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Federal Register / Vol. 71, No.

178 / Thursday, September 14, 2006 / Notices 54331

SUMMARY: The FAA invites public Issued in Washington, DC, on September 7, LaGuardia NPRM).1 The FAA expects
comments about our intention to request 2006. that the expiration of the operational
the Office of Management and Budget Carla Mauney, limitations under this proposed order
(OMB) to aprove a current information FAA Information Collection Clearance would coincide with the effective date
collection. Title 49 U.S.C. 44720 Officer, Information Systems and Technology of any final rule that the FAA adopts in
authorizes the appointment of Services Staff, ABA–20. the related rulemaking proceeding.
appropriately qualified persons to be [FR Doc. 06–7640 Filed 9–13–06; 8:45 am] The FAA’s authority to limit the
representatives of the Administrator to BILLING CODE 4910–13–M number of flight operations at
allow those persons to examine, text LaGuardia is an essential component of
and certify other persons for the the FAA’s statutory responsibilities. The
purpose of issuing them pilot and DEPARTMENT OF TRANSPORTATION FAA holds broad authority under 49
instructor certificates. U.S.C. 40103(b) to regulate the use of
Federal Aviation Administration the navigable airspace of the United
DATES: Please submit comments by
November 13, 2006. [Docket No. FAA–2006–25755] States. This provision authorizes the
FAA to develop plans and policy for the
FOR FURTHER INFORMATION CONTACT: Operating Limitations at New York use of navigable airspace and, by order
Carla Mauney on (202) 267–9895, or by LaGuardia Airport or rule, to regulate the use of the
e-mail at: Carla.Mauney@faa.gov. airspace as necessary to ensure its
SUPPLEMENTARY INFORMATION: Proposed Order and request for
ACTION:
efficient use.
comments.
Federal Aviation Administration (FAA) I. Background
SUMMARY: The Federal Aviation
Title: Representative of the Administration (FAA) has tentatively As a result of LaGuardia’s history of
Administrator. determined that it will be necessary to congestion-related delays, the FAA, over
Type of Request: Revision of an place temporary limitations on flight the course of nearly forty years, applied
approved collection. operations at New York’s LaGuardia increasingly detailed rules to govern the
OMB Control Number: 2120–0033. Airport (LaGuardia), as described in this allocation and use of limited capacity at
proposed order. The period during the airport.2 These regulations,
Forms(s): 8110–14, 8110–28, 8710–6,
which the FAA anticipates that these collectively known as the High Density
8710–9.
limitations will remain in effect is Rule and the Buy-Sell Rule (slot rules),
Affected Public: A total of 4,874 were effective at controlling congestion
Respondents. January 2, 2007, through September 30,
2007. at LaGuardia. In 2000, however, out of
Frequency: The information is concern with the collateral effects of the
collected on occasion. FOR FURTHER INFORMATION CONTACT:
slot rules at LaGuardia on airport access
Estimated Average Burden Per Komal Jain, Regulations Division, Office
and competition, Congress elected to
Response: Approximately 1.413 hour of the Chief Counsel; Telephone: (202)
phase out the slot regulations at the
per response. 267–3073; E-mail: komal.jain@faa.gov.
airport under the Wendell H. Ford
Estimated Annual Burden Hours: An SUPPLEMENTARY INFORMATION: Aviation Investment and Reform Act for
estimated 6,886 hours annually. Proposed Order and Request for the 21st Century (AIR–21).3 Congress
Abstract: Title 49 U.S.C. 44720 Comments simultaneously directed the U.S.
authorizes the appointment of Department of Transportation, effective
The Federal Aviation Administration
appropriately qualified persons to be immediately, to grant all applications
(FAA) has tentatively determined that it
representatives of the Administrator to for exemptions from the slot rules for
will be necessary to place temporary
allow those persons to examine, text specific types of flight, i.e., flights
limitations on flight operations at New
and certify other persons for the operated by new entrant carriers and
York’s LaGuardia Airport (LaGuardia),
purpose of issuing them pilot and flights that would serve small hub and
as described in this proposed order. The
instructor certificates. non-hub airports with aircraft with less
period during which the FAA
ADDRESSES: Send comments to the FAA than 71 seats operations.4 By statute, the
anticipates that these limitations will
at the following address: Mrs. Carla slot rules will expire at LaGuardia after
remain in effect is January 2, 2007,
Mauney, Room 1033, Federal Aviation January 1, 2007.5
through September 30, 2007. The FAA
Administration, Information Systems As carriers began using the slot
invites air carriers and other interested
and Technology Services Staff, ABA–20, exemptions permitted under AIR–21,
persons to submit written comments on
800 Independence Ave., SW., the number of scheduled flight
this proposal in Docket FAA–2006–
Washington, DC 20591. operations at LaGuardia began to far
25755. After reviewing and evaluating
Comments are invited on: Whether exceed the airport’s capacity even under
the comments, the FAA expects to issue
the proposed collection of information optimal operating conditions.6 With no
a final order on this proposal.
is necessary for the proper performance In the absence of the operational new airport infrastructure or air traffic
of the functions of the Department, limitations proposed in this order, the control procedures, overall airport
including whether the information will FAA anticipates a return of the capacity remained the same while the
have practical utility; the accuracy of congestion-related delays that the 1 Docket FAA–2006–25709; 71 FR 51360.
the Department’s estimates of the traveling public experienced in 2000. 2 See 33 FR 17,896, 17,898 (Dec. 3, 1968); 34 FR
burden of the proposed information These delays were not limited to 2603 (Feb. 26, 1969); cf. 14 CFR 93.121–93.133,
collection; ways to enhance the quality, LaGuardia, but spread to other airports 93.211–93.227 (2006)
utility and clarity of the information to throughout the National Airspace 3 Public Law No. 106–181, § 231, 114 Stat. 61,
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be collected; and ways to minimize the System (NAS). In a separate docket, the 106–10 (2000) (codified at 49 U.S.C. 41714–16).
4 49 U.S.C. 41716.
burden of the collection of information FAA is soliciting public comments on a 5 49 U.S.C. 41715(a)(2).
on respondents, including the use of proposed rule that would limit the 6 The increase in scheduled operations at
automated collection techniques or number of scheduled and unscheduled LaGuardia is described more fully at 66 FR 31,731,
other forms of information technology. operations at LaGuardia (2006 31,732–34 (June 12, 2001).

