[Federal Register Volume 76, Number 110 (Wednesday, June 8, 2011)]
[Rules and Regulations]
[Pages 33139-33152]
[FR Doc No: 2011-14146]

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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

14 CFR Part 417

[Docket No. FAA-2011-0181; Amdt. No. 417-2]
RIN 2120-AJ84

Launch Safety: Lightning Criteria for Expendable Launch Vehicles

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Direct final rule; request for comments.

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SUMMARY: The FAA is amending its lightning commit criteria to account
for new information about the risks of natural and triggered lightning.
This action amends flight criteria for mitigating against naturally
occurring lightning and lightning triggered by the flight of an
expendable launch vehicle through or near an electrified environment in
or near a cloud. These changes will increase launch availability and
implement changes already adopted by the United States Air Force.

DATES: Effective July 25, 2011. Submit comments on or before July 8,
2011.

ADDRESSES: You may send comments identified by Docket Number FAA-2011-
0181 using any of the following methods:
     Federal eRulemaking Portal: Go to http://www.regulations.gov and follow the instructions for sending your
comments electronically.
     Mail: Send comments to Docket Operations, U.S. Department
of Transportation, 1200 New Jersey Avenue, SE., West Building Ground
Floor, Room W12-140, Washington, DC 20590.
     Fax: Fax comments to Docket Operations at<PHONE_NUMBER>.
     Hand Delivery: Take comments to Docket Operations in Room
W12-140 of the West Building Ground Floor at 1200 New Jersey Avenue,
SE., Washington, DC, between 9 a.m. and 5 p.m., Monday through Friday,
except Federal holidays.
    For more information on the rulemaking process, see the
SUPPLEMENTARY INFORMATION section of this document.
    Privacy: We will post all comments we receive, without change, to
http://www.regulations.gov, including any personal information you
provide. Using the search function of our docket web site, anyone can
find and read the comments received into any of our dockets, including
the name of the individual sending the comment (or signing the comment
for an association, business, labor union, etc.). You may review DOT's
complete Privacy Act Statement in the Federal Register published on
April 11, 2000 (65 FR 19477-78) or you may visit http://DocketsInfo.dot.gov.
    Docket: To read background documents or comments received, go to
http://www.regulations.gov at any time or to Docket Operations in Room
W12-140 of the West Building Ground Floor at 1200 New Jersey Avenue,
SE., Washington, DC, between 9 a.m. and

5 p.m., Monday through Friday, except Federal holidays.

FOR FURTHER INFORMATION CONTACT: For technical questions concerning
this rule contact Karen Shelton-Mur, Office of Commercial Space
Transportation, AST-300, Federal Aviation Administration, 800
Independence Avenue, SW., Washington, DC 20591; telephone (202) 267-
7985; facsimile<PHONE_NUMBER>, e-mail<EMAIL_ADDRESS>    For legal questions concerning this rule contact Laura Montgomery,
Senior Attorney for Commercial Space Transportation, Office of the
Chief Counsel, Federal Aviation Administration, 800 Independence
Avenue, SW., Washington, DC 20591; telephone<PHONE_NUMBER>; facsimile
(202) 267-7971, e-mail<EMAIL_ADDRESS>
SUPPLEMENTARY INFORMATION:

Authority for This Rulemaking

    The FAA's authority to issue rules on commercial space
transportation safety is found in Title 49 of the United States Codes,
section 322(a), which authorizes the Secretary of Transportation to
carry out rulemakings. 51 U.S.C. subtitle V, chapter 509, 51 U.S.C.
50901-50923 (Chapter 509) governs the FAA's regulation of the safety of
commercial space transportation. This rulemaking is promulgated under
the authority of section 322(a).

Direct Final Rule Procedure

    The FAA anticipates this regulation will not result in adverse or
negative comment and therefore is issuing it as a direct final
rulemaking. Because the changes to the lightning commit criteria will
increase launch availability and are already implemented at Air Force
launch ranges, the public interest is well served by this rulemaking.
    Unless a written adverse or negative comment or a written notice of
intent to submit an adverse or negative comment is received within the
comment period, the regulations will become effective on the date
specified above. After the close of the comment period, the FAA will
publish a document in the Federal Register indicating that no adverse
or negative comments were received and confirming the date on which the
final rule will become effective. If the FAA does receive, within the
comment period, an adverse or negative comment, or written notice of
intent to submit such a comment, the FAA will withdraw the direct final
rule by publication in the Federal Register, and a notice of proposed
rulemaking may be published with a new comment period.

Comments Invited

    The FAA invites interested persons to participate in this
rulemaking by submitting written comments, data, or views. The agency
also invites comments relating to the economic, environmental, energy,
or federalism impacts that might result from adopting the changes. The
most helpful comments reference a specific portion of the proposal,
explain the reason for any recommended change, and include supporting
data. To ensure the docket does not contain duplicate comments, please
send only one copy of written comments, or if you are filing comments
electronically, please submit your comments only one time.
    The FAA will file in the docket all comments we receive, as well as
a report summarizing each substantive public contact with FAA personnel
concerning this rulemaking. Before acting on this proposal, the FAA
will consider all comments received on or before the closing date for
comments. The agency will consider comments filed after the comment
period has closed if possible without incurring expense or delay. The
FAA may make changes in light of the comments received.

Proprietary or Confidential Business Information

    Do not file in the docket information that you consider to be
proprietary or confidential business information. Send or deliver this
information directly to the person identified in the FOR FURTHER
INFORMATION CONTACT section of this document. Mark the information that
is considered proprietary or confidential. If the information is on a
disk or CD-ROM, mark the outside of the disk or CD-ROM and also
identify electronically within the disk or CD-ROM the specific
information that is proprietary or confidential.
    Under 14 CFR 11.35(b), when the FAA is aware of proprietary
information filed with a comment, the agency does not place it in the
docket. The FAA holds it in a separate file to which the public does
not have access, and the agency places a note in the docket that it has
received it. If the FAA receives a request to examine or copy this
information, the FAA treats it as any other request under the Freedom
of Information Act, 5 U.S.C. 552. The FAA processes such a request
under the DOT procedures found in 49 CFR part 7.

Availability of Rulemaking Documents

    You can get an electronic copy using the Internet by:
    (1) Searching the Federal eRulemaking portal at http://www.regulations.gov;
    (2) Visiting the FAA's Regulations and Policies web page at http://www.faa.gov/regulations_policies/; or
    (3) Accessing the Government Printing Office's web page at http://www.gpoaccess.gov/fr/index.html.
    You can also get a copy by sending a request to the Federal
Aviation Administration, Office of Rulemaking, ARM-1, 800 Independence
Avenue, SW., Washington, DC 20591, or by calling<PHONE_NUMBER>. Make
sure to identify the docket and amendment numbers of this rulemaking.

I. Background

    On August 25, 2006, the FAA issued requirements designed for an
expendable launch vehicle (ELV) to avoid natural and triggered
lightning during flight. Licensing and Safety Requirements for Launch,
71 FR 50508 (Aug. 25, 2006). An ELV is an unmanned rocket that
typically carries satellites to orbit. ELVs carry large amounts of fuel
and, due to the explosive nature of the fuel, may not be permitted to
reach populated areas in the event they go off course. In the United
States, safety for ELVs is achieved by use of a flight termination
system. A flight termination system prevents an errant launch vehicle
from reaching a populated area by destroying the vehicle. A flight
termination system consists of all components on board a launch vehicle
that provide the ability to end its flight in a controlled manner.
Without the restrictions mandated by appendix G of part 417, a
lightning strike could disable a flight safety system yet allow
continued flight of the launch vehicle without a launch operator being
able to stop its flight.
    By codifying appendix G, the FAA implemented criteria developed by
a Lightning Advisory Panel (LAP) to the National Aeronautics and Space
Administration (NASA) and the U.S. Air Force. See Merceret et al., ed.,
A History of the Lightning Launch Commit Criteria and the Lightning
Advisory Panel for America's Space Program, NASA/SP-2010-216283, 124,
par. 25 (Aug. 2010) (A History of the Lightning Criteria) and
Rationales for the Lightning Flight-Commit Criteria, NASA/TP-2010-
216291, (Oct. 7, 2010)(Rationales for Lightning Criteria). Appendix G's
flight commit criteria impose time and distance restrictions on launch,
requiring a launch operator to wait to initiate flight for specified
amounts of time after a lightning strike or when launch would take a
flight path too close to an electrified cloud.

    In this direct final rule, the FAA is permitting greater launch
availability. In brief, the FAA is reducing requirements that a launch
operator wait to launch by expanding the applicability of certain
exceptions and recognizing that the risk of triggering lightning is
less than previously understood at distances closer than previously
believed. The FAA is also codifying criteria for obtaining accurate
radar reflectivity measurements to ensure calculation of the volume-
averaged, height-integrated radar reflectivity (VAHIRR) and other
measurements, such as the vertical extent of a cloud top, are
representative of actual conditions at the time of launch, because
these calculations are instrumental in determining the presence of and
risk posed by electrified clouds.

II. New Requirements

A. General Applicability

    The FAA is revising the general description of appendix G to
clarify that the flight commit criteria are to mitigate lightning
strikes and avoid initiation of lightning when a launch vehicle flies
near or through a highly electrified environment in or near a cloud.
The FAA is also clarifying that, when a launch operator uses optional
equipment, such as a field mill, to increase launch availability, an
operator may not ignore data that does not satisfy the requirement.
This addition, particularly when read in conjunction with 14 CFR
417.113(c)(1)(ii), should ensure that a launch takes place only when it
is clear that all the criteria are satisfied. Section 417.113(c)(1)(ii)
states that a launch operator's launch safety rules \1\ must ensure
there is clear and convincing evidence that the criteria of appendix G,
which apply to the conditions present at the time of lift-off, are not
violated. Section G417.1 states that all lightning flight commit
criteria of Appendix G must be satisfied. In other words, each
paragraph of each section must be individually satisfied at the time of
launch. In short, the burden is on the launch operator to ensure that
conditions are safe for launch.
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    \1\ A launch operator must follow its safety rules. 14 CFR
417.113(a)(3).
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    A launch operator must understand that each of the sections of
appendix G deliberately prohibits launch under certain conditions.
Since all of the criteria must be satisfied, appendix G must be read in
its entirety to determine whether or not launch is prohibited. Thus,
the satisfaction of any particular paragraph or section cannot be
considered to permit launch. Even the simultaneous satisfaction of all
sections means only that there are no known natural- or triggered-
lightning threats that prohibit launch. According to Sec.
417.113(c)(1)(ii), it is still necessary for the launch weather team to
report any other hazardous conditions to the person with authority for
deciding whether or not to launch.

