 9R
by about 3,000 feet and shortening of Runway 27L by about 300 feet and
Terminal 5 expansion are in progress. Both projects are expected to
continue into late 2021. Various taxiway construction projects are
underway or planned for the next few years. Some of these projects,
especially runway closures, impact capacity while others such as
taxiway and terminal construction may limit surface movements and
options for holding aircraft, or increase operational complexity in the
short term. There is currently Level 2 schedule facilitation for
Terminal 5 and the terminal is constrained at peak times.
    Several airlines and the airport operator expressed support for
continuation of Level 2 to address potential congestion issues over the
next few years. Many of the statements made by airlines summarized in
the LAX section of this Notice on submitting schedules for review,
including a preference for early notice of adjustments, were also
expressed with regard to ORD. No airlines expressed a preference for a
change to Level 1 in the near term. Additionally, the FAA notes that
ORD is uniquely situated as one of the few airports in the U.S. that is
a major hub for two airlines, each of which has a substantial portion
of the total operations at the airport. Currently, there is a degree of
separation between the arrival and departure banks of the hub airlines
that limits schedule peaking. There have been occasions when one or
both airlines have changed schedule banks and overlapped schedules
causing demand to exceed capacity. The resulting in delays and flight
cancellations impacted ORD and other airports in the National Airspace
System (NAS). The FAA worked with airlines to revise schedules. Until
the changes were effective, there was significant impact to the
operation and disruption to airline networks and passengers. The FAA
finds that given ORD's demand and the importance of the airport to the
NAS, the Level 2 process provides an opportunity to try to work with
airlines to voluntarily adjust schedules before they take effect and
reduce potential delays.

SFO

    The FAA designated SFO as Level 2 effective in 2012 as a result of
low on-time performance relative to other airports, expected growth in
scheduled demand, and runway construction.\8\ Separately, the airport
also had planned runway construction after the Level 2 designation was
effective, which contributed to congestion. Today, the airport
continues to have high demand in certain hours even with Level 2 and is
limited in some cases by gate availability during peak hours. SFO
continues to be one of the more delay-prone airports in the U.S. Since
2012, operations at SFO have increased about 10%, and the proportion of
flights delayed has increased about one percentage point.\9\
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    \8\ Submission Deadline for Schedule Information for San
Francisco International Airport for the Summer 2012 Scheduling
Season, 76 FR 64163 (Oct. 17, 2011).
    \9\ Source: OPSNET data based on 12-month rolling averages.
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    Stakeholders generally expressed support for retaining the Level 2
designation to help facilitate the movement of scheduled flights into
less congested periods. Operationally, surface constraints limit
holding and staging areas for aircraft and demand for gates remains
high. Terminal 1 construction is underway and expected to be completed
in 2022. SFO facilitates international passenger flights under the
Level 2 process, which is complementary to the FAA runway review. As
with LAX and ORD, airlines generally favored retaining the FAA's Level
2 designation. Some opined that SFO's runway layout limits the airport
capacity, especially in adverse weather conditions, and the delays and
performance strongly support continuing efforts under Level 2 to manage
schedules and reduce delays. The FAA finds that the Level 2 process
should be retained at SFO in order to facilitate voluntary schedule
adjustments in an effort to reduce potential delay associated with
growing scheduled demand.

    Issued in Washington, DC, on September 24, 2019.
Michael C. Artist,
Vice President, System Operations Services.
[FR Doc. 2019-20986 Filed 9-26-19; 8:45 am]
 BILLING CODE 4910-13-P