22 CM Module 2 Planning, Construction & Environmental PDF

Certified Member (C.M.) PLANNING, CONSTRUCTION & ENVIRONMENTAL MODULE 2 Certified Member 2022 SEVENTH EDITION @All Rights Reserved © 2022 American Association of Airport Executives By Jeffrey C. Price, C.M., and Dr. Jeffrey S. Forrest - Leading Edge Strategies. Jeffrey Price and Jeffrey Forrest are Professors of Aviation and Aerospace Science at Metropolitan State University of Denver. Stephen M. Quilty, A.A.E., wrote the original version of the modules with periodic updates by the AAAE Board of Examiners, AAAE staff and industry experts. 2 / American Association of Airport Executives Module 2 AAAE C.M. Body of Knowledge Modules Module 2 Planning, Construction & Environmental AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 3 Certified Member TABLE OF CONTENTS Module Objectives............................................................................................................................................... 5 Airport Planning................................................................................................................................................... 6 The Airport Layout Plan (ALP)......................................................................................................................... 7 The Airport Master Record (e.g., the 5010 Form)........................................................................................10 Aviation System Planning..............................................................................................................................11 Airport Master Plans..........................................................................................................................................15 The Airport Master Plan Process...................................................................................................................16 The Master Plan Study Process.....................................................................................................................22 Airfield Design and Construction.......................................................................................................................32 Airside Development Considerations............................................................................................................33 Runway Design.............................................................................................................................................. 35 Taxiway and Apron Design............................................................................................................................44 Other Landing Facilities or Airport Uses.......................................................................................................52 Airport Construction Contract Management, and Operations.....................................................................52 Imaginary Surfaces........................................................................................................................................57 Airport Terminal Design, Location and the Passenger Experience....................................................................62 Introduction................................................................................................................................................... 62 Commercial Service Airport Terminal Design................................................................................................63 Terminal Design and Configuration...............................................................................................................78 Airport Design and The Passenger Experience.............................................................................................82 Airport Environmental Requirements and Processes........................................................................................90 Introduction................................................................................................................................................... 90 Aviation’s Impact on the Environment.........................................................................................................91 The Environmental Process when Conducting a Federal Action..................................................................91 The Environmental Impact Categories..........................................................................................................96 Environmental Responsibilities Related to Airport Operational Activities.................................................102 Building Environmental Sustainability........................................................................................................109 Summary.......................................................................................................................................................... 112 Acronyms......................................................................................................................................................... 113 Additional References......................................................................................................................................117 4 / American Association of Airport Executives Module 2 Module Objectives Your objectives in reading this material are as follows: Objective 1: Describe the types of plans and planning processes that affect a public-use airport. Objective 2: Describe the purpose of the Airport Master Plan and the steps in the process. Objective 3: Describe the basic elements of airfield design, including runway, taxiway and apron design; the design of other landing facilities; airspace protection; and airport construction. Objective 4: Describe the various types of airport terminal design considerations, including terminal layouts and design features. Objective 5: Describe the environmental requirements and processes associated with operating a public-use airport. Introduction to Module 2 “A mile of runway can take you anywhere.” — Living in the Age of Airplanes The runway is indeed a pathway to the world. An airport runway allows a local community to access the entire planet’s resources and takes people from virtually anywhere on the globe to just about anywhere else in a matter of hours. Runways are lifelines to communities in times of disaster and economic lifelines to communities at all times. Planning a runway also must include the planning and construction of taxiways to serve the runway, apron areas upon which to park aircraft, and terminal buildings to shelter passengers and provide them access to the aircraft. Runways provide revenue for the airport. And the airport requires administrative and support facilities to keep the entire operation running, day or night, 24/7, 365 days a year. Proper runway planning and design begins with proper airport planning, design and construction. Module 2: Airport Planning, Design and Environmental addresses the fundamentals of how airports are planned and constructed, focusing on runway design, terminal design, and the environmental requirements of airport projects. Airport planning occurs at the federal, state, regional and local levels. Planning is a public process involving a variety of elements: Identify the future demand of the aviation and airport system. Identify the future needs of the airport. Identify noise abatement issues in the surrounding areas. Identify and accommodate changes to the National Airspace System (NAS). Identify improvements to construct or expand to meet each of these aforementioned needs. Airports play many roles in a community and the nation, so there are numerous audiences to consider. Airports also impact neighboring communities, so any planning of a large-scale process should include a significant effort toward public involvement. Numerous regulations on federal, state and local levels govern facilities’ environmental impact, so the airport appropriately AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 5 Certified Member must follow environmental processes to reduce the long- term impacts of airport processes and reduce the expenses associated with using non- renewable energy sources. Airport Planning Objective 1 Describe the types of plans and planning processes that affect a public-use airport. Why is This Important Dwight D. Eisenhower has been quoted as saying: “In preparing for battle, I have always found that plans are useless, but planning is indispensable.” Another famous military saying is, “No plan survives first contact with the enemy,” so it begs the question: why should we even plan? Not to plan for an airport’s future needs and the community it serves would be just as ridiculous as a pilot not having a flight plan. The true benefits are what is learned during the process of constructing a plan. A plan establishes a goal; it provides an outline and a starting point for allocating resources. Plans get everyone on the same page and simplify decision- making. For a critical community asset such as an airport, its future development and ability to serve the community and the NAS at-large often rests on careful planning. Introduction Airport planning is performed at the national, state, regional, local government and industry levels. It involves several factors, including the availability of funds, the airport’s role within the national airport system, whether the airport is part of a formal regional system of airports, and the local community’s