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54332 Federal Register / Vol. 71, No. 178 / Thursday, September 14, 2006 / Notices

number of aircraft operations and delays a significant rescheduling of existing requirement for the operating
soared. The average minutes of delay for flights at LaGuardia. authorizations, as we have adopted in
all arriving flights at LaGuardia Based on past experience, the FAA the final rule reducing congestion and
increased 144% from 15.52 minutes in expects that the termination of the slot delay at O’Hare. 14 CFR part 93, subpart
March 2000 (the months before AIR–21 rules at LaGuardia will lead to a B (71 FR 51382–51404, August 29,
was enacted) to 37.86 minutes in significant increase in flights, seriously 2006.). Carriers would be required to
September 2000.7 The increase in delay worsening delays at LaGuardia and use their authorizations at least 80
was not limited to delays at LaGuardia. elsewhere in the NAS. The FAA percent of the time over any two month
Flights that arrived and departed late at believes that airline demand for flights reporting period in order to retain the
LaGuardia affected flights at other into and out of LaGuardia substantially authorization. The Administrator could
airports and in adjacent airspace as exceeds the number of flights currently decide to waive the 80 percent usage
well; by September 2000, flight delays at permitted at the airport. Six years ago requirement under highly unusual
LaGuardia accounted for 25 percent of the statutory change that required the conditions that are beyond the carrier’s
the nation’s delays, compared to 10 Department to grant all slot exemption control and that last for at least 5
percent for the previous year.8 applications for specified types of consecutive days.
In order to quell the growing service created an unacceptable level of In addition, this proposed order
congestion at LaGuardia, the FAA delay at LaGuardia even though contains a lottery provision to reallocate
intervened in November 2000. The FAA established carriers could not obtain slot withdrawn, surrendered, or unallocated
reduced the number of daily exemptions exemptions for service to larger operating authorizations. We propose to
from the High Density Rule at communities or for flights operated with follow the lottery procedures set forth in
LaGuardia to 159 during peak operating larger aircraft. If the FAA does not adopt 14 CFR 93.225. The reallocation of
hours and distributed the exemptions temporary limits on LaGuardia flights, operating authorizations by lottery
via lottery.9 The 159 daily operations the termination of the slot rules would under this proposed order would be
reflected an increase of almost eleven eliminate all legal restrictions on the temporary. The limits on flights and the
hourly operations above the limits in airlines’ addition of flights to larger allocation of any operations created by
place before the statutory amendments. communities and flights operated with the FAA’s final decision in the
Despite the FAA’s partial rollback of the larger aircraft.11 rulemaking proceeding will control
number of exemption flights, LaGuardia The FAA has tentatively determined LaGuardia operations after any new rule
is now operating at its peak, optimal not to propose several aspects of the takes effect.
weather capacity during weekday current slot and slot exemption rules in After reviewing the comments
daytime and evening hours and during this proposed order. In addition to received on the following proposed
Sunday afternoon and evening hours, reducing the days and hours covered by measures, the FAA expects to issue a
and LaGuardia continues to have a the slot rules, the FAA is not proposing final order that temporarily governs
relatively serious delay problem. limitations based on the number of flight operations at LaGuardia. Because
Although LaGuardia lacks the passenger seats on the aircraft or the the airport has unused capacity in the
