Safety Recommendation A-10-113

-From Bryan Bedford, Administrator: The Federal Aviation Administration (FAA) published change 1 to Advisory Circular (AC) 25-7D, Flight Test Guide for Certification of Transport Category Airplanes, on September 16, 2025. Change 1 to the AC improves the clarity and consistency of compliance demonstrations by stipulating that aircraft manufacturers should assess how airplane handling characteristics in crosswind conditions are affected by gusts when determining and specifying the maximum demonstrated crosswind.

The AC is available at the following website: https://drs.faa.gov/browse/excelExternalWindow/DRSDOCID117991715620250919115039.0001

I believe the FAA has effectively addressed these safety recommendations and consider our actions complete.

We continue to believe that finalizing the guidance that was proposed in draft Advisory Circular (AC) 25-7D Change 1, “Flight Test Guide for Certification of Transport Category Airplanes,” which was published on July 7, 2023, would constitute an acceptable alternate solution to these recommendations because it would result in airplane manufacturers publishing more accurate crosswind values that account for gusts. However, because these recommendations are almost 14 years old, we urge you to not delay publishing this guidance, which you reported will be published by the end of this year.

Pending our review of the final AC, Safety Recommendations A 10-112 and -113 remain classified OPEN-- ACCEPTABLE ALTERNATE RESPONSE.

-From Kathryn B. Thomson, Deputy Administrator: The Federal Aviation Administration (FAA) released Draft Advisory Circular (AC) 25-7D, Change 1, Flight Test Guide for Certification of Transport Category Airplanes, for public comment on July 7, 2023, with the comment period closing on August 7, 2023. We anticipate publishing the final AC by December 29, 2024. The draft AC is available at the following website:

https://www.faa.gov/aircraft/draft_docs/ac/25_7D

The proposed changes to the AC will improve the clarity and consistency of compliance demonstrations by stipulating that aircraft manufacturers should assess how, when specifying the maximum demonstrated crosswind, gusts affect airplane handling characteristics in a crosswind.

I will keep the Board informed of the FAA’s progress on Safety Recommendations A-10-112 and -113 and anticipate providing an update by September 30, 2024.

We are aware that, on July 7, 2023, the FAA published draft Advisory Circular (AC) 25-7D Change 1, “Flight Test Guide for Certification of Transport Category Airplanes,” which specifies that airplane manufacturers should assess how airplane-handling characteristics in crosswind are affected by gusts when determining the maximum demonstrated crosswind and that the demonstrated value should either state “gust included” or be expressed as “average XX kt with gusts up to XX kt.”

We believe including the draft guidance in the final AC would constitute an acceptable alternate solution to these recommendations because it would result in airplane manufacturers publishing more accurate crosswind values that account for gusts. Therefore, pending our review of the final AC, Safety Recommendations A-10-112 and -113 are classified OPEN-- ACCEPTABLE ALTERNATE RESPONSE.

-From Billy Nolen, Acting Administrator: The Federal Aviation Administration (FAA) continues to update Advisory Circular (AC) 25-7D, Flight Test Guide for Certification of Transport Category Airplanes. We previously stated that these updates would be published as AC 25-7E; however, due to the limited updates to the document, it has been determined that the revision will be processed as AC 25-7D Change 1. Draft AC 25-7D Change 1 is currently scheduled to be released for public comment by April 30, 2023, which is delayed from its 2022 release date to provide additional time for internal coordination.

I will keep the Board informed of the FAA’s progress on Safety Recommendations A-10-112 and -113 and anticipate providing an update by January 31, 2024.

We note that you anticipated publishing Advisory Circular (AC) 25-7E, “Flight Test Guide for Certification of Transport Category Airplanes,” for public comment in the first half of calendar year 2022; however, your staff informed us that the AC has been delayed. We continue to believe that your planned revisions to the AC—specifying that aircraft manufacturers should assess how airplane handling characteristics in crosswind are affected by gusts when specifying the maximum demonstrated crosswind—may be an acceptable alternative that satisfies these recommendations. Accordingly, we urge you to take action.

Pending our review of the revised guidance, Safety Recommendations A-10-112 and -113 are classified OPEN--UNACCEPTABLE RESPONSE.