needs and desires. The federal plan for airports, the National Plan of Integrated Airport Systems (NPIAS), provides the federal government’s perspective on each public-use airport’s role in the national air transportation system. However, the NPIAS only addresses the development and planning projects eligible for federal funding through the Airport Improvement Program (AIP). Not all states participate in regional planning. State aviation system plans provide more detailed guidance on how the state’s airports can be developed to meet the state’s aviation needs better. State system plans allow planners to maximize the return on the investment of public and airport funds and identify which capital development needs would best meet the state’s aviation needs (Prather, 2015, p. 159). Metropolitan (or Regional) aviation system plans are more specific and narrower in focus than a state or regional plan. They often consider airport capacity, intermodal access, and the type of traveler within the community. Metropolitan plans more effectively can address areas with more specific needs to provide better options for the community. Planning at the airport level is performed through the Airport Master Plan. The master plan is a 20-year look into the future development of the airport, which informs the FAA’s Airport Capital Improvement Plan (ACIP), and the airport’s local capital improvement plan. The planning function is a critical component of airport management. Large sums of money are involved, and long-term binding agreements and large parcels of land often are affected during the planning process. Once an improvement is constructed, it also must be maintained, making the planning process an integral part of the entire airport system. Plans, once implemented, affect the airport’s revenue and expenses and may impact air carriers, tenants, vendors and the 6 / American Association of Airport Executives Module 2 community. The planning process comprises several elements, including federal, state, regional and local airport plans. The Airport Layout Plan (ALP) Grant Assurance #29 Airport Layout Plan requires that the airport sponsor keep the Airport Layout Plan (ALP) updated at all times (FAA, 2009, p. 7-17). ALPs are drawings used to graphically depict current and future airport facilities. ALP standards are in Advisory Circular 150/5070-6B, Airport Master Plans, and in the FAA’s Standard Operating Procedure 2.0 Standard Procedure for FAA Review and Approval of Airport Layout Plans (ALPs), dated October 1, 2013. The ALP is a graphical representation of the existing and proposed airport land, terminal, other facilities and structures owned by the airport, protection zones and approach areas. The ALP also features a narrative that includes essential aeronautical forecasts, the rationale for proposed developments, the rationale for unusual design features or modifications to FAA Airport Design Standards, and environmental features that might affect airport operations. The ALP includes features necessary for future airport development or expansion, a summary of the various stages of airport development, and layout sketches of the important development items. A standard ALP typically includes a narrative and the following sketches: Cover Sheet. The Airport Layout Drawing (known as the ALP sheet or the ALP drawing sheet). The Airport Airspace Drawing. The Inner Portion of the Approach Surface Drawing. The Terminal Area Drawing (or Plan). The Land Use Drawing. The Runway Departure Surfaces Drawing. The Airport Property Map (usually referred to as Exhibit A). Additional elements also can include a Data Sheet, a Facilities Layout Plan, Utility Drawings, Noise Abatement maps, and Airport Access Plans. The ALP also identifies facilities that no longer are needed and includes a plan for their removal. The ALP is approved and signed by the FAA, thereby becoming a legal document. All development carried out on federally obligated airports must be accomplished per an FAA- approved ALP. FAA Order 5100.38, Airport Improvement Program Handbook, provides supplemental guidance for the preparation of an ALP. The FAA’s approval of the ALP signifies FAA concurrence in the plan’s conformity to all applicable airport design standards and criteria. It also reflects the agreement between the FAA and the airport sponsor regarding the proposed allocation of airport areas to specific operational and support functions. However, it does not represent FAA release of any federal obligations attached to the land or properties in question. It does not constitute FAA approval to use the land for non-aeronautical purposes, as this requires separate approval from the FAA regional division. If the Airport Sponsor changes the airport or its facilities, and those changes are not reflected in the ALP, and the FAA determines the change will adversely affect the safety, utility, or efficiency of any federally owned or leased or funded property on or off the airport, the FAA may require the airport to eliminate the adverse effect or bear the cost of rectifying the situation. The five primary functions of the ALP are: 1. It is an FAA-approved plan necessary for the airport to receive AIP funding and to continue to receive PFC AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 7 Certified Member 2. 3. 4. 5. funding. It is a blueprint for airport development. It is a public document that serves as a record of aeronautical requirements and is available for community reference. It enables the FAA and the airport sponsor to plan for improvements. It is a working tool for airport staff, including operations and maintenance personnel. ALPs should be reviewed and validated every two to seven years, depending on the airport’s size and the extent of changes to improvements and actual operations, compared with forecasted operations. Routine ALP updates, commonly called “pen and ink,” changes occur as facilities change over time. However, in some circumstances the FAA may desire or encourage an ALP Update Study, which is essentially a smaller version of the Master Plan update study. Generally, an ALP update may be necessary when the existing projects in the ALP or facilities at the airport cannot accommodate the forecasted aeronautical needs, or the existing facilities do not meet airport design standards (FAA airport design standards change over time, so it is possible that an airport can be out of compliance with design standards simply by doing nothing). ALP updates also should be considered when there have been many physical changes to the airport, numerous pen-andink1 changes to the existing ALP, or when the Airport Capital Improvement Plan (ACIP) needs an update. The FAA directs its Airports District Office (ADO) staff to show leadership concerning the ALP and provide guidance to airport sponsors when an ALP is due for an update. The ALP should reflect any changes that may affect the navigable airspace or the airport’s ability to expand, including the airport’s physical features and the critical land uses in and around the vicinity of the airport. FAR Part 157, Notice of Construction, Alteration, Activation, and Deactivation of Airports, requires airport owners and operators to notify the FAA 30 days in advance of any construction, alteration, deactivation, or changes in the use of any airport. Notification of construction or alteration on an airport is provided on FAA Standard Form SF-7460-1 — Notice of Proposed Construction or Alteration. Notification of the activation or alteration of a landing area is provided on FAA Standard Form SF-7480-1 — Notice of Landing Area Proposal. For a new airport site or location, the initial investigation is the airport sponsor’s responsibility, not the FAA’s. Grant Assurances specifically require airport management to keep the following items up to date: Property lines. The location and nature of all existing and proposed facilities and structures (i.e., runways, taxiways, aprons, terminal buildings, parking lots, hangars, cargo areas, navigational aids, obstructions and roads). The location of all existing and proposed non-aviation areas and improvements (i.e., parking lots, ground access roads, and water retention ponds). Both the ALP narrative report and the drawings are public documents that reflect the airport’s aeronautical requirements, both present and future. They are references for community deliberations on land-use proposals, as well as budget and resource planning. ALP drawings typically are produced with computer-aided design software, and many include software that links the features on the map with Geographic Information Systems (GIS). The FAA and airports have an option to use 1 The ADO can make a pen-and-ink change for construction minor in scope (i.e., a new t-hangar was erected). 