B. New Definitions and Clarifications of Existing Definitions

    Section G.417.3 of appendix G defines terms if they would not be
familiar to a trained meteorological observer, such as ``field mill,''
or if they constitute non-standard usage of an otherwise familiar term,
such as ``associated.'' The FAA is adding new definitions, clarifying
existing ones, and making minor editorial changes to others. For terms
not defined in this section, a useful reference is the AMS Glossary of
Meteorology, American Meteorological Society, 2000: Glossary of
Meteorology, 2nd ed., American Meteorological Society, Boston, MA, 850;
also available on line at http://amsglossary.allenpress.com/glossary.
    New definitions to appendix G include definitions of Cone of
silence, Electric field, Horizontal distance, Radar reflectivity, and
Slant distance.
    A cone of silence is a volume within which a radar cannot detect
any object and is an inverted circular cone centered on the radar
antenna. A cone of silence consists of all elevation angles greater
than the maximum elevation angle reached by the radar. The cone of
silence is a volume that the radar beam cannot access because of a
radar's maximum tilt elevation. Radar echoes close to and directly
above the radar cannot be detected. The methodology of section
G417.25(b) provides that the specified volume for the VAHIRR
calculation must not contain any portion of the cone of silence. Note
as well that, for any given search pattern, certain sectors may be
blocked out for reasons of payload safety, and the specified volume
also may not contain any portion of a sector blocked out for these
reasons. The methodology of section G417.25(a) also provides that no
other radar reflectivity measurements, such as those used to delineate
a cloud, may be affected by any volume that is inaccessible to the
radar.
    An electric field is a vertical electric field (Ez) at the surface
of the Earth. This definition differentiates the surface electric field
from those measured aloft.
    A horizontal distance is a distance that is measured horizontally
between a field mill or electric-field-measurement point and the
nearest part of the vertical projection of an object or flight path
onto the surface of the Earth. The FAA is defining horizontal distance
in order to distinguish between the measurement of this two-dimensional
distance and the three-dimensional ``slant distance.''
    Radar reflectivity means the radar reflectivity factor due to
hydrometeors, in dBZ. This is non-standard usage of a term that is
defined in the Glossary of Meteorology. Radar reflectivity measurements
in units of dBZ (as defined in the Glossary and not further discussed
herein) are further specified in section G417.25(a) and are used
throughout this appendix, including for the calculation of VAHIRR.
    A slant distance means the shortest distance between two points,
whether horizontal, vertical, or inclined in three dimensional space. A
slant distance is used in measuring the distance between a radar
reflectivity or VAHIRR measurement point and either a flight path or an
object such as a cloud.
    The FAA is also clarifying the definitions of Associated, Cloud,
Disturbed weather, Flight path, Transparent, and Volume-averaged
height-integrated radar reflectivity (VAHIRR). The following paragraphs
describe the changes made to these definitions and the reasons for
those changes.
    Associated means two or more clouds are caused by the same
disturbed weather or are physically connected. The FAA is deleting the
discussion contained in the current definition. Discussion is better
placed in explanatory material like this preamble, and is unnecessary
in regulatory text. Accordingly, it is still the case that
``associated'' does not have to mean occurring at the same time. It is
also still the case that a cumulus cloud formed locally and a cirrus
layer physically separated from that cumulus cloud and generated by a
distant source are not associated, even if they occur over or near the
launch point at the same time.
    A cloud is a visible mass of suspended water droplets, ice
crystals, or a combination of water droplets and ice crystals. A
``cloud'' includes the entire volume containing such particles. This
clarification omits an unnecessary reference to the particles being
produced by condensation of water vapor in the atmosphere. Note that
this definition works together with that of ``slant distance'' to
specify that standoff distances from a cloud be measured from the
nearest edge of that cloud.
    Disturbed weather is a weather system where a dynamical process
destabilizes the air on a scale larger than individual clouds or cells.
Disturbed weather specifically includes, but is not limited to, fronts,
troughs, and squall lines. (In

this case, the examples are retained as a critical part of the
definition.) The body of the definition remains unchanged, but the FAA
is now adding a squall line as an important example of disturbed
weather because, along with fronts and troughs, it is frequently
related to electrification of the associated clouds.
    Flight path means a launch vehicle's planned flight trajectory,
including the trajectory's vertical and horizontal uncertainties
resulting from all three-sigma guidance and performance deviations. The
FAA is no longer referencing wind effects because three-sigma
dispersions already take wind effects into account.
    The definition of transparent is clarified to mean any of the
following conditions apply:
    [rtarr9] Objects above, including higher clouds, blue sky, and
stars are not blurred, are distinct, and are not obscured when viewed
at visible wavelengths;
    [rtarr9] Objects below, including terrain, buildings, and lights on
the ground, are clear, distinct, and not obscured when viewed at
visible wavelengths;
    [rtarr9] Objects above or below are seen distinctly not only
through breaks in a cloud;
    [rtarr9] The cloud has a radar reflectivity of less than 0 dBZ.

Historically, transparency has been determined by a person watching the
sky. The weather experts at the Federal launch ranges prefer
observations undertaken by a person. Rather than limiting visual
observations to those made by a person standing outdoors, this
definition reflects the fact that transparency may be determined by
satellite or camera as well. A person may also look at images of the
conditions outside to ascertain transparency. For these reasons, the
phrase ``at visible wavelengths'' has been retained; clouds that look
transparent to a human observer may not look transparent to an imaging
sensor operating at another wavelength, and vice versa.
    Volume-averaged height-integrated radar reflectivity means the
product, expressed in units of dBZ-km, of the volume-averaged radar
reflectivity (in dBZ) and the average cloud thickness (in kilometers)
in the specified volume determined by a VAHIRR-measurement point. The
old definition states that the calculation applies to ``a specified
volume relative to a point along the flight track.'' The change
clarifies that VAHIRR may be computed at points other than along a
flight path. New section G417.25(b) describes in detail how VAHIRR is
calculated.
    Additionally, the FAA is making minor editorial changes to the
following definitions: Anvil cloud, Precipitation, Moderate
precipitation, Thick cloud layer, Triboelectrification, and Volume-
averaged height-integrated radar reflectivity.
    The FAA is also deleting several definitions.
    Cloud edge is being deleted because it is now part of the
definition of a cloud. Electric field measurement at the surface of the
Earth is being deleted. The criteria this term contained are more
accurately characterized as requirements, and, therefore, now appear in
new section G417.25(c) Electric field measurement, which governs how to
measure electric fields. Electric field measurement aloft is removed
because Appendix G contains no criteria for electric field measurement
aloft in the regulations. Although the FAA initially considered
criteria for electric fields aloft, in the end, it did not promulgate
requirements when it issued part 417. The definition was inadvertently
left in the final rule. The definition of Ohms/square is removed
because the term is a standard unit of measurement. The definition of
Specified volume is no longer necessary because the term contained
requirements now located in section G417.25. Treated is being deleted
because it contained requirements now located in section G417.23(b).
Within is being deleted because more precise language regarding the
distance between a flight path and a cloud should prevent any
misunderstanding regarding the distance for which a launch operator
must account.

III. Changes to Temperature, Time, and Distance Restrictions for Anvil
and Debris Clouds

    In this direct final rule, the FAA is permitting greater launch
availability. In brief, the FAA is reducing requirements that a launch
operator wait to launch by expanding the applicability of certain
exceptions and decreasing waiting time requirements because of
recognition that the risk of triggering lightning is less than
previously understood at distances closer than previously believed. In
order to ensure satisfaction of minimum standards of measurement and
uniformity across launch sites, the FAA is codifying in new section
G417.25 the measurement criteria used during a second airborne field
mill campaign (ABFM-II) conducted during 2000 and 2001. A lightning
advisory panel that provides expertise to the Air Force and NASA
recommended this approach to the ranges. The FAA also accepts the more
simple approach that the ranges currently use to calculate volume-
averaged, height-integrated radar reflectivity because it is more
conservative than the codified approach. Acceptable techniques to
calculate VAHIRR are further discussed in Section III.C.3 below.

A. Structural Changes

    At the outset, the FAA must note that the order of the new
requirements for anvil and debris clouds is reversed from the old
requirements. These new rules have also been written so that only one
set of restrictions applies at a time. For example, for attached anvil
clouds, in old section G417.9.
     Paragraph (a) contains requirements for flight paths
through or within 10 nautical miles of the cloud,
     Paragraph (b) contains requirements for flight paths
through or within 5 nautical miles of the cloud, and
     Paragraph (c) contains requirements for flight paths
through a cloud.

This organization is potentially confusing, since all three paragraphs
apply to flight through, and both paragraphs (a) and (b) apply to
flight within 5 nautical miles of, the cloud. The application has been
simplified in the new G417.9, where--
     Paragraph (b) contains all requirements for flight paths
through a cloud,
     Paragraph (c) contains all requirements for flight paths
greater than 0 and less than or equal to 3 nautical miles from the
cloud,
     Paragraph (d) contains all requirements for flight paths
greater than 3 and less than or equal to 5 nautical miles from the
cloud, and finally,
     Paragraph (e) contains all requirements for flight paths
greater than 5 and less than or equal to 10 nautical miles from a
cloud.
    Whereas more than one paragraph could apply under the old rule, the
end result of this restructuring is that, for any given slant distance
from a cloud, at most, one paragraph will apply in the new rule. For
example, suppose a launch vehicle's flight path would place the closest
approach of the vehicle 2 nautical miles from an attached anvil cloud.
Under the old rule, the operator would need to satisfy the requirements
of both sections G417.9(a), because 2 nautical miles is less than 10
nautical miles, and G417.9(b), because 2 nautical miles is less than 5
nautical miles. Under the new rule, the operator only needs to satisfy
the requirements of G417.9(c) because 2 nautical miles is between zero
and 3 nautical miles. This change should make the rules easier to
follow. However, because of this

restructuring, there is not a one-to-one correspondence between the
paragraphs of the old and new rules.
    Even in the rules that have been structurally rearranged, it must
be remembered that slant distance from a cloud refers only to the
closest approach of the vehicle. Otherwise multiple paragraphs may
still be taken to apply. An operator must always take care that all
paragraphs are satisfied.