capacity to handle additional flight community served. While there may be terminal facilities, a final decision
operations beyond the current peak legitimate policy objectives for such limiting the number of flights
hour limits, the legislative expiration of limits, such as those under presumably would not discourage
the High Density Rule at LaGuardia after consideration in the 2006 LaGuardia airlines from using their rights in a way
January 1, 2007, will eliminate the NPRM, they are not essential to control that increased passenger traffic at
scheduling and reservation mechanisms congestion in the interim. LaGuardia.
that currently sustain the airport’s In order to promote the use of scarce The FAA has determined that it has
operational balance.10 Accordingly, the resources, carriers would be permitted the statutory authority to adopt this
FAA has proposed a new rule to to temporarily transfer operating proposal. The FAA has broad authority
maintain the number of operations at authorizations to other carriers. under 49 U.S.C. 40103 to regulate the
LaGuardia’s current hourly limits. The The FAA proposes to include a use of the navigable airspace of the
2006 LaGuardia NPRM has only minimum usage requirement for the United States. Section 40103 authorizes
recently been published for public flight operations assigned under the the FAA to develop plans and policy for
comment, and a final rule cannot be order. These flight operations are a the use of navigable airspace and to
issued before the expiration of the High scarce resource and we desire that they assign the use that the FAA deems
Density Rule. An order that temporarily are efficiently utilized during the necessary for its safe and efficient
maintains LaGuardia’s current effective period of the order. Our utilization. It further directs the FAA to
operational limits during the interval experience with the August 2004 prescribe air traffic rules and regulations
between the High Density Rule’s Scheduling Reduction Order at governing the efficient utilization of the
expiration and the effective date of the Chicago’s O’Hare International Airport, navigable airspace. The FAA interprets
proposed replacement rule appears which capped scheduled arrivals during its broad statutory authority to ensure
necessary, because we need to avoid any peak hours and allocated arrival the efficient use of the navigable
increase in the number of operations or authorizations without a minimum airspace to encompass management of
usage requirement, was that some the nationwide system of air commerce
7 Source: FAA’s Aviation System Performance carriers did not utilize their authorities and air traffic control. While Congress
Metrics (ASPM). and thereby the airport, the traveling determined to phase out the long-
8 Calculated from FAA’s Air Traffic Operations
public at O’Hare and the aviation standing slot rules at LaGuardia,
Network Database (OPSNET).
9 65 FR 69,126, 69,127–28 (Nov. 15, 2000). This
system in general suffered unused Congress did not strip the FAA of its
was extended through December 31, 2006. 70 FR capacity. We propose a minimum usage authority to place operating limitations
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36998 (June 27, 2005). on air carriers or other operators to


10 The FAA maintains safe operations through the 11 Several years after Congress’ decision in 2000
preserve the efficient utilization of the
use of air traffic control procedures. Traffic to abolish the High Density and Buy-Sell Rules at
management initiatives would be applied as needed O’Hare, the increasing congestion and delay
national airspace. Indeed, the FAA has
but would result in significant aircraft and problems at O’Hare forced the FAA to limit flights used that authority to restrict the
passenger delays. at that airport. See 70 FR 15521 (March 25, 2005). number of slot exemptions since 2001,