-From Steve Dickson, Administrator: As previously stated, the Federal Aviation Administration (FAA) plans to incorporate the recommendations from the Aviation Rulemaking Advisory Committee Flight Test Harmonization Working Group, proposing changes to guidance for crosswinds, into Advisory Circular (AC) 25-7D, “Flight Test Guide for Certification of Transport Category Airplanes.” These changes will improve the clarity and consistency of compliance demonstrations by stipulating that aircraft manufacturers should assess how airplane handling characteristics in crosswind are affected by gusts when specifying the maximum demonstrated crosswind.

In our previous response, we indicated our plans to release AC 25-7E for public comment by the end of September 2021. However, other safety priorities caused unexpected delays in the revision process. We now anticipate releasing AC 25-7E for public comment in the first half of 2022.

I will keep the Board informed of the FAA’s progress on addressing these recommendations and anticipate providing an update by February 28, 2023.

You reported that the next comprehensive revision of Advisory Circular (AC) 25-7, “Flight Test Guide for Certification of Transport Category Airplanes,” is still scheduled to be issued for public comment in June 2021. We note that this revision will incorporate additional guidance to improve the clarity and consistency of compliance demonstrations by specifying that airplane manufacturers must assess how gusts affect airplane handling in crosswinds, as recommended in the Flight Test Harmonization Working Group’s (FTHWG’s) final report, “Crosswind & Tailwind Recommendation Report.”

Although we remain concerned with the age of this recommendation, we understand that the FTHWG was assigned many competing tasks that delayed the completion of its final report. We continue to believe that appropriate revisions to AC 25-7 may be an acceptable alternative that satisfy these recommendations, and we understand that, because this AC addresses many topics, the next comprehensive revision will not be issued for comment until June 2021. Pending our review of the draft updated guidance, Safety Recommendations A 10 112 and -113 remain classified OPEN-- ACCEPTABLE ALTERNATE RESPONSE.

-From Steve Dickson, Administrator: The Federal Aviation Administration (FAA) plans to incorporate the recommendations of the Aviation Rulemaking Advisory Committee Flight Test Harmonization Working Group’s report proposing changes to guidance for crosswinds into Advisory Circular (AC) 25-7, Flight Test Guide for Certification of Transport Category Airplanes. The new guidance will specify that aircraft manufacturers should assess how airplane handling characteristics in crosswind are affected by gusts when specifying the maximum demonstrated crosswind. We anticipate a publish date of June 2021 for public comment of the updated guidance.

Subject to FAA priorities and availability of resources in dispositioning public comments, we anticipate the publication of revised AC 25-7 in the fourth quarter of calendar year 2021 or early calendar year 2022.

I will keep the Board informed of the FAA’s progress on these safety recommendations and will provide an updated response by July 31, 2021.

You indicated that, on December 14, 2017, your Aviation Rulemaking Advisory Committee approved the Flight Test Harmonization Working Group’s (FTHWG’s) final report, “Crosswind & Tailwind Recommendation Report,” which proposed revisions to Advisory Circular (AC) 25-7, “Flight Test Guide for Certification of Transport Category Airplanes,” to improve the clarity and consistency of compliance demonstrations by specifying that airplane manufacturers must assess how gusts affect airplane handling in crosswinds. We note that you will now revise AC 25-7 as the group recommended.

Although we remain concerned with the age of this recommendation, we understand that the FTHWG was assigned many competing tasks, which delayed the completion of its final report. We continue to believe that appropriate revisions to AC 25-7 may be an acceptable alternative that satisfies these recommendations and we understand that, because this AC addresses many topics, the next comprehensive revision will not be issued for comment until June 2021. Pending our review of the draft updated guidance, Safety Recommendations A 10 112 and -113 remain classified OPEN--ACCEPTABLE ALTERNATE RESPONSE.

-From Daniel K. Elwell, Acting Administrator: As stated in our November 1, 2017, letter the Aviation Rulemaking Advisory Committee (ARAC) Flight Test Harmonization Working Group (FTHWG) released a draft Crosswind & Tailwind Recommendation Report that proposes revisions to Advisory Circular (AC) 25-7, Flight Test Guide for Certification of Transport Category Airplanes, but does not recommend changes to the existing regulations for crosswind demonstration. The ARAC approved the FTHWG final report at its December 14, 2017, meeting. The Federal Aviation Administration will incorporate the report's recommendations into the AC guidance for crosswinds.

This new guidance will specify that aircraft manufacturers should assess how airplane handling characteristics in a crosswind are affected by gusts when specifying the maximum demonstrated crosswind. We currently plan to publish the updated guidance for public comment by June 2021.