B. Clarification of Applicability of Restrictions to Anvil Clouds
Formed From Parents at Altitudes below -10 Degrees Celsius

    Under new paragraphs (a) of sections G417.9 and G417.11, for both
attached and detached anvil clouds, the requirements to wait before
initiating flight apply only when an anvil cloud forms from a parent
cloud that has a top at an altitude where the temperature is -10
degrees Celsius or colder. Even though anvil clouds can form in
temperatures slightly above freezing, only anvil clouds with parents
whose tops are at altitudes with temperatures at or below -10 degrees
Celsius pose a real possibility of containing high electric fields.\2\
When a convective cloud grows through different altitudes, it may reach
altitudes with freezing or colder temperatures. At these altitudes the
cloud may acquire ice particles, ice crystals, super-cooled water
droplets or a combination thereof. It is primarily this mixture of
phases that can produce a strong electrical generator within the cloud.
When the cloud top has become colder than -10 degrees Celsius, the
cloud is likely to be electrified, and when its top has become colder
than -20 degrees Celsius, strong electrification is likely.\3\
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    \2\ Willett, ed., Rationales for Lightning Criteria, at 9, 45,
61, and 108.
    \3\ Id. at 45.
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    The temperature criterion in paragraphs (a) applies to the parent
cloud. Anvil clouds are limited to outflow from convective clouds at
altitudes with temperatures at or colder than --10 degrees Celsius.
According to studies, anvil clouds that develop from cumulus clouds
with cloud top temperatures warmer than -10 degrees Celsius rarely
develop electric fields with the strength of a thunderstorm.\4\
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    \4\ Dye, J.E., W.P. Winn, J.J. Jones, and D.W. Breed, 1989: The
electrification of New Mexico Thunderstorms. 1. Relationship between
precipitation development and the onset of electrification, J.
Geophys. Res., 94, 8643-8656. Breed, D.W., and J.E. Dye, 1989: The
electrification of New Mexico Thunderstorms Part 2. Electric field
growth during initial electrification. J. Geophys. Res, 94, 14, 841-
14, 854.
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    In practice, this limitation of the flight commit criteria to anvil
clouds formed from parents at sufficiently cold altitudes is not new.
Although not clearly expressed in the old appendix G, the Federal
ranges have historically limited their restrictions on flight to non-
transparent anvil clouds formed from parents at altitudes where the
temperatures are -10 degrees Celsius or colder.

C. Exceptions to the Requirement To Wait To Initiate Flight

    This rulemaking increases the availability of exceptions to certain
prohibitions on initiating flight under circumstances posing a risk of
natural or triggered lightning. Specifically, although an FAA licensee
must wait specified amounts of time after the last lightning discharge
to initiate flight through a non-transparent attached or detached anvil
cloud or a non-transparent debris cloud, the licensee need not wait,
under the new versions of the anvil and debris-cloud rules, if all of
the non-transparent anvil or debris clouds within 3 nautical miles of a
flight path are located at altitudes where the temperature is colder
than 0 degrees Celsius and if the volume-averaged, height-integrated
radar reflectivity (VAHIRR) is less than +10 dBZ-km. For the longer
standoff distances, anvil clouds must be cold within 10 nautical miles,
but there is no requirement to calculate VAHIRR.
    The launch operator must always remember, however, that all
sections of Appendix G must be satisfied simultaneously. In particular,
section G417.5, requires standoff distances of 10 nautical miles from a
parent thunderstorm and from the lightning itself, so there will
usually be portions of a non-transparent anvil or debris cloud through
which flight is prohibited by the lightning provision even though it
may not be prohibited by the anvil or debris cloud requirements
themselves.
1. Reduced Restrictions on Launches With a Flight Path Greater Than 3
Nautical Miles From an Anvil or Debris Cloud
    The first change reduces some restrictions on launches with a
flight path greater than 3 nautical miles from a non-transparent anvil
or debris cloud. For flight paths more than 3 nautical miles from a
non-transparent anvil cloud, rather than requiring that a launch
operator always wait after a lightning discharge, the FAA now requires
only that the altitude of the portion of the cloud within a specified
distance of the flight path be at temperatures less than 0 degrees
Celsius to permit flight. For non-transparent debris clouds with flight
paths greater than 3 nautical miles from the cloud, the FAA will no
longer require any waiting after a lightning discharge or detachment.
    For non-transparent anvil clouds, the requirements for a waiting
period for flight paths more than 3 nautical miles from a cloud are not
being dropped entirely. However, the requirements for anvil clouds will
be more flexible beyond 3 nautical miles than they are under the
current rules. For anvil clouds more than 3 nautical miles from a
flight path, the FAA will require, unless the operator waits 3 hours
after the last lightning discharge, that the altitudes at which the
flight path passes within a specified distance of the cloud have
temperatures of less than 0 degrees Celsius. This restriction was based
on the first Airborne Field Mill campaign (ABFM-II) which showed that
clouds at altitudes with temperatures of less than 0 degrees Celsius do
not contain electric field magnitudes of greater than 3 kV/m. Merceret
et al., supra, 242. The specific rule changes for attached and detached
anvil clouds are explained in turn below. The reasons for the changes
follow these descriptions.
i. Attached Anvil Clouds (G417.9)
    A launch operator using flight paths of greater than 3 and less
than or equal to 5 nautical miles from an attached non-transparent
anvil cloud will no longer always need to wait 30 minutes after a
lightning discharge, and will no longer need to show that the VAHIRR is
less than 33 dBZ-kft within 3 hours of a lightning discharge. The old
requirement is contained in both section G417.9(a), which requires
waiting for 30 minutes after a lightning discharge regardless of
distance, and in section G417.9(b), which only allows passage between
30 minutes and 3 hours after a lightning discharge, if the VAHIRR
measurement is under +33 dBZ-kft and the altitudes at which the flight
path passes within 5 nautical miles of the cloud have temperatures of
less than 0 degrees Celsius.
    Under the new requirements, the restriction applicable to flight
paths between 3 and 5 nautical miles will be contained in section
G417.9(d) and will require waiting for 3 hours after a lighting
discharge unless, as with the old rule, the portion of the attached
anvil cloud at a slant distance of less than or equal to 5 nautical
miles from the flight path is located entirely at altitudes where the
temperature is colder than 0 degrees Celsius. A launch operator will no
longer be required to wait for 30 minutes after a lightning discharge
and will not need to calculate VAHIRR to be able to launch within 3

hours of a lightning discharge. However, a launch operator will still
need to show satisfaction of the temperature at altitude restriction in
order to launch within 3 hours of a lightning discharge.
    Launch operators with flight paths of greater than 5 and less than
or equal to 10 nautical miles from an attached non-transparent anvil
cloud will no longer always need to wait 30 minutes after a lightning
discharge as required by old section G417.9(a). Section G417.9(e) will
now require waiting 30 minutes unless the portion of the attached anvil
cloud at a slant distance of less than or equal to 10 nautical miles
from the flight path is located entirely at altitudes where the
temperature is colder than 0 degrees Celsius.
ii. Detached Anvil Clouds (G417.11)
    Launch operators with flight paths between 3 and 10 nautical miles
from a detached non-transparent anvil cloud will no longer always need
to wait 30 minutes after a lightning discharge and will no longer need
to meet any requirements once 30 minutes have passed since the last
lightning discharge. The new G417.11(d) will require that the launch
operator wait 30 minutes after a lightning discharge from the cloud
unless the portion of the detached anvil cloud at a slant distance of
less than or equal to 10 nautical miles from the flight path is located
entirely at altitudes where the temperature is colder than 0 degrees
Celsius. Section G417.11(a) currently requires that a launch operator
wait 30 minutes after a lightning discharge, without the benefit of any
exceptions. Additionally, current G417.11(b) does not allow a launch
operator to pass between 3 and 5 nautical miles from a cloud between 30
minutes and 3 hours after a lightning discharge unless one of two sets
of conditions are met. The new requirements are more flexible because
they allow an exception to the requirement that the launch operator
wait 30 minutes after a lightning discharge and because they do not
require any conditions to be met after 30 minutes, even between 3 and 5
nautical miles.
iii. Rationale
    The reduced restrictions on a flight path in excess of 3 nautical
miles of a cold \5\ anvil or debris cloud arise out of experimental and
statistical work performed by the LAP, which recommends lightning
requirements for launches at Federal launch ranges. The LAP has
performed statistical analyses of data collected during ABFM-II. The
goal of ABFM-II was to characterize the electric fields of anvil and
debris clouds by flying an aircraft into these types of clouds while
taking measurements at various distances from the clouds using electric
field mills. The ABFM II campaign used aircraft carrying airborne field
mills to measure the electric fields of clouds of interest. The
campaign used ground-based radar to measure the reflectivity of the
same clouds so that it would be possible to correlate the radar
reflectivity of the clouds with the electric field measurements of the
airborne field mills. Francis J. Merceret, et al., On the Magnitude of
the Electric Field near Thunderstorm-Associated Clouds, 47 Journal of
Applied Meteorology and Climatology 240, 243 (2008). These data were
used to develop the VAHIRR parameter associated with cloud
electrification. Both the temperature and VAHIRR criteria are
correlated with mixed-phase precipitation, namely, the presence of
water in both solid and liquid phases.
---------------------------------------------------------------------------

    \5\ For the sake of brevity, the references to ``cold'' anvil
clouds in this discussion refer to those whose parent clouds have
tops at an altitude where the temperature is equal to or colder than
-10 degrees Celsius.
---------------------------------------------------------------------------

