Safety Recommendation A-00-085

On July 30, 2001, the FAA stated that Order 8400.10, "Air Transportation Operations Inspector's Handbook," paragraphs 392 and 1972, directs POIs (1) to notify their assigned certificate holders of the desirability of having flight crews and flight attendants performing emergency evacuations and ditching drills together and (2) to encourage them to adopt this practice. Previously, on October 30, 1998, the FAA issued Advisory Circular (AC) 120-51C, "Crew Resource Management [CRM] Training," which stated that flight attendants should conduct CRM training with flight crews, including shared issues such as evacuations and ditching.

On February 12, 1994, the FAA issued Flight Standards Information Bulletin (FSIB) for Air Transportation 95-05, "Emergency Evacuation and Ditching Drills," which directed POIs to ensure that their assigned certificate holders are aware of the performance benefits that result when flight crews and flight attendants perform emergency evacuation and ditching drills together. On January 3, 2002, the Safety Board responded that it did not believe the cited portions of Order 8400.10 to be an acceptable substitute for the recommended action.

The Board found in its evacuation study that only 3 of 35 flight attendants and 10 of 31 flight crews who were surveyed as a result of the study had participated in a joint evacuation exercise, despite the directions in AC 120-51C and FSIB 95-05. In its January 3, 2002, letter, the Board asked the FAA why it believed the revisions to paragraphs 392 and 1974 would be any more effective than AC 120-51C and FSIB 95-05.

At the October 3, 2003, meeting, the FAA indicated it believed that a new AC on CRM would address the issue in this recommendation. The Safety Board is not confident that a new AC, without an accompanying requirement, will be effective given AC 120-51C's ineffectiveness in the absence of a requirement for joint training. The FAA has indicated that it will not issue such a requirement and plans no further action beyond the revisions to the AC and Order 8400.10.

The Safety Board regrets that the FAA has decided against taking the recommended action. The Board continues to believe in the safety benefits of periodic joint evacuation exercises involving flight crews and flight attendants. Therefore, Safety Recommendation A-00-85 is classified "Closed--Unacceptable Action."

For A-00-85, airlines do conduct joint training, but not emergency joint training and we are not planning to require that this be done.

The Safety Board is disappointed in the FAA's response and notes that this recommendation asks the FAA to require joint evacuation exercises for flight and cabin crews. Paragraphs 392 and 1974 state that providing opportunities for joint exercises is "highly desirable," then discusses acceptable alternatives to such exercises. The Board does not believe this to be an acceptable substitute. Previously, the FAA issued Advisory Circular (AC) 120-51C, "Crew Resource Management Training," which states that flight attendants should conduct crew resource management training with flight crews, including shared issues like evacuations and ditching.

In addition, the FAA previously issued Flight Standards Information Bulletin (FSIB) for "Air Transportation 95-05, Emergency Evacuation and Ditching Drills," which directs POIs to ensure that their assigned certificate holders are aware of the performance benefits that result when flight crews and flight attendants perform emergency evacuation and ditching drills together. The Safety Board found in its evacuation study that only 3 out of 35 flight attendants and 10 out of 31 flight crews who were surveyed as a result of the study had participated in a joint evacuation exercise, despite the direction in AC 120-51C and FSIB 95-05.

The Safety Board would appreciate learning why the FAA believes the revisions to paragraphs 392 and 1974 will be any more effective than AC 120-51C and FSIB 95-05; however, the Board continues to believe that encouraging carriers to consider the benefits of joint exercises is not an acceptable substitute for requiring such exercises. Pending completion of the recommended action, Safety Recommendation A-00-85 remains classified "Open--Unacceptable Response."

Letter Mail Controlled 08/10/2001 12:52:59 PM MC# 2010633: FAA Order 8400.10, Air Transportation Operations Inspector's Handbook, paragraphs 392 and 1972, direct POIs to encourage their assigned certificate holders of the desirability of having flightcrews and flight attendants performing emergency evacuations and ditching drills together. When this is not possible, POI's should ensure that their air carriers are aware of the desirability of training programs that include information addressing the roles of other crewmembers during emergency evacuations and ditching. I have enclosed a copy of the applicable portion of FAA Order 8400.10 for the Board's information.

I believe that the FAA has addressed the full intent of this safety recommendation, and I consider the FAA's action to be completed.

The Safety Board notes that in its evacuation study, only 3 out of 35 flight attendants and 10 out of 31 flight crews who were surveyed as a result of the study had participated in a joint evacuation exercise, despite the direction in AC 120-51C and FSIB 95-05. Although the FAA plans to reiterate the information contained in FSIB 95-05 in an FSHB, the Safety Board is not convinced that there will be routine joint training without a requirement. The Board would appreciate learning what steps the FAA will take to ensure compliance with the new bulletin.

Pending the requirement for air carriers to conduct periodic joint evacuation exercises involving flight crews and flight attendants, Safety Recommendation A-00-85 is classified "Open--Unacceptable Response."

Letter Mail Controlled 11/14/2000 4:39:44 PM MC# 2001688 The FAA agrees with the intent of this safety recommendation. On October 30, 1998, the FAA issued Advisory Circular (AC) 120-51C, Crew Resource Management Training, which states that flight attendants should conduct crew resource management training with flightcrews, including shared issues like evacuations and ditching. In addition, the FAA issued Flight Standards Information Bulletin for Air Transportation 95-05, Emergency Evacuation and Ditching Drills, on February 12, 1994.

The bulletin directed POI's to ensure that their assigned certificate holders are aware of the performance benefits that result when flightcrews and flighrt attendants perform emergency evacuation and ditching drills together. I have enclosed a copy of the AC and a copy of the bulletin for the Board's information. The FAA will reiterate the information contained in Flight Standards Information Bulletin for Air Transportation 95-05 in a flight standards handbook bulletin for air transportation. It is anticipated that the bulletin will be issued by December 2000. I will provide the Board with a copy of the bulletin as soon as it is issued.