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Federal Register / Vol. 71, No. 178 / Thursday, September 14, 2006 / Notices 54333

with general support from the impacted operating authorizations actually to obtain a reservation for each takeoff
operators. operated for each day of the 2-month or landing.13 Each reservation for an
reporting period within 14 days after the unscheduled operation at LaGuardia is
II. Proposed Interim Measures
last day of the 2-month reporting period an authorization for a one-time arrival
A. Scheduled Operations beginning January 2 and every 2 months or departure on a specific date within a
The FAA proposes to adopt the thereafter. Any operating authorizations specific 30-or 60-minute period. FAA
following measures with respect to not used at least 80 percent of the time Advisory Circular 93–1, ‘‘Reservations
scheduled operations at LaGuardia: over a two-month period would be for Unscheduled Operations at High
1. The final order would govern withdrawn by the FAA. The Density Traffic Airports,’’ describes the
scheduled arrivals and departures at Administrator could waive the 80 procedures for obtaining a reservation.
LaGuardia from 6:30 a.m. through 9:59 percent usage requirement in the event The FAA uses similar procedures for
of a highly unusual and unpredictable Special Traffic Management Programs
p.m., Eastern Time, Monday through
condition which is beyond the control implemented to respond to temporary
Friday and from 12 noon through 9:59
of the carrier and which exists for a increases in airport demand caused by
p.m., Eastern Time, Sunday.
period of 5 consecutive days or more. special events such as major
2. The final order would take effect on
8. In the event that operating conventions or sporting events, and the
January 2, 2007, and would expire at
authorizations are withdrawn for non- FAA intends to use these procedures to
9:59 p.m., Eastern Time, on September use, surrendered to the FAA or are allocate reservations for unscheduled
30, 2007. unassigned, the FAA would determine operations at LaGuardia under the final
3. The final order would assign
whether any of the available operating order.
operating authority to conduct an arrival authorizations should be reallocated. If The FAA proposes to implement a
or a departure at LaGuardia during the so, the FAA would conduct a lottery reservation system for unscheduled
affected hours to the air carrier that using the provisions specified in 14 CFR operations to ensure that demand is
holds equivalent slot or slot exemption 93.225. The FAA may retime an spread reasonably throughout the day in
authority (or the air carrier that operates operating authorization prior to support of the FAA’s peak hour
it if a non-air carrier holds such reallocation in order to address operational cap for scheduled and
authority) under the High Density Rule operational needs. When the final order unscheduled flights. The FAA proposes
or FAA slot exemption rules as of expires, any operating authorizations to permit six (6) unscheduled operations
January 1, 2007. The FAA would not reassigned under this paragraph would per hour from 6:30 a.m. through 9:59
assign operating authority under the revert to the FAA for reallocation p.m., Eastern Time, Monday through
final order to any person or entity other according to the reallocation mechanism Friday and 12 noon through 9:59 p.m.,
than a certificated U.S. or foreign air prescribed in the final rule that Eastern Time, on Sunday. This is
carrier with appropriate economic succeeds the final order. consistent with the current number of
authority to conduct scheduled 9. The FAA would enforce the final peak hour reservations available for
passenger service and FAA operating order through an enforcement action unscheduled operations at LaGuardia.
authority under 14 CFR part 121, 129, seeking a civil penalty under 49 U.S.C. The FAA believes that a half-hour
or 135. 46301(a). An air carrier that is not a allocation period is appropriate and
4. For administrative tracking small business as defined in the Small proposes to limit reservations in each
purposes only, the FAA would assign an Business Act, 15 U.S.C. 632, would be half-hour period to no more than three
identification number to each operating liable for a civil penalty of up to $25,000 (3) operations (arrivals and departures)
authorization. for every day that it violates the limits unless otherwise authorized by the Air
5. An air carrier could transfer an set forth in the final order. An air carrier Traffic Organization.
operating authorization to another that is a small business as defined in the Therefore, with respect to
carrier, not to exceed the duration of the Small Business Act would be liable for unscheduled flight operations at
final order. An air carrier also could a civil penalty of up to $10,000 for every LaGuardia, the FAA proposes to adopt
trade an operating authorization to day that it violates the limits set forth the following measures:
another air carrier on a one-for-one in the final order. The FAA also could 1. The final order would apply to all
basis, not to exceed the duration of the file a civil action in U.S. District Court, operators of unscheduled flights, except
final order. Notice of transfer or a trade under 49 U.S.C. 46106, 46107, seeking helicopter operations, at LaGuardia from
under this paragraph would be to enjoin any air carrier from violating 6:30 a.m. through 9:59 p.m., Eastern
submitted in writing to the FAA Slot the terms of the final order. Time, Monday through Friday and from
Administration Office, facsimile (202) 12 noon through 9:59 p.m., Eastern
267–7277 or e-mail 7-AWA- B. Unscheduled Operations 12
Time, Sunday.
Slotadmin@faa.gov, and must come Under the High Density Rule, the 2. The final order would take effect on
from a designated representative of each FAA requires all operators at LaGuardia January 2, 2007, and would expire at
air carrier. The air carriers would be 9:59 p.m., Eastern Time, on September
required to receive written confirmation 12 Unscheduled operations are operations other
30, 2007.
from the FAA prior to operating under than those regularly conducted by an air carrier 3. No person could operate an aircraft
between LaGuardia and another service point.
the traded operating authority. Unscheduled operations include general aviation, other than a helicopter to or from
6. An air carrier could not buy, sell, public aircraft, military, charter, ferry, and LaGuardia unless the operator has
trade, or transfer an operating positioning flights. An air carrier can use an received, for that unscheduled
authorization, except as described in operating authorization for a ferry, positioning, or operation, a reservation that is assigned
other non-revenue flight. An air carrier may choose
paragraph 5. to do so if a reservation is not available. Helicopter by the David J. Hurley Air Traffic
7. Every air carrier holding an Control System Command Center’s
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operations are excluded from the reservation