    When a cloud spans the freezing level, the cloud can acquire a
charge due to processes involving the mixing of liquid water droplets
and ice crystals. A build up of electric charge in a cloud can lead to
natural or triggered lightning. When the VAHIRR is less than 10 dBZ-km,
it means that any mixed phase processes are unable to produce
significant charging.
    Like the Air Force and NASA before it, the FAA's existing triggered
lightning criteria are based on the determination that a launch vehicle
will not trigger lightning in an electric field with a magnitude of
less than 3 kilovolts per meter (kV/m). The following discussion of
each of the changes to the FAA's lightning commit criteria will,
therefore, focus on showing how the FAA's new requirements ensure that
the electric field magnitude along the flight path will be less than 3
kV/m, so that the new requirements will be essentially as safe as the
current requirements.
    Therefore, the FAA is able to follow the Federal launch range's
lead in making the rules less restrictive because of new analyses of
the ABFM-II data. T.P. O'Brien & R. Walterscheid, Supplemental
Statistical Analysis of ABFM-II Data for Lightning Launch Commit
Criteria, Aerospace Report No. TOR-2007(1494)-6, 3 (2007).
    As a purely qualitative matter, out of 158 flights through non-
transparent debris or anvil clouds during ABFM-II, the field mills
detected no electric field with a magnitude of greater than 3 kV/m
outside of a cloud. This was so even though the sample contained 30
flights through clouds with an electric field magnitude of more than 3
kV/m somewhere inside the cloud. Id.
    Based on the data obtained, a qualitative analysis shows that
flying more than 3 nautical miles from a non-transparent anvil cloud is
as safe as the FAA's current requirements. The LAP also used this data
to demonstrate statistically in two ways that it is extremely unlikely
that the electric field magnitude will be more than 3 kV/m at distances
greater than 3 nautical miles from the clouds.
    A launch operator may calculate VAHIRR to help determine whether it
is safe to fly, even if there has been a relatively recent lightning
discharge. If the VAHIRR is less than 10 dBZ-km (about 33 dBZ-kft), the
probability of an electric field of greater than 3 kV/m occurring is
less than 1 in 10,000. Dye et al., supra, 14.
    Calculating VAHIRR consists of multiplying the average cloud
thickness and the average radar reflectivity found in a column with an
11 kilometer by 11 kilometer cross-section centered on a point of
interest, where the two sides are oriented north-south and east-west.
Because 3 nautical miles is 5.52 kilometers, a VAHIRR box centered on a
flight path more than 3 nautical miles from the anvil cloud's edge will
not contain the anvil cloud and will, therefore, have a radar
reflectivity of zero, meaning that the VAHIRR will be zero. Because
zero is clearly less than +33 dBZ-kft, flight at more than 3 nautical
miles from the cloud will be at least as safe as the current
requirements of G417.9(b)(2) and G417.11(b)(2)(ii), which only require
a VAHIRR of less than +33 dBZ-kft. James E. Dye, et al., Analysis of
Proposed 2007-2008 Revisions to the Lightning Launch Commit Criteria
for United States Space Launches, 13th Conference on Aviation, Range
and Aerospace Meteorology 8.2, 2-3 (available at http://ams.confex.com/ams/88Annual/techprogram/programexpanded_474.htm) (2008); Francis J.
Merceret, Risk Analysis of Proposed Reduction of Anvil and Debris Cloud
LLCC Standoff Distances from Five to Three Miles, 1-2 (2007) (internal
LAP memorandum).
    The LAP also performed a Gaussian statistical analysis on the
electric field data collected between 6 kilometers (3.2 nautical miles)
and 12 kilometers (6.5 nautical miles) from anvil and debris clouds in
an attempt to determine the likelihood of various electric field
magnitudes occurring at those distances from the clouds. The LAP found
that an electric field of significance was highly unlikely.

    The LAP used a Gaussian distribution to perform a conservative
three-sigma worst-case risk analysis by using an assumed mean of three
times the measured mean and an assumed error estimate of three times
the calculated error. The LAP concluded that, even with these
conservative assumptions, the probability that an electric field with a
magnitude of 3 kV/m would occur within 3.2 to 6.5 nautical miles of a
non-transparent anvil or debris cloud was negligible; the probability
of a field of even 2 kV/m was on the order of 10-7. Dye et
al., supra, at 3-4. These probabilities were obtained by only analyzing
non-transparent clouds that typically contain elevated electric fields,
namely, those that somewhere contained electric fields greater than 3
kV/m. Merceret, supra, at 2-6. The FAA concludes from this analysis
that launches more than 3 nautical miles from anvil and debris clouds
are unlikely to trigger lightning because it is extremely remote for
the electric field to reach a magnitude of 3 kV/m at distances more
than 3 nautical miles from these clouds.
    However, this analysis uses an unconventional technique for extreme
value analysis. Gaussian analysis is not typically used to determine
the likelihood of a quantity that is relatively far from any of the
observed quantities. Therefore, the LAP also performed a second
statistical analysis. Dye et al., supra, at 4-5.
    The LAP used a second statistical method to determine the
probability of the electric field magnitude exceeding 3 kV/m at various
distances from the anvil and debris clouds in increments of 0.6
kilometers (0.32 nautical miles) and again found it extremely unlikely.
O'Brien & Walterscheid, supra, at 7. Gaussian distributions are not
necessarily well suited to extrapolating fits to the wings of a
frequency distribution where the event frequency (in this case the
frequency of fields exceeding 3 kV/m) is very small. A widely used
function for extreme value estimation is the Weibull function. For each
distance increment from the clouds, a 2-parameter Weibull distribution
was a good statistical fit for the data. Extrapolating the tail of the
Weibull shows how likely it would be at each increment to encounter an
electric field with a magnitude greater than 3 kV/m. Even at 0.6
kilometers (0.32 nautical miles) from the cloud's edge, the probability
of exceeding 3 kV/m was on the order of 10-9. If only clouds
containing an electric field of over 3 kV/m were considered, the
calculated probability was somewhat lower, but this is most likely a
statistical artifact relating to sample size. At 5.4 kilometers (2.9
nautical miles), the probability was under 10-16 even if
only clouds containing an electric field of over 3 kV/m were
considered. O'Brien & Walterscheid, supra, at 7.
    Therefore, the FAA concludes that the risk of encountering electric
field magnitudes greater than 3 kV/m is very small if the flight path
is more than 3 nautical miles from the edge of an anvil or debris
cloud. In fact, the Weibull fit analysis indicates that a launch would
not likely encounter a field of 3 kV/m even if the flight path was at
0.32 nautical miles from the cloud's edge, so the requirements to wait
or satisfy the VAHIRR criteria on launches with flight paths more than
3 nautical miles from a cloud's edge are not necessary.
iv. Reduced Restrictions on Launches With a Flight Path Within 3
Nautical Miles of a Debris Cloud
    Analysis of the ABFM-II data has also demonstrated that satisfying
the VAHIRR criteria can allow greater launch opportunities near a non-
transparent debris cloud that has discharged lightning. This change
expands launch availability because at any distance from a cloud the
regulations permit flight if the conditions satisfy the VAHIRR and
temperature restrictions. For a flight path through a non-transparent
debris cloud under old section G417.13(a), a launch operator must wait
3 hours after detachment or a lightning discharge without exception.
New section G417.13(a) requires a launch operator to wait 3 hours only
if the operator cannot demonstrate that the VAHIRR is below 10 dBZ-km
(+33 dBZ-kft) and that every portion of the non-transparent debris
cloud at a slant distance within 5 nautical miles of the flight path is
at altitudes where the cloud has temperatures of less than 0 degrees
Celsius.
    For flight paths between 0 and 3 nautical miles from the debris
cloud, the current section G417.13(b) requires waiting 3 hours unless
the launch meets three conditions:
    1. There is at least one working field mill within 5 nautical miles
of the cloud,
    2. The magnitude of the electric field measurements has been less
than 1 kV/m for 15 minutes within 5 nautical miles of the cloud, and
    3. The maximum radar reflectivity has been less than 10 dBZ for 15
minutes within 5 nautical miles of the cloud.
    The new requirements still allow the fulfillment of these three
conditions as a method to avoid waiting the 3-hour period, but will
also allow earlier flight if the operator meets the VAHIRR exception,
and if every portion of the debris cloud at a slant distance within 5
nautical miles of the flight path is at altitudes where the cloud has
temperatures of less than 0 degrees Celsius.
    A VAHIRR measurement of less than 10 dBZ-km (or approximately 33
dBZ-kft), along with satisfactory field mill measurements and
temperatures, means that a debris cloud does not contain an elevated
electric field, even if portions of it are located at an altitude
conducive to the creation of an electric charge. In fact, the VAHIRR
method may be even more reliable when applied to non-transparent debris
clouds than to anvil clouds. To demonstrate this, the LAP used a
Weibull distribution to show that the upper bound of the 95-percent-
confidence-interval for the probability of the electric field exceeding
3 kV/m if the VAHIRR measurement is between 5 and 15 dBZ-km is on the
order of 10-5 for debris clouds, as opposed to
10-2 for anvil clouds. The expected value of the probability
of exceeding 3 kV/m is much less. A more detailed examination
demonstrated that the expected value of the probability of exceeding 3
kV/m for anvil clouds is 10-4 if the VAHIRR is less than 10
dBZ-km, so the probability of exceeding 3 kV/m for debris clouds is
probably even lower than 10-5 if the VAHIRR is less than 10
dBZ-km. Dye et al., supra, 4-5. Therefore, the FAA has concluded that
it is appropriate to extend the availability of the VAHIRR exception to
waiting to launch to debris clouds.
2. Changes for Launches With a Flight Path Within Three Nautical Miles
of an Attached Anvil Cloud
    For flight paths within 3 nautical miles of a cold, non-transparent
anvil cloud, the FAA will now permit flight within 30 minutes of a
lightning discharge when temperature and VAHIRR readings satisfy the
regulatory criteria. Therefore, for flight paths between 0 and 3
nautical miles from a cloud, the new section G417.9(c) allows launch at
any time if the VAHIRR is below 10 dBZ-km and every portion of the
anvil cloud at a slant distance within 5 nautical miles of the flight
path is at altitudes where the non-transparent cloud has temperatures
of less than 0 degrees Celsius. The old rule requires waiting for 30
minutes after lightning discharge if not passing through the non-
transparent cloud (current G417.9(a) and (b)) or 3 hours after
lightning discharge if passing through the non-transparent cloud
(current G417.9(c)) unless VAHIRR and temperature at altitude
conditions are

met. The new requirements will allow VAHIRR and the temperature at
altitude conditions to always be an alternative to having to wait after
a lightning discharge. For detached non-transparent anvil clouds, the
requirements remain the same for flight paths less than or equal to 3
nautical miles except that now a launch operator can pass within 3
nautical miles of the non-transparent cloud within 30 minutes of a
lightning discharge if the VAHIRR is below 10 dBZ-km and every portion
of the non-transparent cloud at a slant distance within 5 nautical
miles of the flight path is at altitudes where the cloud has
temperatures of less than 0 degrees Celsius. This change is contained
in G417.11(c)(1). This change is possible because the studies of the
ABFM-II campaign show, as discussed above, that electric fields greater
than 3 kv/m do not extend as far and the decay rate is much more rapid
near the anvil edge \6\ than previously believed. Cloud charges decay
in time in the absence of active charge generation and, real-time radar
reflectivity readings and calculations may be used to confirm that the
electric field has, in fact, subsided to acceptable levels.
---------------------------------------------------------------------------

    \6\ Dye, J. E., et al. (2007), Electric fields, cloud
microphysics, and reflectivity in anvils of Florida thunderstorms.
J. Geophys. Res., 112, D11215, doi:10.1029/2006JD007550.
---------------------------------------------------------------------------

