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proposed by Boeing—known as Level B training—for 737 MAX pilots who were
already qualified to fly the Boeing 737-800. This outcome aligned with Boeing’s
overarching goal of achieving a common type rating
20
for pilots moving from the
NG series to the MAX and keeping costs down by avoiding simulator training for
MAX pilots. Pilot response to automated MCAS activation was not included in the
required training. In March 2017, FAA issued an ATC to Boeing for the 737 MAX
8, which began flying passengers later that year.
Summary of Events Between the Lion Air and Ethiopian Airlines Crashes
On October 29, 2018, Lion Air Flight 610 crashed, resulting in 189 fatalities.
According to the accident report, MCAS activated based on erroneous AOA data
more than 20 times, automatically pushing down the aircraft’s nose, before the
flight crew lost control. According to Boeing, while its engineers and test pilots
had anticipated multiple MCAS activations to be possible, they decided it would
be no worse than a single activation because pilots would be able to recognize
and counteract any downward movement of the aircraft’s nose. On November 6,
2018, Boeing generated a bulletin
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to operators, prompting FAA to issue an
Emergency Airworthiness Directive (AD) the next day. Although the bulletin and
the Emergency AD emphasized pilot procedures for handling repeated nose-
down movements, neither specifically mentioned MCAS. At this time FAA also
began reviewing the MCAS certification process. This was the first time that FAA’s
certification engineers had performed a detailed review of MCAS, and according
to several FAA certification engineers, it was also the first time they were
presented with a full picture of how MCAS worked. As a result of FAA’s risk
analysis following the crash, Boeing proposed, and FAA accepted, a redesign of
MCAS. In February 2019, FAA and Boeing formally agreed on a schedule to
implement the recommended MCAS software fix. Based on FAA’s risk analysis
and existing risk guidelines, Boeing was to complete the software update by April
12, 2019. On March 10, 2019, Ethiopian Air Flight 302, operating a 737 MAX 8
aircraft, crashed shortly after departing Addis Ababa Bole International Airport,
resulting in 157 fatalities, including 8 Americans. The interim accident report
shows that MCAS activated based on erroneous AOA data before the crew lost
control.
Summary of Concurrent FAA ODA Oversight Actions and Events
During the same time period as FAA’s certification efforts, Boeing, FAA, and our
office were identifying issues that—although not specific to the 737 MAX 8—may
have impacted the original certification of the aircraft. More specifically, in 2015,
we reported on FAA’s lack of a risk-based oversight approach to ODA. In
20
A type rating is an endorsement on the pilot certificate indicating that the pilot has completed the required training
and testing for a specific make, type, and/or series of aircraft (for example Boeing 747-400).
21
Flight Crew Operations Manual (FCOM) Bulletin TBC-19, dated November 6, 2018.