8 / American Association of Airport Executives Module 2 an electronic ALP web-based system, known as eALP, which allows airport executives to share accurate airport data in an integrated environment (Prather, 2016, p. 171). Airport Layout Plan Contents The cover sheet includes approval signature blocks, airport location maps, and other data required by the FAA. The ALP sheet contains a tremendous amount of data, including existing and future airfield layout (runways, taxiways, taxilanes, ramp areas), facilities, lines depicting runway safety areas, object free areas, obstacle free zones, runway protection zones, the airport property lines, the building restrictions line, the runway visibility line, and the locations of the tower and other facilities (ARFF stations, etc.). The data sheet contains airport and runway data tables and wind rose. A wind rose is a diagram showing the percentage of time the wind blows from a particular direction at a particular speed. Runways normally are aligned with the prevailing winds. Crosswind (winds coming from a direction other than the runway heading) runways are built to accommodate smaller aircraft that are more susceptible to crosswind effects than larger ones. Information on historic wind data can be obtained from the National Oceanic and Atmospheric Administration Climatic Data Center website. The facilities layout plan depicts existing and future facilities and, for larger airports, can go on for several pages. The facilities layout plan is essentially a closer look at the facilities located at the airport. The terminal area plan is provided to depict the airport terminal and its surrounding facilities. A structure’s height is usually noted along with any obstruction, marking or lighting. For small GA airports, a separate terminal drawing may not be necessary if adequate detail is available on the airport layout drawing. The terminal drawing further shows the ground access to the airport terminal area, along with the major highway routes from the airport toward a central business district, other points of destination, or key arterial systems. If applicable, other modes of access, such as rail or water, also are shown. The airport airspace drawings are required elements and are intended to show all imaginary surfaces identified in FAR Part 77, Safe, Efficient Use and Preservation of the Navigable Airspace. The inner portions of the approach surface drawing are required elements and include a profile view that presents all runway approaches and the location of objects as they affect the approach. The profiles show the existing and planned runway length. Obstruction data tables and charts also are included on the airspace drawing that provide information about the disposition of the obstruction — proposed removal, lighting, marking, etc. The inner approach drawing also may depict other approach surfaces, including the thresholdsiting surface and those surfaces associated with the U.S. Standard for Terminal Instrument Procedures (TERPS). The on-airport and off-airport land use drawings depict existing and recommended uses of all land within the ultimate airport property line and within the vicinity of the airport, at least to the 65 DNL noise contour. The purpose of the drawing is to provide airport management with a plan for leasing revenue-producing areas on the airport and to provide guidance on determining allowable compatible uses such as farming, recreational, commercial or industrial. The drawing also provides guidance to local planning commissions for the establishment of appropriate airport-area zoning. The airport property map is a drawing that depicts how various tracts of land were acquired. It includes easements outside the airport property line. The purpose of the property map, often termed “Exhibit A” on AIP grant applications, is to identify the legal interest and ownership of land that makes up the airport. The map assists the FAA in determining and analyzing the current and future use of land acquired with federal funds. The property map and the ALP are required to be current at all times and are submitted as part of any AIP grant application. The runway departure surface drawing depicts applicable departure surfaces. AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 9 Certified Member The utility drawing depicts the location and capacity of all utilities on and around the airport. The airport access plans depict major routes and modes of transportation that serve the airport. These plans normally are used if access to the airport is a significant issue. ALP Approval: Safe, Useful, and Efficient ALPs must be submitted to the FAA Airports District Office or Regional Airports Division for approval. The FAA approves ALPs to ensure that all existing and proposed airport developments shown on the plan will be safe, useful and efficient. Safe means the airport meets design standards or modified design standards and provides for the safe operation of aircraft; useful is in relation to airport purposes (i.e., to make the best use of airport land while minimizing the impact of off-airport structures); efficient means that planned capacity is sufficient for forecast demand (i.e., efficient flow of traffic with minimal delays, adequate runway spacing to allow for simultaneous instrument approaches, etc.) (FAA, 2009, p. 230). The FAA also provides for three levels of approval: unconditional, conditional and mixed. “Unconditional Approval” means all items of proposed development requiring environmental processing have received environmental approval. “Conditional Approval” means environmental processing has not been completed for all of the items of proposed development requiring it (FAA, 2009, p. 247). “Mixed Approval” means that some near-term projects depicted in the ALP have completed the required National Environmental Policy Act (NEPA) reviews, while long-term projects have not. In a Mixed Approval, those elements that unconditionally are approved can be implemented, but elements (e.g., developments) not covered by the NEPA document are only “conditionally approved.” The airport cannot move forward until the required NEPA processes are completed (FAA, 2013, p. 3). The FAA defines “near-term” as a project that is “ripe for decision” as opposed to “long- term,” which is a project that is “not ripe for decision.” The FAA provides little guidance on its meaning of the term “ripe2,” which typically will leave the final decision in the hands of the ADO (FAA, 2013, p. 3-3). The Airport Master Record (e.g., the 5010 Form) The FAA’s Airport Data and Information Program guides airport sponsors on the collection, submission and management of airport data and information, which ensures airport users have the most current information available on the status of the airport and the NAS. The program ensures other airport operators, aircraft operators, and air traffic control also are provided with this information. This type of communication is achieved through the Airport Master Record3, which describes the airport’s primary operational and services data. The regulatory responsibility to keep the FAA abreast of such changes is embodied in Title 14 CFR Part 157 Notice of Construction, Alteration, Activation, and Deactivation of Airports. Part 157 requires airport operators to keep the FAA informed of construction on (or alterations to) their airport. Airport operators must complete the Airport Master Record on an annual basis via the Airport Master Record 5010 Form. The FAA, in turn, uses this information to update aeronautical charts and the Chart Supplements (i.e., formerly the Airport 2 Unfortunately, the FAA does not define the word “ripe.” Of the several standard dictionary definitions of the word ripe, the term “arrived at the fitting stage or time for (a particular action or purpose)” would seem to be the most likely definition. There is certainly room for discretion on both the FAA and the airport operator in determining what is ripe for a decision or development. 3 Also known as the Airport Data Record or the “5010” form. 10 / American Association of Airport Executives Module 2 Facility Directory (A/FD)), which pilots use as a reference when flying to or from an airport. Under FAR Part 91.103, a pilotin-command must become familiar with (among other items) all available information concerning that flight, including the runway lengths at airports of intended use, airport elevation and runway slope. The Chart Supplements is the link between the airport operator’s actions and the condition of the airport (obstructions, navigational aid information, runway characteristics, ALP updates, etc.) and the flying community. The Remarks section allows the airport to communicate to pilots very important and critical information specifically relevant to the airport. Part 157 requires the FAA to be notified via Form 7460 Notice of Proposed Construction or Alteration whenever there is a proposed development. Once construction is complete, the airport operator includes the new development information on their 5010 Form. The 5010 includes information on the airfield (runway length, width, strength), approach lighting and airfield lighting configuration, enplanements, aircraft operations (including type, such as charter, military, GA, commercial), the owner/operator of the facility, obstructions, and other critical information. It is essential to understand how the 5010 Form relates to the information pilots use before and during their flight. It is crucial to have a general understanding of how flight operations work overall. Changes to the airport that result in a Notice to Air Missions (NOTAM) that may become permanent, such as an obstruction constructed within the calendar year that affects the imaginary surfaces or approach path, can be listed in the 5010 and the NOTAM canceled. The 5010 Form also should be filled out when there are significant changes to the landing areas or instrument approaches to the airport. Individuals can find detailed information on the reporting program’s requirements in AC 150/5300-19, Airport Data and Information Program. Aviation System Planning Aviation system plans identify the aviation facilities required to meet each planning level’s needs (federal, state or local/ regional). They are formulated based on