    The FAA will not require a launch operator to wait 30 minutes when
temperature and VAHIRR readings satisfy the criteria for attached and
detached non-transparent anvil clouds when the flight path is between 0
and 3 nautical miles. As described above, statistical analysis of the
ABFM II measurements for all anvils shows that, even for highly
electrified anvils with electric fields much greater than 3 kV/m inside
the cloud, the electric field outside of the anvil cloud falls off very
rapidly and once falling to low levels remains small at greater
distances. O'Brien. et. al. at 9. For attached and detached non-
transparent anvil clouds and debris clouds, when the electric field is
strong, namely, when it exceeds 3 kV/m, the radar reflectivity in the
same location over the ABFM II data set is invariably greater than
approximately 10 dBZ. As noted, the Weibull distribution and extreme
value analysis for anvil and debris clouds showed that, when VAHIRR is
<= 10 dBZ-km, the probability of having electric fields in excess of 3
Kv/m is very small (on the order of 10-4 or lower). Based on
these results, the FAA finds that a launch that meets the VAHIRR
criterion obviates concerns regarding electric fields in excess of 3
kV/m. Strong electric fields are known to occur in the melting zone of
many precipitating layer clouds.\7\ Satisfaction of the temperature
requirement ensures that this type of electric charging within the
melting zone will not occur.
---------------------------------------------------------------------------

    \7\ Rationales for Lightning Criteria, at 123.
---------------------------------------------------------------------------

3. Codification of Measurement Criteria
    New section G417.25 represents a codification of three different
sets of measurement specifications. Section G417.25(a) contains
requirements for accurate and reliable radar reflectivity measurements
that qualify for use throughout the other sections of this appendix. In
addition to VAHIRR calculations, such uses include all radar
measurements of the location, spatial extent, and intensity of clouds
and precipitation. Such specifications are currently applied by the
U.S. Air Force and NASA at the Federal ranges and can also be met by
correct application of data from the national Next-Generation Radar
(NEXRAD) network.\8\ If the available radar does not meet these
requirements, a launch operator must fall back on visual and other
observations to convincingly demonstrate that the rules are not
violated.
---------------------------------------------------------------------------

    \8\ NEXRAD is a network of 159 high-resolution Doppler weather
radars operated by the National Weather Service, an agency of the
National Oceanic and Atmospheric Administration (NOAA) within the
United States Department of Commerce.
---------------------------------------------------------------------------

    Section G417.25(b) applies specifically to VAHIRR calculations and
explains how valid VAHIRR measurements must be made. These
specifications are the same as those used during the ABFM II of 2000
and 2001 from which a safe VAHIRR threshold of <=10 dBZ-km was
statistically determined for anvil and debris clouds. Because there is
no guarantee that this threshold would be safe if VAHIRR were
calculated operationally in a different way, the FAA is codifying these
specifications here. See below, however, for an alternative calculation
that is currently in use by the U.S. Air Force and NASA at the Eastern
Range and that satisfies section G417.1(c) by being at least as safe as
the FAA's requirements.
    Finally, section G417.25(c) specifies the measurement techniques
for electric fields to qualify for use in this appendix. Again, these
are the specifications currently used by the federal launch ranges.
    Section G417.25(a) requires that a licensee who relies on radar
reflectivity measurements, including the calculation of VAHIRR, to
increase launch availability must satisfy a number of requirements. The
Federal launch ranges satisfy the requirements of paragraph (a) of this
section because they employ meteorological radar,\9\ and they ensure
that--
---------------------------------------------------------------------------

    \9\ The Federal launch ranges employ meteorological radars
because other radars do not provide sufficient granularity in
depicting reflectivity on a gridded representation.
---------------------------------------------------------------------------

    (1) The radar wavelength is greater than or equal to 5 centimeters
in order that attenuation by intervening clouds and/or precipitation
not be significant; \10\
---------------------------------------------------------------------------

    \10\ The radar used at the Eastern and Western Ranges is WSR-88D
and WSR-74C. They meet this criterion.
---------------------------------------------------------------------------

    (2) Any reflectivity measurement is of a meteorological target,
such as a cloud or precipitation, and not of some other objects, such
as birds or insects, nor due to ``anomalous propagation''; \11\
---------------------------------------------------------------------------

    \11\ 45th Weather Squadron, Steps for Evaluating VAHIRR, par. 6
(March 2005.
---------------------------------------------------------------------------

    (3) The spatial accuracy and resolution of a reflectivity
measurement is one kilometer or better in order that the locations and
spatial extent of clouds--especially their critical altitudes and
thicknesses--and of precipitation can be determined with sufficient
accuracy for use in this appendix; \12\
---------------------------------------------------------------------------

    \12\ Blakeslee, R.J., H.J. Christian, and B. Vonnegut (1989),
Electrical measurements over thunderstorms, J. Geophys. Res., 94,
135-140.
---------------------------------------------------------------------------

    (4) Any attenuation caused by precipitation or an accumulation of
water or ice on the radome that protects the radar antenna is less than
or equal to 1 dBZ because the requirements in this appendix can be met
only with that degree of accuracy; \13\ and
---------------------------------------------------------------------------

    \13\ 45th Weather Squadron, Steps for Evaluating VAHIRR, Par. 2,
(March 2005).
---------------------------------------------------------------------------

    (5) A reflectivity measurement contains no portion of the cone of
silence or other blocked out portion so that it is not giving a bogus
indication.\14\
---------------------------------------------------------------------------

    \14\ A History of the Lightning Criteria, 124, par. 25.
---------------------------------------------------------------------------

    A launch operator who relies on VAHIRR to increase launch
availability under this appendix must satisfy the requirements of both
sections G417.25(a) and (b), or must otherwise ensure that its
estimates of VAHIRR are at least as large as those that would result
from section G417.25(b) to ensure that its invocation of any VAHIRR
exceptions to these rules are at least as safe. The current
requirements for calculating VAHIRR at the Federal launch ranges
satisfy section G417.1(c) because they are more conservative, even
though there are certain requirements of section G417.25(b) that they
do not satisfy. The Federal launch ranges do not, as required by
paragraph (b)(1), ensure that a digital signal processor provide radar
reflectivity measurements on a three-dimensional

Cartesian grid having a maximum grid-point-to-grid-point spacing of one
kilometer in each of the three dimensions. The ranges do, as required
by paragraph (b)(2), ensure that the specified volume is bounded in the
horizontal by vertical plane, perpendicular sides located 5.5
kilometers (3 nautical miles) north, east, south, and west of the point
where VAHIRR is to be evaluated; on the bottom by the 0 degree Celsius
level; and on the top by an altitude of 18 kilometers.\15\ Note that
the specified volume need not contain the VAHIRR evaluation point,
which may be either below the lower boundary of that volume (as when
the vehicle is on the launch pad) or above the upper boundary (as when
the vehicle is flying high above an anvil cloud) of the specified
volume.
---------------------------------------------------------------------------

    \15\ Id.
---------------------------------------------------------------------------

    To calculate VAHIRR a launch operator must compute both a volume
averaged radar reflectivity and an average cloud thickness in a
specified volume before multiplying them to obtain a value for VAHIRR.
Neither of these quantities is available yet as an output product of
the WSR-88D.\16\ or WSR-74C radar systems that the Federal ranges use
to support commercial launches.\17\ Instead, the Federal ranges and
NASA rely on Interim Instructions \18\ for computing these quantities,
which are more conservative and, thus, afford less launch availability
than allowed by section G417.25(b).
---------------------------------------------------------------------------

    \16\ Technical name for NEXRAD is WSR-88D, which stands for
Weather Surveillance Radar, 1988, Doppler.
    \17\ A History of the Lightning Criteria, 124, par. J.
    \18\ Id. (describing the interim methodology).
---------------------------------------------------------------------------

    Paragraph (c) of section G417.25 requires a launch operator who
measures an electric field to comply with this appendix to--
     Employ a ground-based field mill in order to obtain a
reliable and easily calibrated measurement with a relatively low-
maintenance instrument;
     Use only the one-minute arithmetic average of the
instantaneous readings from that field mill to minimize the effects of
local space charge and lightning field changes;
     Ensure that all field mills are calibrated so that the
polarity of the electric field measurements is the same as the polarity
of a voltage placed on a test plate above the sensor as discussed in
more detail below;
     Ensure that the altitude of the flight path of the launch
vehicle is equal to or less than 20 kilometers (66 thousand feet)
everywhere above a horizontal circle of 5 nautical miles centered on
the field mill being used as discussed further below, and
     Use only direct measurements from a field mill. A launch
operator may not interpolate based on electric-field contours because
interpolation schemes are highly variable and can give unexpected
results.
    The Federal launch ranges use electric field mills that satisfy
each of the requirements of paragraph (c) of section G417.25.
Accordingly, no new methodology is being codified here.
    Regarding the polarity of an electric field measurement, note that
the required polarity is the opposite of the so-called ``physics sign
convention'' that is now used almost exclusively in the atmospheric
electricity literature. This older sign convention is retained here,
however, because it has been in exclusive use at the Kennedy Space
Center and the Eastern Range since the early days of the Launch Pad
Lightning Warning System and it remains in use today.
    The FAA is relaxing the requirements for field measurement by
limiting the altitude of the flight path of the launch vehicle to less
than 20 kilometers (66 thousand feet) everywhere above a horizontal
circle of 5 nautical miles centered on the field mill. Electric field
measurements above 20 kilometers are to be ignored.

Small Business Regulatory Enforcement Fairness Act

    The Small Business Regulatory Enforcement Fairness Act (SBREFA) of
1996 requires the FAA to comply with small entity requests for
information or advice about compliance with statutes and regulations
within its jurisdiction. Therefore, any small entity that has a
question regarding this document may contact their local FAA official,
or the person listed under FOR FURTHER INFORMATION CONTACT. You can
find out more about SBREFA on the Internet at http://www.faa.gov/regulations_policies/rulemaking/sbre_act/.

IV. Regulatory Analyses

Paperwork Reduction Act

    The Paperwork Reduction Act of 1995 (44 U.S.C. 3507(d)) requires
that the FAA consider the impact of paperwork and other information
collection burdens imposed on the public. The FAA has determined that
this final rule has no new additional burden to respondents over and
above that which the Office of Management and Budget already approved
under the existing rule titled, ``Commercial Space Transportation
Licensing Regulations'' (OMB 2120-0608).

International Compatibility

    The FAA has determined that a review of the Convention on
International Civil Aviation Standards and Recommended Practices is not
warranted because there is not a comparable rule under ICAO standards.