I will keep the Board informed of our progress on A-10-112 and A-10-113 and will provide an updated response by December 2019.

We note that, on January 19, 2017, your Aviation Rulemaking Advisory Committee Flight Test Harmonization Working Group (FTHWG) completed its evaluation of tailwind/crosswind issues and released a draft “Crosswind & Tailwind Recommendation Report.” In the report, the FTHWG determined that existing rules governing crosswind demonstration should remain unchanged and are sufficient to account for gusting conditions.

The FTHWG did, however, recommended that Advisory Circular (AC) 25-7C, “Flight Test Guide for Certification of Transport Category Airplanes,” be revised to improve the clarity and consistency of compliance demonstrations by specifying that airplane manufacturers must assess how gusts affect airplane handling in crosswinds. Finally, we note that, after the FTHWG approves its final report, you plan to revise AC 25-7C as the group recommends.

We have been concerned by the lack of action in regard to Safety Recommendations A 10 112 and -113 for many years. We are pleased to see progress toward addressing these recommendations, and we believe that appropriate revisions to the AC may be an acceptable alternative that satisfies them; however, we will need to review the specific changes before making a final determination. Pending revisions to the AC that satisfy Safety Recommendations A 10 112 and 113, they are classified OPEN--ACCEPTABLE ALTERNATE RESPONSE.

-Michael P. Huerta, Administrator: -Michael P. Huerta, Administrator: The Aviation Rulemaking Advisory Committee (ARAC) Flight Test Harmonization Working Group (FTHWG) completed its evaluation of tailwind /crosswind issues and released a draft "Crosswind & Tailwind Recommendation Report" on January 19, 2017.

The FTHWG determined existing rules governing crosswind demonstration should remain unchanged and are sufficient to account for gusting conditions. The FTHWG recommends revising Advisory Circular (AC) 25-7C, Flight Test Guide for Certification of Transport Category Airplanes, to improve clarity and consistency regarding compliance demonstration for crosswind, by specifying that airplane manufacturers need to assess how airplane handling characteristics in crosswind are affected by gusts when documenting the maximum demonstrated crosswind. The Federal Aviation Administration (FAA) expects to receive an approved final report from the FTHWG in late 2017.

Upon receipt of the approved report, the FAA will revise AC 25-7C, or the current version, accordingly.

I will keep the Board informed of the FAA' s progress on these recommendations and provide an update by September 2018.

We understand that the Aviation Rulemaking Advisory Committee, Flight Test Harmonization Working Group (FTHWG), is assigned many competing tasks, which must be prioritized based on the relative safety benefit of each task. We are concerned, however, that these recommendations are almost 6 years old with no confirmation that you will take the recommended action. We point out that the scope of the airplane manufacturers’ crosswind guidelines, which have been provided to operators since before this recommendation was issued, varies among manufacturers and that these guidelines do not, therefore, constitute an acceptable interim measure until the FAA acts as recommended.

Accordingly, pending our timely receipt and review of the development of gusting crosswind limitations of transport category airplanes and requirements for their use, Safety Recommendations A-10-112 and -113 remain classified OPEN—UNACCEPTABLE RESPONSE.

-From Michael P. Huerta, Administrator: The Federal Aviation Administration (FAA) is cognizant of the Board's concern over the timeliness of implementing these recommendations. However, as previously stated, the Aviation Rulemaking Advisory Committee Flight Test Harmonization Working Group (FTHWG) adopted a risk-based prioritization schedule. The FTHWG remains on schedule to evaluate these recommendations beginning in May 2016. We continue to believe that the crosswind guidelines currently provided by airplane manufacturers, as noted in our response to Safety Recommendation A-14-114, are sufficient to mitigate the risk until the FTHWG is able to focus on this task.

I will keep the Board informed of the FAA's progress on this recommendation and provide an update by March 31, 2017.

We note that the Aviation Rulemaking Advisory Committee, Flight Test Harmonization Working Group (FTHWG) recently prioritized its tasks and determined that tailwind/crosswind issues, including the crosswind issue identified in these recommendations, would be postponed until 2016. We understand that the FTHWG is assigned many competing tasks, which must be prioritized based on the relative safety benefit of each task. However, we are concerned that these recommendations are almost 5 years old, and we still have received no confirmation that you will take the recommended action.