operating authorization would forward requirement. Reservations for unscheduled flights Airport Reservation Office (ARO).
in writing to the FAA Slot operating under visual flight rules (VFR) are granted Additional information on procedures
when the aircraft receives clearance from air traffic
Administration Office a list of all control to land or depart LaGuardia. Reservations for obtaining a reservation will be
operating authorizations held by the for unscheduled VFR flights are not included in the
carrier along with a listing of the limits for unscheduled operators. 13 See, e.g., 14 CFR 93.125 (2006).

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54334 Federal Register / Vol. 71, No. 178 / Thursday, September 14, 2006 / Notices

available via the Internet at http:// measures the operator has taken or
www.fly.faa.gov/ecvrs. Issued in Washington, DC, on September 7, proposes to take to reduce existing non-
4. Six (6) reservations would be 2006. compatible uses and prevent the
available per hour for unscheduled Nan Shellabarger for Nancy LoBue, introduction of additional non-
operations at LaGuardia. The ARO Deputy Assistant Administrator for Aviation compatible uses.
would assign reservations on a 30- Policy, Planning, and Environment. The FAA has completed its review of
minute basis. [FR Doc. E6–15221 Filed 9–13–06; 8:45 am] the noise exposure maps and
5. The ARO would receive and BILLING CODE 4910–13–P accompanying documentation
process all reservation requests. submitted by the city of Fort Worth. The
Reservations would be assigned on a documentation that constitutes the
‘‘first-come, first-served’’ basis, DEPARTMENT OF TRANSPORTATION ‘‘noise exposure maps’’ as defined in
determined as of the time that the ARO section 150.7 of Part 150 includes:
receives the request. A cancellation of Federal Aviation Administration Exhibits 4.1–4.5, Exhibits 5.1–5.5, Table
any reservation that will not be used as 4.2, and Table 5.1. The FAA has
assigned would be required. Noise Exposure Map Notice; Fort determined that these noise exposure
6. Filing a request for a reservation Worth Alliance Airport, Fort Worth, TX maps and accompanying documentation
would not constitute the filing of an AGENCY: Federal Aviation are in compliance with applicable
instrument flight rules (IFR) flight plan, Administration, DOT. requirements. This determination is
as separately required by regulation. effective on September 7, 2006.
ACTION: Notice
After the reservation is obtained, an IFR FAA’s determination on an airport
flight plan could be filed. The IFR flight SUMMARY: The Federal Aviation operator’s noise exposure maps is
plan would include the reservation Administration (FAA) announces its limited to a finding that the maps were
number in the ‘‘remarks’’ section and determination that the noise exposure developed in accordance with the
would be filed in accordance with FAA maps submitted by the city of Fort procedures contained in Appendix A of
regulations and procedures. Worth, Texas for Fort Worth Alliance FAR Part 150. Such determination does
7. Air Traffic Control would Airport under the provisions of 49 not constitute approval of the
accommodate declared emergencies U.S.C. 47501 et. seq (Aviation Safety applicant’s data, information or plans,
without regard to reservations. Non- and Noise abatement Act) and 14 CFR or a commitment to approve a noise
emergency flights in direct support of Part 150 are in compliance with compatibility program or to fund the
national security, law enforcement, applicable requirements. implementation of that program. If
military aircraft operations, or public- EFFECTIVE DATE: The effective date of the questions arise concerning the precise
use aircraft operations would be FAA’s determination on the noise relationship of specific properties to
accommodated above the reservation exposure maps is September 7, 2006. noise exposure contours depicted on a
