Boeing Model 767-200 and -300 Series Airplanes - 2006-NM-071-AD

[Docket No. FAA-2006-25205; Directorate Identifier 2006-NM-071-AD] RIN 2120-AA64 This proposed action requires replacement of certain parts deemed to be not airworthy with "new and improved" parts pursuant to certain OEM and/or manufacturer service documents. The Modification and Replacement Parts Association (MARPA) submits the following comments: Item #1 Typically airworthiness directives are based up service information originating with the type certificate holder or its suppliers. Manufacturer service documents are privately authored instruments generally enjoying copyright protection against duplication and distribution. When a service document is incorporated by reference pursuant to 5 U.S.C. 552(a) and 1 CFR part 51into a public document such as an airworthiness directive, it loses its private, protected status and becomes itself a public document. If a service document is used as a mandatory element of compliance it should not simply be referenced, but should be incorporated into the regulatory document. Public laws by definition must be public which means they cannot rely upon private writings. Incorporated by reference service documents should be made available to the public by publication in the Document Management System (DMS) keyed to the action that incorporates them. The stated purpose of the incorporation by reference method of the Federal Register is brevity; to keep from expanding the Federal Register needlessly by publishing documents already in the hands of the affected individuals. Traditionally, "affected individuals" has meant aircraft owners and operators who are generally provided service information by the manufacturer. However, a new class of affected individuals has emerged since the majority of aircraft maintenance is now performed by specialty shops instead of aircraft owners and operators. This new class includes maintenance and repair organizations (MRO), component servicing and repair shops, parts purveyors and distributors and organizations manufacturing or servicing alternatively certified parts under 14 CFR § 21.303 (PMA). Further, the concept of brevity is now nearly archaic as documents exist more frequently in electronic format than on paper. We therefore request that the service documents deemed essential to the accomplishment of this proposed action be (1) Incorporated by reference into the regulatory instrument, and (2) published in the DMS. Item #2 Type certificate holders in their service documents universally ignore the possible existence of PMA parts. This is especially true with foreign manufacturers where the concept may not exist or be implemented in the country of origin. Frequently the service document upon which an airworthiness directive is based will require the removal of a certain part numbered part and the installation or a different part numbered part as a corrective action. This practice runs afoul of 14 CFR § 21.303 which permits development, certification and installation of alternatively certified parts (PMA). Mandating the installation of a certain part numbered part to the exclusion of all other parts is not a favored general practice. Such action has the dual effect of preventing in some cases installation of perfectly good parts while at the same time prohibiting the development of new parts permitted under 21.303. Such a prohibition runs the risk of taking the airworthiness directive out of the realm of safety and into the world of economics since prohibiting the development, sale and use of a perfectly airworthy part has nothing to do with safety. Courts could easily construe such actions as being outside the statutory basis of the airworthiness directive (safety) and, as such, unenforceable. [Courts are reluctant to find portions of a rule unenforceable since they lack the knowledge and authority to rewrite requirements and are thus generally inclined to simply void the entire rule.] This action, as written, also does not comply with proposed…