Regulatory Evaluation, Regulatory Flexibility Determination,
International Trade Regulatory Flexibility Determination

    Changes to Federal regulations must undergo several economic
analyses. First, Executive Order 12866 directs that each Federal agency
may propose or adopt a regulation only upon a reasoned determination
that the benefits of the intended regulation justify its costs. Second,
the Regulatory Flexibility Act of 1980 (Pub. L. 96-354) requires
agencies to analyze the economic impact of regulatory changes on small
entities. Third, the Trade Agreements Act (Pub. L. 96-39) prohibits
agencies from setting standards that create unnecessary obstacles to
the foreign commerce of the United States. In developing U.S.
standards, the Trade Act requires agencies developing standards to
consider international standards and, where appropriate, that they be
the basis of U.S. standards. Fourth, the Unfunded Mandates Reform Act
of 1995 (Pub. L. 104-4) requires agencies to prepare a written
assessment of the costs, benefits, and other effects of proposed or
final rules that include a Federal mandate likely to result in the
expenditure by State, local, or tribal governments, in the aggregate,
or by the private sector, of $100 million or more annually (adjusted
for inflation with base year of 1995). This portion of the preamble
summarizes the FAA's analysis of the economic impacts of this direct
final rule.
    Department of Transportation Order DOT 2100.5 prescribes policies
and procedures for simplification, analysis, and review of regulations.
If the expected cost impact is so minimal that a proposed or final rule
does not warrant a detailed evaluation, this order permits that a
statement to that effect and the basis for it be included in the
preamble if a full regulatory evaluation of the cost and benefits is
not prepared. Such a determination has been made for this direct final
rule. The reasoning for this determination follows. Note that the
following discussion represents a gross simplification of the new
requirements and that there is no safe substitute for reading the rules
themselves.
    These changes are being made because studies and data that were not
available when the current regulations

were established have led the FAA to conclude that the intended level
of safety can be maintained with fewer constraints on launch through
and near anvil and debris clouds.
    The FAA concluded from studies that a launch vehicle will not
trigger lightning in a steady electric field with a magnitude of less
than 3 kV/m. Furthermore, the Lightning Advisory Panel performed
analyses which support the conclusion that the possibility of
encountering electric field magnitudes of more than 3 kV/m is very
small if the flight path is more than 3 nautical miles from an anvil or
debris cloud's edge, provided that all other sections of Appendix G are
also satisfied. Furthermore, quantitative studies from the LAP indicate
that, if the VAHIRR is less than 10 dBZ-km (about 33 dBZ-kft), the
probability of an electric field of greater than 3 kV/m occurring is
less than 1 in 10,000 under these conditions.
    With this rule, launch initiation may occur sooner and certainly no
later than under current regulations. There will be fewer constraints
on launch initiation because in some situations, fewer conditions will
be needed to meet criteria for launch initiation and in other
situations; alternative conditions that meet prescribed criteria will
be accepted for launch initiation. Therefore, the rule will increase
launch availability and likely decrease costs.
    The direct final rule adds a section (G417.25) which describes the
methods for calculating the VAHIRR currently accepted by the FAA. These
precise methods are not prescribed in the current Code of Federal
Regulations. The direct final rule codifies VAHIRR calculation methods
and recognizes as acceptable the method used by the federal launch
ranges, and therefore increases clarity. The direct final rule also
reorganizes rule language and adds and changes definitions to enhance
clarity of the rule language.
    Since this direct final rule will be cost relieving without
degrading safety, a regulatory evaluation was not prepared. FAA has,
therefore, determined that this direct final rule is not a
``significant regulatory action'' as defined in section 3(f) of
Executive Order 12866, and is not ``significant'' as defined in DOT's
Regulatory Policies and Procedures.

Regulatory Flexibility Determination

    The Regulatory Flexibility Act of 1980 (Pub. L. 96-354) (RFA)
establishes ``as a principle of regulatory issuance that agencies shall
endeavor, consistent with the objectives of the rule and of applicable
statutes, to fit regulatory and informational requirements to the scale
of the businesses, organizations, and governmental jurisdictions
subject to regulation. To achieve this principle, agencies are required
to solicit and consider flexible regulatory proposals and to explain
the rationale for their actions to assure that such proposals are given
serious consideration.'' The RFA covers a wide-range of small entities,
including small businesses, not-for-profit organizations, and small
governmental jurisdictions.
    Agencies must perform a review to determine whether a rule will
have a significant economic impact on a substantial number of small
entities. If the agency determines that it will, the agency must
prepare a regulatory flexibility analysis as described in the RFA.
    However, if an agency determines that a rule is not expected to
have a significant economic impact on a substantial number of small
entities, section 605(b) of the RFA provides that the head of the
agency may so certify and a regulatory flexibility analysis is not
required. The certification must include a statement providing the
factual basis for this determination, and the reasoning should be
clear.
    This direct final rule is cost relieving, and thus is not expected
to have a significant economic impact. Therefore as FAA Administrator,
I certify this rule will not have a significant economic impact on a
substantial number of small entities.

International Trade Impact Assessment

    The Trade Agreements Act of 1979 (Pub. L. 96-39), as amended by the
Uruguay Round Agreements Act (Pub. L. 103-465), prohibits Federal
agencies from establishing standards or engaging in related activities
that create unnecessary obstacles to the foreign commerce of the United
States. Pursuant to these Acts, the establishment of standards is not
considered an unnecessary obstacle to the foreign commerce of the
United States, so long as the standard has a legitimate domestic
objective, such as the protection of safety, and does not operate in a
manner that excludes imports that meet this objective. The statute also
requires consideration of international standards and, where
appropriate, that they be the basis for U.S. standards. The FAA has
found no comparable international standards. The FAA has assessed the
potential effect of this direct final rule and determined that it will
have only a domestic impact and therefore no affect on international
trade.

Unfunded Mandates Assessment

    Title II of the Unfunded Mandates Reform Act of 1995 (Pub. L. 104-
4) requires each Federal agency to prepare a written statement
assessing the effects of any Federal mandate in a proposed or final
agency rule that may result in an expenditure of $100 million or more
(in 1995 dollars) in any one year by State, local, and tribal
governments, in the aggregate, or by the private sector; such a mandate
is deemed to be a ``significant regulatory action.'' The FAA currently
uses an inflation-adjusted value of $140.8 million in lieu of $100
million. This direct final rule does not contain such a mandate;
therefore, the requirements of Title II of the Act do not apply.

Executive Order 13132, Federalism

    The FAA has analyzed this final rule under the principles and
criteria of Executive Order 13132, Federalism. We determined that this
action will not have a substantial direct effect on the States, or the
relationship between the national government and the States, or on the
distribution of power and responsibilities among the various levels of
government. Therefore, we determined that this final rule does not have
federalism implications.

Environmental Analysis

    FAA Order 1050.1E identifies FAA actions that are categorically
excluded from preparation of an environmental assessment or
environmental impact statement under the National Environmental Policy
Act in the absence of extraordinary circumstances. The FAA has
determined this rulemaking action qualifies for the categorical
exclusion identified in Chapter 3, paragraph 312d, governing
rulemakings such as this, and involves no extraordinary circumstances.

Regulations That Significantly Affect Energy Supply, Distribution, or
Use

    The FAA has analyzed this final rule under Executive Order 13211,
Actions Concerning Regulations that Significantly Affect Energy Supply,
Distribution, or Use, 66 FR 28355 (May 18, 2001). We have determined
that it is not a ``significant energy action'' under the executive
order because it is not a ``significant regulatory action'' under
Executive Order 12866, and it is not likely to have a significant
adverse effect on the supply, distribution, or use of energy.

List of Subjects in 14 CFR Part 417

    Space Safety, Space transportation and exploration.

The Amendments

    In consideration of the foregoing, the Federal Aviation
Administration amends Chapter I of Title 14 Code of Federal Regulations
as follows:

PART 417--LAUNCH SAFETY

0
1. The authority citation for part 417 is revised to read as follows:

    Authority:  51 U.S.C. 50901-50923.

0
2. Revise Appendix G to read as follows:

Appendix G to Part 417--Natural and Triggered Lightning Flight Commit
Criteria

G417.1 General

    This appendix provides flight commit criteria for mitigating
against natural lightning strikes and lightning triggered by the
flight of a launch vehicle through or near an electrified
environment. A launch operator may not initiate flight unless the
weather conditions at the time of launch satisfy all lightning
flight commit criteria of this appendix.
    (a) In order to meet the lightning flight commit criteria, a
launch operator must employ any:
    (1) Weather monitoring and measuring equipment needed, and
    (2) Procedures needed to verify compliance.
    (b) When equipment or procedures, such as a field mill or
calculation of the volume-averaged, height-integrated radar
reflectivity (VAHIRR) of clouds, are used with the lightning flight
commit criteria to increase launch opportunities, a launch operator
must evaluate all applicable measurements to determine whether the
measurements satisfy the criteria. A launch operator may not turn
off available instrumentation to create the appearance of meeting a
requirement and must use all radar reflectivity measurements within
a specified volume for a VAHIRR calculation.
    (c) If a launch operator proposes any alternative lightning
flight commit criteria, the launch operator must clearly and
convincingly demonstrate that the alternative provides an equivalent
level of safety to that required by this appendix.

G417.3 Definitions

    For the purpose of this appendix:
    Anvil cloud means a stratiform or fibrous cloud formed by the
upper-level outflow or blow-off from a thunderstorm or convective
cloud.
    Associated means two or more clouds are caused by the same
disturbed weather or are physically connected.
    Bright band means an enhancement of radar reflectivity caused by
frozen hydrometeors falling and beginning to melt at any altitude
where the temperature is 0 degrees Celsius or warmer.
    Cloud means a visible mass of suspended water droplets or ice
crystals, or a combination of water droplets and ice crystals. The
cloud is the entire volume containing such particles.
    Cloud layer means a vertically continuous array of clouds, not
necessarily of the same type, whose bases are approximately at the
same altitude.
    Cone of silence means the volume within which a radar cannot
detect any object, and is an inverted circular cone centered on the
radar antenna. A cone of silence consists of all elevation angles
greater than the maximum elevation angle reached by the radar.
    Debris cloud means any cloud, except an anvil cloud, that has
become detached from a parent cumulonimbus cloud or thunderstorm, or
that results from the decay of a parent cumulonimbus cloud or
thunderstorm.
    Disturbed weather means a weather system where a dynamical
process destabilizes the air on a scale larger than the individual
clouds or cells. Examples of disturbed weather include fronts,
troughs, and squall lines.
    Electric field means a vertical electric field (Ez) at the
surface of the Earth.
    Field mill means an electric-field sensor that uses a moving,
grounded conductor to induce a time-varying electric charge on one
or more sensing elements in proportion to the ambient electrostatic
field.
    Flight path means a launch vehicle's planned flight trajectory,
and includes the trajectory's vertical and horizontal uncertainties
resulting from all three-sigma guidance and performance deviations.
    Horizontal distance means a distance that is measured
horizontally between a field mill or electric field measurement
point and the nearest part of the vertical projection of an object
or flight path onto the surface of the Earth.
    Moderate precipitation means a precipitation rate of 0.1 inches/
hr or a radar reflectivity of 30 dBZ.
    Non-transparent means that one or more of the following
conditions apply:
    (1) Objects above, including higher clouds, blue sky, and stars,
are blurred, indistinct, or obscured when viewed from below when
looking through a cloud at visible wavelengths; or objects below,
including terrain, buildings, and lights on the ground, are blurred,
indistinct, or obscured when viewed from above when looking through
a cloud at visible wavelengths;
    (2) Objects above an observer are seen distinctly only through
breaks in a cloud; or
    (3) The cloud has a radar reflectivity of 0 dBZ or greater.
    Precipitation means detectable rain, snow, hail, graupel, or
sleet at the ground; virga; or a radar reflectivity greater than 18
dBZ.
    Radar reflectivity means the radar reflectivity factor due to
hydrometeors, in dBZ.
    Slant distance means the shortest distance between two ports,
whether horizontal, vertical, or inclined, in three dimensional
space.
    Thick cloud layer means one or more cloud layers whose combined
vertical extent from the base of the bottom cloud layer to the top
of the uppermost cloud layer exceeds 4,500 feet. Cloud layers are
combined with neighboring layers for determining total thickness
only when they are physically connected by vertically continuous
clouds.
    Thunderstorm means any convective cloud that produces lightning.
    Transparent means that any of the following conditions apply:
    (1) Objects above, including higher clouds, blue sky, and stars,
are not blurred, are distinct and are not obscured when viewed at
visible wavelengths; or objects below, including terrain, buildings,
and lights on the ground, are clear, distinct, and not obscured when
viewed at visible wavelengths; (2) Objects identified in paragraph
(1) of this definition are seen distinctly not only through breaks
in a cloud; and (3) The cloud has a radar reflectivity of less than
0 dBZ.
    Triboelectrification means the transfer of electrical charge
between ice particles and a launch vehicle when the ice particles
collide with the vehicle during flight.
    Volume-averaged, height integrated radar reflectivity (VAHIRR)
means the product, expressed in units of dBZ-km or dBZ-kft, of a
volume-averaged radar reflectivity and an average cloud thickness in
a specified volume corresponding to a point.