limits with the prior approval of the noise exposure map submitted under
FOR FURTHER INFORMATION CONTACT: Mr.
Vice President, System Operations section 47503 of the Act, it should be
Paul Blackford, Federal Aviation noted that the FAA is not involved in
Services, Air Traffic Organization.
Administration, 2601 Meacham Blvd., any way in determining the relative
Procedures for obtaining the appropriate
Fort Worth, Texas 76137–0650, (817) locations of specific properties with
reservation for such flights would be
222–5607. regard to the depicted noise contours, or
available via the Internet at http://
www.fly.faa.gov/ecvrs. SUPPLEMENTARY INFORMATION: This in interpreting the noise exposure maps
8. Notwithstanding the limits in notice announces that the FAA finds to resolve questions concerning, for
paragraph 4, if the Air Traffic that the noise exposure maps submitted example, which properties should be
Organization determines that air traffic for Fort worth Alliance Airport are in covered by the provisions of section
control, weather, and capacity compliance with applicable 47506 of the Act. These functions are
conditions are favorable and significant requirements of Part 150, effective inseparable from the ultimate land use
delay is not likely, the FAA could September 7, 2006. Under 49 U.S.C. control and planning responsibilities of
accommodate additional reservations section 47503 of the Aviation Safety and local government. These local
over a specific period. Unused operating Noise Abatement Act (hereinafter responsibilities are not changed in any
authorizations could also be temporarily referred to as ‘‘the Act’’), an airport way under Part 150 or through FAA’s
made available for unscheduled operator may submit to the FAA noise review of noise exposure maps.
operations. Reservations for additional exposure maps which meet applicable Therefore, the responsibility for the
operations would be obtained through regulations and which depict non- detailed overlaying of noise exposure
the ARO. compatible land uses as of the date of contours onto the map depicting
9. Reservations could not be bought, submission of such maps, a description properties on the surface rests
sold, or leased. of projected aircraft operations, and the exclusively with the airport operator
ways in which such operations will that submitted those maps, or with
III. Request for Comments affect such maps. The Act requires such those public agencies and planning
The FAA invites all interested maps to be developed in consultation agencies with which consultation is
persons to submit written comments on with interested and affected parties in required under section 47503 of the Act.
the proposals described in this order by the local community, government The FAA has relied on the certification
filing their written views in Docket agencies, and persons using the airport. by the airport operator, under section
FAA–2006–25755 on or before October An airport operator who has submitted 150.21 of FAR Part 150, that the
16, 2006. The FAA does not intend this noise exposure maps that are found by statutorily required consultation has
proposal to address the longer-term FAA to be in compliance with the been accomplished.
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issues that will be considered in the requirements of Federal Aviation Copies of the full noise exposure map
related proposed rulemaking. Therefore, Regulations (FAR) Part 150, documentation and of the FAA’s
any submissions to the current docket promulgated pursuant to the Act, may evaluation of the maps are available for
should focus on the issues specified in submit a noise compatibility program examination at the following locations:
this proposed order. for FAA approval which sets forth the Federal Aviation Administration, 2601

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