Accordingly, pending our timely receipt and review of the development of gusting crosswind limitations of transport category airplanes and requirements for their use, Safety Recommendations A-10-112 and -113 are classified OPEN—UNACCEPTABLE RESPONSE.

-From Michael P. Huerta, Administrator: As mentioned in our May 30, 20 13, letter, the Federal Aviation Administration (FAA) has referred work supporting Safety Recommendations A-10-112 and -113 to the FAA Aviation Rulemaking Committee, Flight Test Harmonization Working Group (FTHWG). The FTHWG recently completed a task prioritization exercise. In prioritizing the 30 tasks it was given, the FTHWG had to consider the relative safety benefit of each task.

The benefit assessment considered the direct effect of development of new or improved guidance material where none presently exists, and also considered the indirect effect of rulemaking programs whose completion will allow the FAA to devote more resources to continued operational safety. According to this prioritization, tailwind/crosswind issues, including the crosswind issue identified in these recommendations, will be addressed beginning in 2016.

We are encouraged that the FAA evaluated a representative sample of airline crosswind policy and procedural information to determine whether an Airplane Flight Manual limitation and standardized mean/gust crosswind policy would be feasible and appropriate and that, because of the variability found in the sample reviewed, the FAA is referring the issue to its Aviation Rulemaking Advisory Committee (ARAC) Flight Test Harmonization Working Group. We emphasize, however, that the purpose of these recommendations is to include information on gusting crosswind limitations of transport category airplanes.

Pending the development of such limitations and requirements for their use, Safety Recommendations A-10-112 and -113 remain classified OPEN—ACCEPTABLE RESPONSE.

-From Michael P. Huerta, Administrator: As mentioned in our letter dated November 21,2011, the Federal Aviation Administration (fAA) collected a representative sample of airline crosswind policy and procedural information. We evaluated the information to determine whether an ..AJrplane Flight Manual limitation and standardized mean/gust crosswind policy would be feasible and appropriate. Due to the variability in the responses we received, we determined that additional consideration is required. We are referring the issue to the FAA Aviation Rulemaking Advisory Committee (ARAC) Flight Test Harmonization Working Group.

The FAA ARAC Flight Test Harmonization Working Group began work on these issues in May 2013. The ARAC group is addressing flight test methods used to determine maximum tailwind and crosswind capability. Also, crosswind testing will be exanuned to better define intended operational use of demonstrated maximum steady and gusting crosswind performance. The first phase, prioritization of tasks, is scheduled for completion by the end of2013. The prioritized list of tasks will help to define the follow-on schedule.

To address A-10-114, airplane manufacturers have provided crosswind guidelines to operators. The scope of the guidelines varies among manufacturers. We intend to assess this variabiiity when evaluating the feasibility of introducing standardized mean/gust crosswind policy, and will also ask the ARAC Flight Test Harmonization Working Group for recommendations regarding the variability.

I will keep the board informed of the FAA's progress on these safety recommendations and provide an updated response by April 30, 2014.

The FAA reported that it is collecting and will analyze a representative sample of airline crosswind policies and procedural information. We appreciate having this new information. Accordingly, pending the FAA’s completing this effort, developing a methodology to determine maximum-gusting-crosswind limitations, and requiring use of the methodology, Safety Recommendations A-10-112 and -113 remain classified OPEN—ACCEPTABLE RESPONSE.

The FAA indicated that it is investigating the issues raised in Safety Recommendations A-10-112 through -114 and is considering the feasibility of using an Airplane Flight Manual limitation and standardized mean/gust crosswind values to address these recommendations. Pending the FAA’s developing a methodology to determine maximum-gusting-crosswind limitations and requiring its use, Safety Recommendations A-10-112 through -114 are classified OPEN—ACCEPTABLE RESPONSE.

-From J. Randolph Babbitt, Administrator: The Federal Aviation Administration (FAA) is collecting a representative sample of airline crosswind policy and procedural information. We expect to have initial inputs by December 20 II. Once collected, we will analyze the information and determine whether an Airplane Flight Manual limitation and standardized mean/gust crosswind policy would be feasible and appropriate. If, as a result of this information collection, additional actions are justified, we expect to begin discussions with industry by December 2011 and complete discussions by December 2012.

CC#201000393: - From J. Randolph Babbitt, Administrator: The FAA is investigating these issues to determine whether an Airplane Flight Manual limitation and standardized mean/gust crosswind values, for use by airline operators, would be feasible and appropriate.