overall transportation demands and coordinated with other transportation planning and comprehensive land-use organizations. In the U.S., airport planning is performed at several levels: The National Plan of Integrated Airport Systems (NPIAS) is a five-year plan updated and published by the FAA every two years. The NPIAS lists public-use airports and identifies improvements that are eligible for federal financial planning and development assistance (e.g., development projects, specific equipment and planning projects) on airports that are considered to be in the national interest. Statewide integrated airport systems planning identifies the general location and characteristics of new airports and the general expansion needs of existing facilities to meet statewide air transportation goals. This planning is performed or sponsored by state transportation or aviation planning agencies. Regional/metropolitan integrated airport systems planning identifies airport needs for large regional/ metropolitan areas. Needs are stated in general terms and are incorporated into statewide system plans. Regional/metropolitan planning agencies do this planning. Airport Master Plans are prepared by the owner/operators of individual airports, usually with consultants’ assistance. They detail the specific, long-range plans of the individual airport within the framework of statewide and regional/metropolitan system plans. These plans identify individual airport development needs based on forecasts of aviation activity, the potential environmental effects, community compatibility and financial feasibility. The fundamental guiding principle of the planning process is developing a safe and efficient airport system using uniform AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 11 Certified Member design and operational standards. National Plan of Integrated Airport Systems (NPIAS) In Module 1, we discussed the FAA’s metrics in the NPIAS to categorize airports and measure airport activity (enplanements, operations, cargo, etc.). This section addresses the NPIAS from the perspective of the federal airport planning process. Title 14 CFR Part 151, Federal Aid to Airports, addresses the requirements of the National Airport Plan (now the NPIAS) and the processes to apply for, receive and implement the funds from an FAA grant. Title 14 CFR Part 152, Airport Aid Program was developed after the Airport and Airway Development Act of 1970 and further expanded Part 151. The NPIAS identifies roughly 3,300 public-use airports important to national air transportation that are eligible to receive grants under the FAA Airport Improvement Program (AIP). The NPIAS includes estimates of the amount of AIP funding needed to fund infrastructure development projects that will bring the design of these airports up to current standards and add capacity to congested airports. However, the listing of any location, airport or development item does not obligate the federal government legally to provide funds or imply such projects’ environmental approval. Further, the NPIAS is not really a plan, as it does not include a timetable for development, assign priorities, or propose funding levels. The NPIAS list of airport projects eligible for AIP funding and their estimated costs are collected from airport master plans and state aviation system plans. These plans usually are funded in part by the FAA, are consistent with FAA forecasts of aeronautical activity, follow FAA guidelines, and have been reviewed and accepted by FAA planners familiar with local conditions. Efforts are made to obtain realistic estimates of development needs that coincide with local and state capital improvement plans. The guiding principles of federal involvement in airports have remained unchanged since the Federal Airport Act of 1946. To meet the demand for air transportation, the airport system should adhere to the following guidelines: Airports should be safe and efficient, located at optimum sites, and developed and maintained to appropriate standards. Airports should be affordable to both users and the government, relying primarily on user fees and placing minimal burden on the general revenues of local, state and federal governments. Airports should be flexible, expandable, and able to meet increased demand and to accommodate new aircraft types. Airports should be permanent, with the assurance that they will remain open for aeronautical use over the long term. Airports should be compatible with surrounding communities, maintaining a balance between the needs of aviation and the requirements of residents of neighboring areas. Airports should be developed in concert with improvements to the air traffic control system. The airport system should support national objectives for defense, emergency readiness and postal delivery. The airport system should be extensive, providing as many people as possible with convenient access to air transportation, defined on average as not more than 20 miles travel to the nearest NPIAS airport. The airport system should help air transportation contribute to a productive national economy and international competitiveness. Deciding what projects go into the NPIAS is a function of: 12 / American Association of Airport Executives Module 2 Individual Airport Master Plans. The FAA Airport Capital Improvement Plan. The Airport Layout Plan. Aviation forecasts. Existing runway capacity, annual airport capacities. Airport dimensional standards (i.e., airport Design Guidance) related to each airport’s Design Aircraft. Other factors such as land acquisition, navigational aids and ramp space. Specific landside projects, such as projects at air carrier airports included as part of the airport master plan, also can be included in the NPIAS. The inventory of airport projects in the NPIAS is outlined in the Airport Capital Improvement Plan (ACIP), which is a subset of the NPIAS and highlights airport needs over a three-year funding cycle (Prather, 2016, p. 158). Projects listed in the NPIAS are categorized by the purpose of the development and the type of airport. The three general categories of work are: 1. Purpose (safety, rehabilitation, capacity, standards). 2. Physical Component (runway, taxiway, apron, equipment acquisition). 3. The Type of Work (construct, expand, improve). Examples of development include, but are not limited to, lighting, marking, pavement rehabilitation, runway and taxiway extension, and terminal rehabilitation or expansion. Other projects include noise mitigation, acquisition of Aircraft Rescue and Fire Fighting (ARFF) or snow removal equipment, landside access roadways, safety areas, and runway protection zones. State and Metropolitan Airport System Planning Airport system planning is a tool used by state and regional metropolitan planning agencies. System plans are designed to provide information and guidance on the extent, kind, location and timing for public airports to produce a viable, balanced and integrated air transportation system.4 Airport system planning provides local policymakers with detailed information to guide planning for comprehensive land use, ground transportation, and other metropolitan developmental activities. A Metropolitan (or Regional) Airport System Plan (MASP) or a State Aviation System Plan (SASP) recommends the general location and characteristics of new airports and the nature of development and expansion for existing airports. State and metropolitan plans attempt to assess and develop a plan to integrate better how the airports within a region or state form a connected transportation system. Effective plans take into account other forms of transportation, including heavy rail, roads, the various forms of public transportation, and, in some cases, maritime transportation and shipment. All state aviation agencies can initiate studies under the airport system planning process. In contrast, metropolitan and/or regional planning organizations’ role in the airport system planning process is determined by their legislative authority (FAA, 2015, p. 10-1). 4 Fritsch, B. (2009). Airport System Planning Practices. ACRP Synthesis 14. Retrieved October 11, 2009, http://onlinepubs.trb.org/onlinepubs/acrp/ acrp_syn_014.pdf. (p. 1). AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 13 Certified Member Airport system planning has four main elements: 1. System needs identification. 2. Systemwide development cost estimate. 3. Studies, surveys and other planning actions to decide which aeronautical needs should be met by the airport system. 