G417.5 Lightning

    (a) A launch operator must wait 30 minutes to initiate flight
after any type of lightning occurs in a thunderstorm if the flight
path will carry the launch vehicle at a slant distance of less than
or equal to 10 nautical miles from that thunderstorm. This paragraph
does not apply to an anvil cloud that is attached to a parent
thunderstorm.
    (b) A launch operator must wait 30 minutes to initiate flight
after any type of lightning occurs at a slant distance of less than
or equal to 10 nautical miles from the flight path, unless:
    (1) The non-transparent part of the cloud that produced the
lightning is at a slant distance of greater than 10 nautical miles
from the flight path;
    (2) There is at least one working field mill at a horizontal
distance of less than or equal to 5 nautical miles from each such
lightning discharge; and
    (3) The absolute values of all electric field measurements at a
horizontal distance of less than or equal to 5 nautical miles from
the flight path and at each field mill specified in paragraph (b)(2)
of this section have been less than 1000 volts/meter for at least 15
minutes.

G417.7 Cumulus Clouds

    (a) This section applies to non-transparent cumulus clouds,
except for cirrocumulus, altocumulus, or stratocumulus clouds. This
section does not apply to an anvil cloud that is attached to a
parent cumulus cloud.
    (b) A launch operator may not initiate flight if the slant
distance to the flight path is less than or equal to 10 nautical
miles from any cumulus cloud that has a top at an altitude where the
temperature is colder than or equal to -20 degrees Celsius.
    (c) A launch operator may not initiate flight if the slant
distance to the flight path is less than or equal to 5 nautical
miles from any cumulus cloud that has a top at an altitude where the
temperature is colder than or equal to -10 degrees Celsius.
    (d) A launch operator may not initiate flight if the flight path
will carry the launch vehicle through any cumulus cloud with its

top at an altitude where the temperature is colder than or equal to
-5 degrees Celsius.
    (e) A launch operator may not initiate flight if the flight path
will carry the launch vehicle through any cumulus cloud that has a
top at an altitude where the temperature is colder than or equal to
+5, and warmer than -5 degrees Celsius unless:
    (1) The cloud is not producing precipitation;
    (2) The horizontal distance from the center of the cloud top to
at least one working field mill is less than 2 nautical miles; and
    (3) All electric field measurements at a horizontal distance of
less than or equal to 5 nautical miles of the flight path and at
each field mill specified in paragraph (e)(2) of this section have
been between -100 volts/meter and +500 volts/meter for at least 15
minutes.

G417.9 Attached Anvil Clouds

    (a) This section applies to any non-transparent anvil cloud
formed from a parent cloud that has a top at an altitude where the
temperature is colder than or equal to -10 degrees Celsius.
    (b) Flight path through cloud: If a flight path will carry a
launch vehicle through any attached anvil cloud, the launch operator
may not initiate flight unless:
    (1) The portion of the attached anvil cloud at a slant distance
of less than or equal to 5 nautical miles from the flight path is
located entirely at altitudes where the temperature is colder than 0
degrees Celsius; and
    (2) The volume-averaged, height-integrated radar reflectivity is
less than +10 dBZ-km (+33 dBZ-kft) at every point at a slant
distance of less than or equal to 1 nautical mile from the flight
path.
    (c) Flight path between 0 and 3 nautical miles from cloud: If a
flight path will carry a launch vehicle at a slant distance of
greater than 0, but less than or equal to 3, nautical miles from any
attached anvil cloud, a launch operator must wait 3 hours to
initiate flight after a lightning discharge in or from the parent
cloud or anvil cloud, unless:
    (1) The portion of the attached anvil cloud at a slant distance
of less than or equal to 5 nautical miles from the flight path is
located entirely at altitudes where the temperature is colder than 0
degrees Celsius; and
    (2) The volume-averaged, height-integrated radar reflectivity is
less than +10 dBZ-km (+33 dBZ-kft) at every point at a slant
distance of less than or equal to 1 nautical mile from the flight
path.
    (d) Flight path between 3 and 5 nautical miles from cloud: If a
flight path will carry a launch vehicle at a slant distance of
greater than 3 and less than or equal to 5 nautical miles from any
attached anvil cloud, a launch operator must wait 3 hours to
initiate flight after every lightning discharge in or from the
parent cloud or anvil cloud, unless the portion of the attached
anvil cloud at a slant distance of less than or equal to 5 nautical
miles from the flight path is located entirely at altitudes where
the temperature is colder than 0 degrees Celsius.
    (e) Flight path between 5 and 10 nautical miles from cloud: If
the flight path will carry the launch vehicle at a slant distance of
greater than 5 and less than or equal to 10 nautical miles from any
attached anvil cloud, the launch operator must wait to initiate
flight for 30 minutes after every lightning discharge in or from the
parent cloud or anvil cloud, unless the portion of the attached
anvil cloud at a slant distance of less than or equal to 10 nautical
miles from the flight path is located entirely at altitudes where
the temperature is colder than 0 degrees Celsius.

G417.11 Detached Anvil Clouds

    (a) This section applies to any non-transparent anvil cloud
formed from a parent cloud that had a top at an altitude where the
temperature was colder than or equal to -10 degrees Celsius.
    (b) Flight path through cloud: If the flight path will carry the
launch vehicle through a detached anvil cloud, the launch operator
may not initiate flight unless:
    (1) The launch operator waits 4 hours after every lightning
discharge in or from the detached anvil cloud; and observation shows
that 3 hours have passed since the anvil cloud detached from the
parent cloud; or
    (2) Each of the following conditions exists:
    (i) Any portion of the detached anvil cloud at a slant distance
of less than or equal to 5 nautical miles from the flight path is
located entirely at altitudes where the temperature is colder than 0
degrees Celsius; and
    (ii) The VAHIRR is less than +10 dBZ-km (+33 dBZ-kft) everywhere
in the flight path.
    (c) Flight path between 0 and 3 nautical miles from cloud: If a
flight path will carry a launch vehicle at a slant distance of
greater than 0 and less than or equal to 3 nautical miles from a
detached anvil cloud, the launch operator must accomplish both of
the following:
    (1) Wait 30 minutes to initiate flight after every lightning
discharge in or from the parent cloud or anvil cloud before
detachment of the anvil cloud, and after every lightning discharge
in or from the detached anvil cloud after detachment, unless:
    (i) The portion of the detached anvil cloud less than or equal
to 5 nautical miles from the flight path is located entirely at
altitudes where the temperature is colder than 0 degrees Celsius;
and
    (ii) The VAHIRR is less than +10 dBZ-km (+33 dBZ-kft) at every
point at a slant distance of less than or equal to 1 nautical mile
from the flight path; and
    (2) If a launch operator is unable to initiate flight in the
first 30 minutes under paragraph (c)(1) of this section, the launch
operator must wait to initiate flight for 3 hours after every
lightning discharge in or from the parent cloud or anvil cloud
before detachment of the anvil cloud, and after every lightning
discharge in or from the detached anvil cloud after detachment,
unless:
    (i) All of the following are true:
    (A) There is at least one working field mill at a horizontal
distance of less than or equal to 5 nautical miles from the detached
anvil cloud;
    (B) The absolute values of all electric field measurements at a
horizontal distance of less than or equal to 5 nautical miles from
the flight path and at each field mill specified in paragraph
(c)(2)(i)(A) of this section have been less than 1000 V/m for at
least 15 minutes; and
    (C) The maximum radar reflectivity from any part of the detached
anvil cloud at a slant distance of less than or equal to 5 nautical
miles from the flight path has been less than +10 dBZ for at least
15 minutes; or
    (ii) Both of the following are true:
    (A) The portion of the detached anvil cloud at a slant distance
of less than or equal to 5 nautical miles from the flight path is
located entirely at altitudes where the temperature is colder than 0
degrees Celsius; and
    (B) The volume-averaged, height-integrated radar reflectivity is
less than +10 dBZ-km (+33 dBZ-kft) at every point at a slant
distance of less than or equal to 1 nautical mile from the flight
path.
    (d) Flight path between 3 and 10 nautical miles from cloud: If a
flight path will carry a launch vehicle at a slant distance of
greater than 3 and less than or equal to 10 nautical miles from a
detached anvil cloud, the launch operator must wait 30 minutes to
initiate flight after every lightning discharge in or from the
parent cloud or anvil cloud before detachment, and after every
lightning discharge in or from the detached anvil cloud after
detachment, unless the portion of the detached anvil cloud at a
slant distance of less than or equal to 10 nautical miles from the
flight path is located entirely at altitudes where the temperature
is colder than 0 degrees Celsius.