4. Standards prescribed by a state (except standards for safety of approaches) for airport development at nonprimary public-use airports. The primary purpose of airport system planning is to study an entire aviation system’s SASP/MASP performance and interaction to understand the interrelationship of the member airports. An SASP/MASP identifies each airport’s principal role in the area and forecasts any proposed future activities. The plans outline the timing and estimated costs of projected developments at local airports, which are needed to meet the forecasted aeronautical demand for the area. State and metropolitan plans attempt to integrate local airport master plans, while harmonizing the political entities’ various policies and goals (towns, cities, etc.) within the plan area. Intermodal connections, land use and the urban environment are important considerations within a state or metropolitan system plan. SASP/MASP system planning is a process that allows public and political entities to provide input on the comprehensive planning efforts at the local, regional, state and national levels. Some SASP/MASP plans are eligible for FAA funding. The airport system planning process should be consistent with state or regional goals for transportation, land use and the environment, and generally includes: An exploration of issues that impact aviation in the study area. Inventory of the current system. Identification of air transportation needs. Forecast of system demand. Consideration of alternative airport systems. Definition of airport roles and policy strategies. Recommendation of system changes, funding strategies, and airport development. Preparation of an implementation plan. The final product should result in the identification, preservation and enhancement of the aviation system to meet the current and future demands of a state, regional or metropolitan area, which results in the establishment of a viable, balanced and integrated system of airports (FAA, 2015, p. 2). Airport system planning is distinguished from other types of community plans in that the scope of a system plan is typically larger in terms of geography. Also, the planning agency may be able to implement recommendations through state or local legislative funding mechanisms (or rely on persuasiveness, leadership). Planners are focused on the needs of the aviation industry (FAA, 2015, p. 7). For example, in an SASP, where the state aviation agency has a budget and can fund or help fund airport improvements, airport executives are more likely to be engaged in the plan as they may receive funding as a result. Airport operators can expect the same with a regional or metropolitan system plan where the entity conducting the system plan has money to spend on airport improvements. However, if a regional, metropolitan or state planning agency does not have a budget and, hence, the ability to help fund airport projects, airport executives may be less engaged in the outcomes of such a plan. FAA Advisory Circular AC 14 / American Association of Airport Executives Module 2 150/5070-7, The Airport System Planning Process (as amended by Change 1 (1/5/2015)) provides additional guidance on understanding state and metropolitan planning effectiveness. Airport Master Plans Objective 2 Describe the purpose of the Airport Master Plan and the steps in the process. Why This Is Important The importance of planning has been established in the previous section, but the Airport Master Plan is one of the most important plans in the history of the airport. The master plan sets forth the likely direction of the airport for the next one to two decades. It is a long-term process that includes significant public involvement. The master plan often lays the foundation for other plans, such as the airport Strategic and Business Plans, Land Use and Acquisition Plans, ALP, ACIP, and other plans. Introduction The airport master plan is the primary document used at airports for short-term, intermediate-term, and long-term planning. It is a study addressing development needs of the airport in five-year, 10-year, 15-year and 20-year planning increments. It represents the airport sponsor vision, taking into account input from stakeholders, the local community, government agencies and planners. The goal of the master plan is to provide a framework to guide future airport development that is cost-effective and satisfies the needs of the airport, the market and the community, while also balancing environmental and socioeconomic impacts. An ALP update study is sequenced into the airport capital improvement plan as an AIP eligible project. Airport master plans are prepared to support an existing airport’s modernization or the construction of a new airport. The master plan includes a comprehensive study of an individual airport that considers the airport’s current capabilities, projects future activity, and suggests development projects to enable the airport to accommodate the additional demand. The master plan approach emphasizes goal setting, while taking into consideration environmental requirements and public participation. The master plan, through the ALP, also provides a graphical presentation of the airport and the anticipated land uses in its vicinity and establishes a realistic implementation schedule along with an achievable financial plan. Finally, the master plan should set the stage for future planning processes by monitoring key conditions and permit changes in plan recommendations as needed. Each master plan study must focus on the airport’s specific needs for which a plan is being prepared, and the scope of a study must be tailored to the individual airport. Therefore, certain master planning elements may be emphasized in a given study, while other elements may not be considered. Although the FAA does not explicitly require airports to prepare master plans on a specific schedule, it strongly recommends that they do so.5 As a reminder, an ALP Update6 (previously addressed) is a requirement under the FAA Grant Assurances. 5 FAA.(2007). Advisory Circular 150/5070-6B Change 1. (p. 5). 6 ALP updates are also considered a form of a master plan update, albeit at a lower level of effort. AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 15 Certified Member But the master plan update can come at the encouragement of the local ADO or Regional Airports Division as a condition to continue receiving federal funding, or the airport sponsor may decide to conduct a master plan update when the future of the airport is moving in a different direction than originally envisioned. Airports conduct master plan updates about every 8-15 years, and some airports can go for more extended periods without a master Plan update. Master plans should provide documentation that supports the airport’s existing capabilities, forecasted traffic and proposed developments. The master plan should include realistic schedules for project implementation, an achievable financial plan, and enough project detail for subsequent environmental evaluations. The master plan also should be flexible to permit changes in plan recommendations. At the end of the master plan process, the airport should have an updated ALP and an updated, 20-year capital improvement plan. The Airport Master Plan Process The airport master plan process includes the following phases or elements: (1) pre-planning (2) public involvement (3) environmental considerations (4) existing conditions (5) aviation forecasts (6) facility requirements (7) alternatives to development and evaluation, (8) airport layout plans, (9) a facilities implementation plan and (10) a financial feasibility analysis. An update of the ALP drawing is an element of any master plan study, and keeping the ALP current is a legal requirement for airports that receive federal assistance. An update of the ALP drawing set will reflect actual or planned modifications to the airport and significant off-airport development. The scope of work for the master plan update should address the appropriate level of detail for each element. Essentially, each master process is intended to produce: A technical report containing the analyses conducted in the development of the plan. A summary report that brings together facts, conclusions and recommendations for public review. An updated ALP plan drawing set. A webpage with information about the airport and key elements of the master plan. A public information kit that can include visual aids, models, brochures or computer presentations to support the airport development program. Acceptance versus Approval While the FAA may accept each master plan, it does not constitute the agency’s approval. Accepting a master plan does not commit the federal government to participate in any proposed development or certify that any development is environmentally acceptable. “Accepting” the master plan means the FAA has reviewed the elements of it to ensure that sound planning techniques have been applied. The FAA “approves” the forecast and the ALP. Demand forecasts must resolve any inconsistency between forecasted levels and the Terminal Area Forecasts (TAF)7 produced by the FAA. The ALP must conform to FAA design standards, and approval of the ALP suggests that the proposed developments are safe and efficient. Also, accepting the plan does not constitute FAA approval to use the land for aeronautical or non- aeronautical purposes (those are separate processes that are reflected on the master plan), nor it does not represent the FAA’s obligation or approval to fund airport improvements shown on the ALP, but may make them eligible for federal funding. Pre-Planning In tailoring a study to an individual airport’s needs, planners and airport sponsors must make two major decisions: what type of study to conduct, and what level of detail to develop for the individual elements of the study. The airport operator 7 For pilots, the term TAF also means Terminal Area Forecast, but when used in the pilot community, “TAF” refers to a weather forecast. Whereas from an airport planning standpoint, TAF refers to a projection of future aircraft traffic, passenger enplanements, or cargo shipments. 16 / American Association of Airport Executives Module 2 usually identifies the need for a planning study based on existing shortcomings in the current plan or the introduction of a new type of aircraft, critical environmental problem, or change in the airport’s strategic vision. The airlines, tenants, federal, state or regional planning agencies, or the airport operator, all may identify the need for a master plan update. The type of study (i.e., master plan vs. ALP update) is determined by the elements that need to be included and the level of effort involved in gathering them. Usually, the FAA and the airport sponsor make this decision jointly. Consultant Selection The current version of FAA AC 150/5100-14, Architectural, Engineering, and Planning Consultant Services for Airport Grant Projects, provides important guidance on consultant selection. Another useful reference is “Guidelines to Selecting Airport Consultants,” published by the Airport Consultants Council (ACC), an aviation-industry trade association.8 Unless otherwise approved, the consultant selection process is governed by the Brooks Act, which requires that selections be based on qualifications and that awards be made according to a fair and open selection process. The FAA Grant Assurance addressing “Engineering and Design Services” states explicitly that the airport sponsor must award each contract or subcontract for program management, construction management, planning studies, feasibility studies, architectural services, preliminary engineering, design, surveying, mapping, or related services under Title IX of the Federal Property and Administrative Services Act of 1949 (Brooks Act), or an equivalent qualification-based requirement. As a general rule, airport sponsors hire consultants to prepare planning studies. Before soliciting Statements of Qualifications (SOQs), Request for Qualifications (RFQs), or Requests for Proposals (RFPs) from consultants, the airport sponsor should have a clear understanding of the issues that have defined the need for the study. These requests can be distributed by many methods, including public announcements, direct requests and personal discussions. The selection process begins with an invitation to submit information via an RFP or an RFQ. The invitation should include: The project title. The general scope of work. A submission deadline. Submittal content requirements. An airport contact. Interested consultants or engineering firms normally respond with a submittal that includes information demonstrating their understanding of the project, evidence of the firm’s ability to perform the work, profiles of the firm’s principals, staff, facilities and references. If requested, the respondents also may provide statements regarding the firm’s fiscal stability. The airport sponsor may anticipate that an Environmental Assessment (EA) or an Environmental Impact Statement (EIS) will be necessary as part of the master plan update. In that case, they should consult with the local FAA ADO or Regional Airports Division to determine the appropriate time to begin the consultant selection process. If the airport sponsor or the local FAA Airports Office anticipates the need for an EA, the sponsor or FAA9 should select a qualified environmental contractor to prepare the EA.10 8 FAA. (2007). Advisory Circular 150/5070-6B Change 1. (p. 10). 9 The contractor’s actual selection is sometimes dependent on the preference of the FAA Regional Office or Airport District Office. 10 FAA. (2007). Advisory Circular 150/5070-6B Change 1. (p. 10). AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 17 Certified Member The consultant selection process includes: Project identification and advertisement. Prequalification of firms (optional). Request of preliminary proposals. Preliminary shortlist selection. Formal proposals requested (and qualifications, if not prequalified earlier). Final selection and ranking. Negotiation and contract agreement. Obtainment of FAA concurrence. A selection panel should evaluate responses according to the criteria outlined in the airport’s invitation. An unbiased and technically qualified panel should accomplish the consultant selection. The airport should judge the firm’s qualifications based on experience in similar work, professional credentials, and conformance with the RFQ document. Subject to local law and policy, a review of the technical qualifications of numerous firms is appropriate, but the actual solicitation of technical proposals should be limited to a few firms. The preparation and presentation of quality technical proposals are time-consuming and costly. The selection panel should not be expected to make a thorough assessment of the technical proposals or conduct effective interviews when many consultants are involved. The selection panel should develop a shortlist of three to four qualified firms and identify the most qualified firm overall. These firms then are invited to submit or make further presentations to the selection panel. In evaluating the presentations or additional submissions, a “1-2-3” ranking of the firms is made by the panel, although other scoring systems also may be employed. Contract negotiations typically are initiated with the top-ranked firm, and, if successful, a contract award is made after concurrence is obtained from the FAA. If negotiations are not successful, discussions formally are terminated with the top-ranked firm and begin with the second-ranked firm. If federal appropriations fund the master plan, fees for consulting services have to be reviewed by the FAA. The normal agreement between the airport operator and the consultant is a firm, fixed-price contract. This approach is advisable whenever the master plan level of effort can be predicted fairly well and when reasonable prices can be established. The fixed-price arrangement is preferable and most often is used for master planning projects. It imposes a minimum administrative burden and provides an incentive for effective cost control and contract performance. If the project’s level of effort or duration is uncertain, a cost-plus- fixed-fee contract, or a time-andmaterials contract, may be necessary. Development of Study Design The second decision in designing an effective planning study is to determine the level of detail or depth of analysis for each element. The airport operator and the selected consultant should negotiate these fundamental decisions as the scope of work detailed in the contracts is established11. The airport sponsor, the consultant, the FAA, and other vital players all work together as needed to “scope” the project. This process involves identifying the issues presented in the master plan and determining the types of analyses and level of effort needed to address each issue. Specific topics that the master plan should address include the following: Goals and Objectives: This discussion should answer critical questions such as, “Why is this master plan study 11 FAA. (2007). Advisory Circular 150/5070-6B Change 1. (p. 10). 18 / American Association of Airport Executives Module 2 being conducted?” and “What are the key issues that need to be addressed in the future development of the airport?” Data Availability: The airport should identify available forecasts produced by state and regional plans, the FAA Terminal Area Forecast, and current inventory data, as well as data to be collected and developed by the consultant. Forecast Horizons: Although 5-, 10-, and 20-year time frames are typical for short, medium, and long-term forecasts, some studies may want to use different time frames. Planning activity levels that specify greater, future levels of aviation activity increasingly are used as an alternative to forecast years. Environmental Considerations: The airport operator should identify whether an EA or EIS will be required and whether categorical exclusions should apply. They should consult with the FAA to determine the appropriate time to include the environmental consultant in the process. Some states may have environmental documentation requirements that are separate but comparable to federal requirements. Schedules: The schedule should indicate decision points when continued work would require FAA or airport sponsor approval to proceed. Deliverables: The specific work products, along with the level of detail required in each, should be identified. Coordination and Public Involvement Program: Less complex studies usually require less public involvement, whereas complex studies, particularly those with contentious development issues, require much more significant public involvement or “outreach” programs. Budget: The scope of work and associated fees are determined concurrently, but there are often scope items that may require fees that exceed the sponsor’s budget. The sponsor and the consultant then must modify the scope of work, fees, or budget until all three are agreed upon. Public Involvement Program Historically, master planning focused on the plan’s elements, but the process has evolved to include robust public involvement, tempered with the need to accomplish the plan. In other words, the FAA desires public involvement but not to the extent that the master plan is not completed or that the process depletes the entire funding for the project. An effective public awareness campaign is essential to a successful master plan process. The campaign often includes informational and educational materials such as fact sheets, flyers, press releases, newspaper ads, social media, and web pages with interactive self-guided presentations. Electronic versions of critical documents also may be made available online. The FAA prefers an “Open House” format to keep the public informed about the status of the master plan process. Some airports will take the information (poster boards, brochures and other information) and build a “virtual open house” on their airport website. This helps accommodate