G417.13 Debris Clouds

    (a) This section applies to any non-transparent debris cloud
whose parent cumuliform cloud has had any part at an altitude where
the temperature was colder than -20 degrees Celsius or to any debris
cloud formed by a thunderstorm. This section does not apply to a
detached anvil cloud.
    (b) A launch operator must calculate a ``3-hour period'' as
starting at the latest of the following times:
    (1) The debris cloud is observed to be detached from the parent
cloud;
    (2) The debris cloud is observed to have formed by the collapse
of the parent cloud top to an altitude where the temperature is
warmer than -10 degrees Celsius; or
    (3) Any lightning discharge occurs in or from the debris cloud.
    (c) Flight path through cloud: If a flight path will carry a
launch vehicle through a debris cloud, the launch operator may not
initiate flight during the ``3-hour period,'' of paragraph (b) of
this section, unless:
    (1) The portion of the debris cloud at a slant distance of less
than or equal to 5 nautical miles from the flight path is located
entirely at altitudes where the temperature is colder than 0 degrees
Celsius; and
    (2) The VAHIRR is less than +10 dBZ-km (+33 dBZ-kft) everywhere
in the flight path.
    (d) Flight path between 0 and 3 nautical miles from cloud: If
the flight path will carry the launch vehicle at a slant distance of
greater than or equal to 0 and less than or equal to 3 nautical
miles from the debris cloud, the launch operator may not initiate
flight during the ``3-hour period,'' unless one of the following
applies:
    (1) A launch operator may initiate flight during the ``3-hour
period,'' of paragraph (b) of this section if:

    (i) There is at least one working field mill at a horizontal
distance of less than or equal to 5 nautical miles from the debris
cloud;
    (ii) The absolute values of all electric field measurements at a
horizontal distance of less than or equal to 5 nautical miles from
the flight path and at each field mill specified in paragraph
(d)(1)(i) of this section have been less than 1000 volts/meter for
at least 15 minutes; and
    (ii) The maximum radar reflectivity from any part of the debris
cloud less than or equal to a slant distance of 5 nautical miles
from the flight path has been less than +10 dBZ for at least 15
minutes; or
    (2) A launch operator may initiate flight during the ``3-hour
period,'' of paragraph (b) of this section if:
    (i) The portion of the debris cloud at a slant distance of less
than or equal to 5 nautical miles from the flight path is located
entirely at altitudes where the temperature is colder than 0 degrees
Celsius; and
    (ii) The VAHIRR is less than + 10 dBZ-km (+33 dBZ-kft) at every
point at a slant distance of less than or equal to 1 nautical mile
from the flight path.

G417.15 Disturbed Weather

    A launch operator may not initiate flight if the flight path
will carry the launch vehicle through a non-transparent cloud
associated with disturbed weather that has clouds with tops at
altitudes where the temperature is colder than 0 degrees Celsius and
that contains, at a slant distance of less than or equal to 5
nautical miles from the flight path, either:
    (a) Moderate or greater precipitation; or
    (b) Evidence of melting precipitation such as a radar bright
band.

G417.17 Thick Cloud Layers

    (a) This section does not apply to either attached or detached
anvil clouds.
    (b) A launch operator may not initiate flight if the flight path
will carry the launch vehicle through a non-transparent cloud layer
that is:
    (1) Greater than or equal to 4,500 feet thick and any part of
the cloud layer in the flight path is located at an altitude where
the temperature is between 0 degrees Celsius and -20 degrees
Celsius, inclusive; or
    (2) Connected to a thick cloud layer that, at a slant distance
of less than or equal to 5 nautical miles from the flight path, is
greater than or equal to 4,500 feet thick and has any part located
at any altitude where the temperature is between 0 degrees Celsius
and -20 degrees Celsius, inclusive.
    (c) A launch operator may initiate flight despite paragraphs
(a)(1) and (a)(2) of this section if the thick cloud layer:
    (1) Is a cirriform cloud layer that has never been associated
with convective clouds,
    (2) Is located entirely at altitudes where the temperature is
colder than or equal to -15 degrees Celsius, and
    (3) Shows no evidence of containing liquid water.

G417.19 Smoke Plumes

    (a) A launch operator may not initiate flight if the flight path
will carry the launch vehicle through any non-transparent cumulus
cloud that has developed from a smoke plume while the cloud is
attached to the smoke plume, or for the first 60 minutes after the
cumulus cloud is observed to be detached from the smoke plume.
    (b) This section does not apply to non-transparent cumulus
clouds that have formed above a fire but have been detached from the
smoke plume for more than 60 minutes. Section G417.7 applies.

G417.21 Surface Electric Fields

    (a) A launch operator must wait 15 minutes to initiate flight
after the absolute value of any electric field measurement at a
horizontal distance of less than or equal to 5 nautical miles from
the flight path has been greater than or equal to 1500 volts/meter.
    (b) A launch operator must wait 15 minutes to initiate flight
after the absolute value of any electric field measurement at a
horizontal distance of less than or equal to 5 nautical miles from
the flight path has been greater than or equal to 1000 volts/meter,
unless:
    (1) All clouds at a slant distance of less than or equal to 10
nautical miles from the flight path are transparent; or
    (2) All non-transparent clouds at a slant distance less than or
equal to 10 nautical miles from the flight path:
    (i) Have tops at altitudes where the temperature is warmer than
or equal to +5 degrees Celsius, and
    (ii) Have not been part of convective clouds with cloud tops at
altitudes where the temperature was colder than or equal to -10
degrees Celsius for 3 hours.

G417.23 Triboelectrification

    (a) A launch operator may not initiate flight if the flight path
will carry the launch vehicle through any part of a cloud at any
altitude where:
    (1) The temperature is colder than or equal to -10 degrees
Celsius; and
    (2) The launch vehicle's velocity is less than or equal to 3000
feet/second,
    (b) Paragraph (a) of this section does not apply if either:
    (1) The launch vehicle is treated for surface electrification so
that:
    (i) All surfaces of the launch vehicle susceptible to ice
particle impact are such that the surface resistivity is less than
10 \9\ Ohms per square; and
    (ii) All conductors on surfaces, including dielectric surfaces
that have been coated with conductive materials, are bonded to the
launch vehicle by a resistance that is less than 10 \5\ ohms; or
    (2) A launch operator demonstrates by test or analysis that
electrostatic discharges on the surface of the launch vehicle caused
by triboelectrification will not be hazardous to the launch vehicle
or the spacecraft.

G417.25 Measurement of Cloud Radar Reflectivity, Computation of VAHIRR,
and Measurement of Electric Field

    (a) Radar reflectivity measurement. A launch operator who
measures radar reflectivity to comply with this appendix must employ
a meteorological radar and ensure that--
    (1) The radar wavelength is greater than or equal to 5 cm;
    (2) A reflectivity measurement is due to a meteorological
target;
    (3) The spatial accuracy and resolution of a reflectivity
measurement is 1 kilometer or better;
    (4) Any attenuation caused by intervening precipitation or by an
accumulation of water or ice on the radome is less than or equal to
1 dBZ; and
    (5) A reflectivity measurement contains no portion of the cone
of silence above the radar antenna, nor any portion of any sector
that is blocked out for payload safety reasons.
    (b) Computation of VAHIRR. A launch operator who measures VAHIRR
to comply with this appendix must ensure that--
    (1) A digital signal processor provides radar reflectivity
measurements on a three-dimensional Cartesian grid having a maximum
grid-point-to-grid-point spacing of one kilometer in each of the
three dimensions;
    (2) The specified volume is the volume bounded in the horizontal
by vertical, plane, perpendicular sides located 5.5 kilometers (3
nautical miles) north, east, south, and west of the point where
VAHIRR is to be evaluated; on the bottom by the 0 degree Celsius
level; and on the top by an altitude of 20 kilometers;
    (3) Volume-averaged radar reflectivity is the arithmetic average
of the radar reflectivity measurements in dBZ at grid points within
the specified volume. A launch operator must include each grid point
within the specified volume in the average if and only if that grid
point has a radar reflectivity measurement equal to or greater than
0 dBZ. If fewer than 10% of the grid points in the specified volume
have radar reflectivity measurements equal to or greater than 0 dBZ,
then the volume-averaged radar reflectivity is either the maximum
radar reflectivity measurement in the specified volume, or 0 dBZ,
whichever is greater.
    (4) Average cloud thickness is the difference in kilometers or
thousands of feet between an average top and an average base of all
clouds in the specified volume, computed as follows:
    (i) The cloud base to be averaged is the higher, at each
horizontal position, of either
    (A) The 0 degree Celsius altitude, or
    (B) The lowest altitude of all radar reflectivity measurements
of 0 dBZ or greater.
    (ii) The cloud top to be averaged is the highest altitude of all
radar reflectivity measurements of 0 dBZ or greater at each
horizontal position.
    (iii) A launch operator must--
    (A) Take the cloud base at any horizontal position as the
altitude of the corresponding base grid point minus half of the
grid-point vertical separation;
    (B) Take the cloud top at that horizontal position as the
altitude of the corresponding top grid point plus half of this
vertical separation.
    (5) All VAHIRR-evaluation points in the flight path itself are:
    (i) Greater than a slant distance of 10 nautical miles from any
radar reflectivity of 35 dBZ or greater at altitudes of 4 kilometers
or greater above mean sea level; and
    (ii) Greater than a slant distance of 10 nautical miles from any
type of lightning that has occurred in the previous 5 minutes.

    (iii) A launch operator need not apply paragraph (b)(5) of this
section to VAHIRR evaluation points outside the flight path but
within one nautical mile of the flight path.
    (6) VAHIRR is the product, expressed in units of dBZ-km or dBZ-
kft, of the volume-averaged radar reflectivity defined in paragraph
(b)(3) of this section and the average cloud thickness defined in
paragraph (b)(4) of this section in the specified volume defined in
paragraph (b)(2) of this section.
    (c) Electric field measurement. A launch operator who measures
an electric field to comply with this appendix must--
    (1) Employ a ground-based field mill,
    (2) Use only the one-minute arithmetic average of the
instantaneous readings from that field mill,
    (3) Ensure that all field mills are calibrated so that the
polarity of the electric field measurements is the same as the
polarity of a voltage placed on a test plate above the sensor,
    (4) Ensure that the altitude of the flight path of the launch
vehicle is equal to or less than 20 kilometers (66 thousand feet)
everywhere above a horizontal circle of 5 nautical miles centered on
the field mill being used,
    (5) Use only direct measurements from a field mill, and
    (6) Not interpolate based on electric-field contours.

    Issued in Washington, DC, on May 23, 2011.
J. Randolph Babbitt,
Administrator.
[FR Doc. 2011-14146 Filed 6-7-11; 8:45 am]
BILLING CODE 4910-13-P