individuals who cannot attend the open house sessions in person. At an open house, attendees can interact one-on-one with airport staff and the consultant team instead of witnessing a formal presentation where a consultant with a laser pointer and PowerPoint and the airport director stand in front of an audience. This presentation type quickly can deteriorate, and control of the meeting can be lost to personalities and special interests and degenerate into a “mob mentality.” This process is challenging to manage and tends to be dominated by one or two “alpha,” personalities (in other words, not everyone gets a say). Throughout the master plan process, the public involvement program shares information and collaborates on decisionmaking. The public involvement program should include elected and appointed officials, residents, travelers, tenants, and the general public. Collectively, this group is known as the “stakeholders.” Stakeholder input has its most significant impact at the beginning of the study before key planning decisions are made. An atmosphere of mistrust may evolve if significant decisions are made before the stakeholders have had a chance to participate. AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 19 Certified Member Public involvement can include: Committees. Public information meetings (i.e., Open Houses). Small group meetings and briefings. A project website. A robust social media campaign. A public awareness campaign. The selection of platforms depends on the particular complexities associated with the airport, the expected public interest in the master plan, the airport operator’s practices and policies, and budget considerations. It is best to use a variety of public outreach strategies with the goal of taking enough reasonable actions to inform stakeholders of the process and allow pathways for them to provide input. Remember to consider the special needs and sensitivities of low-income and minority populations, consistent with the provisions in Executive Order 12898, Federal Actions to Address Environmental Justice in Minority Populations and LowIncome Populations. Also, remember to include accommodations for individuals who qualify for disability accommodations under the Americans with Disabilities Act to allow for their input. Although the public involvement program is essential to the master plan effort, planners must balance the need for stakeholder involvement with the costs of such a process. Complex, large or unfocused stakeholder groups often result in contradictory input, unrealistic planning alternatives, increased study costs, and frustrated participants who struggle to communicate with the study group12. An overkill of public involvement can drain the budget for the master plan update and push the planning deadlines well beyond reasonable levels. The goal should be that everyone who wanted to be informed could be informed and put forth their opinions. The goal is NOT to ensure that everyone is happy with all of the decisions made related to the master plan, as this is unattainable and can stall and even stop the planning process. The FAA recommends establishing two committees that facilitate public involvement, a Technical Advisory Committee (TAC) and a Citizen’s Advisory Committee (CAC). The TAC provides input and insight into technical issues and comprises individuals with relevant technical backgrounds; the CAC serves as a sounding board and an information exchange group for stakeholders13. Traditional public information meetings, those done in a presentation format with consultants presenting information and the community listening and providing feedback, are less effective than an Open House format. While nearly all master plans will culminate in a final public meeting in front of the airport sponsor, the open house format, with interactive information stations staffed by knowledgeable individuals, is a very effective method to engage the public and stakeholders and to solicit their opinions throughout the planning The public involvement process also should include small group meetings and informal briefings to discuss plan alternatives with community boards, elected officials and civic organizations. 12 Ibid, p. 18 13 Ibid, p. 18 20 / American Association of Airport Executives Module 2 While the stakeholders will vary from airport to airport, the following groups should be considered as airport stakeholders: Users and tenants. Groups and individuals from within the sponsor’s organization. FAA personnel from the appropriate regional and field offices. Resource agencies and other governmental units with regulatory or review authority. Members of the community that surround or are affected by the airport. Other interested groups. Individuals from each stakeholder group must represent the interests of their groups in discussions with the master plan team. Ideally, they also should represent a consensus viewpoint rather than a special interest, a minority opinion, or their personal opinions. The idea is to include individuals who represent constituencies such as the president of the local homeowner’s association, not every member of the association, on the Citizens Advisory Committee. At the end of every master plan process, there is a public meeting at which the airport sponsor (i.e., board members) votes officially to approve (or not approve) the master plan. This is characterized by the consulting/planning team’s presentations, final public input and voting. The FAA has final approval of the master plan process, but does not “approve,” the plan, only determines that the “proper planning principles were used.” Environmental Considerations Evaluating environmental factors helps the airport sponsor to determine development alternatives thoroughly and to expedite environmental processing. Planners should understand that environmental factors and alternatives should be tailored to each airport’s size, unique setting, and operating environment. These factors typically will not be as detailed as in subsequent environmental reviews such as an EA or EIS. The consideration of environmental factors typically results in an overview of the airport’s environmental setting, the identification of the potential environmental impact of airport development alternatives, and the identification of environmentally related permits and studies (EA, EIS) that may be required for recommended development projects.14 The FAA recommends that the planning process consider the needs of subsequent environmental review processes. FAA Order 5050.4A, Airport Environmental Handbook, should be consulted as a guide to help planners identify potential environmental impacts related to the projects being considered15. Throughout the master plan scoping process, planners and environmental specialists should attempt to identify critical environmental issues that the airport will analyze for airport development alternatives to ensure that the master plan budget provides enough resources to cover the analysis cost. Approximately 40 federal laws, executive orders and regulations protect the environment, such as the Clean Air Act, Clean Water Act, Endangered Species Act, and the Executive Order on the Protection of Wetlands. Also, planners should consider state and local environmental laws and regulations during the master planning process.16 During the master plan scoping process, planners should identify potential short-term capital development projects that might be recommended in the master plan and that are known to trigger additional environmental processing, such as safety-related projects.17 Planners should recognize the need to achieve a balance between the human-made and the natural environment. Although every proposed development project will impact the natural environment, the 14 Ibid, p. 23 15 Ibid, p. 23 16 FAA. (2007). Advisory Circular 150/5070-6B Change 1. p. 24 17 Ibid AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 21 Certified Member use of prudent planning criteria, along with sound environmental data and analysis, will help to minimize unavoidable environmental impact and avoid delays in project design and construction.18 As part of the master plan alternatives analysis, planners and environmental specialists should identify each development project’s potential environmental affect. Categories of potential impacts are defined in FAA Order1050.1, Environmental Impacts: Policies and Procedures, and FAA Order 5050.4, FAA Airports, Guidance for Complying with NEPA. The Master Plan Study Process Existing Conditions and Issues (aka. Inventory) The next step in the master plan update is collecting data about the airport and the surrounding service area. This step includes an inventory of existing facilities (hangars, terminal buildings, FBOs, etc.), airspace structures (air traffic control tower), navigation aids (NAVAIDS), airport- related land use, and aeronautical activity; a review of the airport’s environmental setting (i.e., air quality, water quality status); and socioeconomic factors. Socioeconomic factors include demography, disposable personnel per capita income, economic activity, the status of industries, geographic factors, competitive position, sociological factors, political factors, and community values. The background section should provide a brief overview of the airport’s history, describe its aeronautical role in the national aviation system, and identify its role in the community’s infrastructure. The following classifications typically are used in this element of the master plan: Airfield/Airspace: runways, taxiways, lighting, marking, signing, the existence of Remain-Overnight-Parking (RON), historical data on weather obstructions, and noise abatement. Commercial Passenger Terminal Facilities: building space, the size of major functional areas, gates, aircraft parking areas, restaurants, concession space, and passenger screening areas. General Aviation Facilities: quantity and type of hangars, transient aircraft parking, tie-down locations, GA terminal facilities, FBOs, flight schools, maintenance shops, and the based aircraft mix (single-engine, multiengine, turboprop, jet, etc.). Cargo Facilities: quantity and area of cargo buildings and aircraft parking. Support Facilities: quantity and type of airport support facilities such as Aircraft Rescue and Fire Fighting (ARFF) stations, airport administrative areas, airline flight kitchens, fuel storage, and FAA facilities such as control towers. Access, Circulation and Parking: the quantity and type of ground access systems and commercial areas, access roads, service roads, parking, and curb spaces, and the availability of public transportation services such as bus, rail, taxi and limousines. Utilities: major infrastructure such as water, sewer, communications, heating and cooling, fuel lines, fiber-optic cables and power. Non-Aeronautical Facilities: these also should include recreational facilities, industrial parks, stormwater retention and snow storage areas, agricultural areas, and retail businesses associated with the airport. Also included in the existing conditions is a review of the regional settings and surrounding land use. It is important to collect information about the political boundaries beyond the airport property line, and to identify the airport service area and competitive airports. Historically, airport planning only looked at the potential environmental impact of development, 18 Ibid 22 / American Association of Airport Executives Module 2 while current practice considers alternatives and potential follow-up environmental actions. Noise, air and water quality levels are common environmental concerns in addition to hazardous waste generation and the disposal of toxic materials. Environmental impacts to endangered and threatened species of plants and animals need to be assessed as well. Furthermore, planners must consider historical, architectural, archaeological and cultural resources. Airport financial data, such as the airport business model (how grants are funded, how rates and charges are set and collected), operating revenues and expenses, and capital funding all should be included. Financial data also is taken into account, including a summary of the airport’s business model. The business model summary describes the financial operations of the airport, including how its costs and revenues are charged or credited to airport users and how any operational surplus or deficit is handled. It addresses operating revenues and expenses and how the airport typically funds capital projects (i.e., with AIP and other grants, Passenger Facility Charges (PFCs), airport revenue bonds, and so forth). If the airport sponsor owns and operates a multi-airport system, the business model summary should discuss how the financials for the study airport are addressed in relation to the whole airport system. Aviation Demand Forecasts Forecasts of future levels of aviation activity are the basis for effective decisions in airport planning.19 Aeronautical demand is forecast for short, intermediate, and long-range time frames and is used to determine the need for new or expanded facilities. Forecasts are expected to be realistic and to be based upon current data. Forecasts can be derived from numerous sources. The FAA’s Terminal Area Forecast is the official FAA forecast of aviation activity for U.S. airports and the baseline for airport forecasting. It is not necessarily accurate, but that’s not the important component. What’s important is that it provides a baseline from which to start. Other “ready-made” data sources include state and regional aviation system plans; the airlines; airline conferences and seminars; tenants such as charter operators, FBOs and flight schools; local economic development agencies; studies performed by chambers of commerce; state, county and city plans; and federal, state and local data sources that have a bureau of economic analysis. However, the most accurate data forecasts tend to originate from tenants and users whose livelihood depends on accurate forecasting. For example, airline forecasts of passenger traffic are typically more accurate than the FAA’s forecasts. To measure business aircraft operations, charter companies and FBOs typically have more accurate information than other federal, state, and local non-aviation entities. A rise in aircraft sales may mean a rise in based aircraft. A rise in student pilot starts may represent growth in the flight training industry. The rationale is simple – tenants such as airlines, charter operators and flight schools – have more to lose when it comes to inaccurate forecasts than agencies not reliant upon that information. 19 FAA. (2007). Advisory Circular 150/5070-6B Change 1. (p. 35). AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 23 Certified Member Figure 1: FAA Aerospace Forecast. Does not account for the 2020 impact due to Covid. The more complex the master plan update is, the more complex the forecasting effort will be. Short term forecasts up to five years in length justify near-term development and support operational planning and environmental improvement programs. Medium-term forecasts with a 6- to 10-year time frame are used in planning capital improvements, while longterm forecasts beyond 10 years are helpful for general planning. Several forecasts are readily available for developing and evaluating the master plan forecast. These forecasts include FAA’s Terminal Area Forecast, historical data, the FAA’s National Aerospace Forecasts, and the FAA Long-Range Aerospace Forecasts. Forecasts are published by the FAA’s Office of Aviation Policy and Plans. The FAA Aerospace Forecasts are estimates of national aviation demand for the next 12 years. Other forecast sources include state aviation system plans and other planning efforts, such as the Official Airline Guide (OAG), FAA Form 5010, Airport Master Record.20 As mentioned previously, forecasts are subject to the approval of the FAA. The elements used in the demand forecasts are shown in Figure 2. An Aircraft Operation is defined as a takeoff or a landing at an airport. The definition includes “touch and go” operations, which count as two sequential operations — one landing and one takeoff. An operation also can be an aircraft that conducted a missed approach. An operation is classified further as either local or itinerant. Local Operations are arrivals and departures of aircraft that operate in the local traffic pattern or within sight of the tower. Local aircraft operations are known to be departing from or arriving from flights in local training areas within a 20-mile radius of the airport or the air traffic control tower. Local operations also include simulated instrument approaches or low passes at the airport. A forecast of annual instrument approaches is needed for planning or upgrading navigational aids and landing systems. Itinerant Operations are arrivals and departures other than the local operations. Estimates of the local and itinerant aircraft operations are developed for each of the four major civil airport user categories: Air Carriers, Commuters, Air Taxi, and General Aviation. A fifth category, Military, is estimated for those airports with significant levels of that type of activity. The control tower routinely keeps the activity data if one exists on the field. 20 FAA. (2007). Advisory Circular 150/5070-6B Change 1. (p. 37). 24 / American Association of Airport Executives Module 2 Figure2: Forecast items in the Airport Master Plan Enplaned passengers are the total number of paying passengers who are departing on commercial aircraft. Originating and transfer passengers are included, as are air taxi or charter passengers. Not included are non-revenue passengers such as airline employees or through-passengers (departing on aircraft with the same flight number they arrived and not requiring reboarding). Separate forecasts are developed for both domestic and international passengers. Passenger enplanement forecasts are made for each of the three civil user categories: Air Carrier, Regional Carrier and Air Taxi. Enplaned air cargo includes the total tonnage of priority, non-priority and foreign mail, express and freight (property other than baggage accompanying passengers) departing on aircraft at an airport to include originations, stopovers, and transfer cargo. A large amount of air cargo and airmail are moved by the regular air carriers. Planners also must include all-cargo operators. Aircraft Mix is necessary since an airport’s design is contingent upon the type of aircraft using the facility. Aircraft mix refers to aircraft categories: less than 12,500 pounds; 12,500 pounds up to 60,000 pounds; and over 60,000 pounds. An aircraft’s weight, wingspan and speed are tied directly to the length, width and strength of runways and taxiways. Helicopter operations also have impacts to airport design and airspace considerations and are forecasted. Aviation demand forecasts typically identify the airport’s design, aircraft and fleet mix, and for commercial service airports, the number of passenger enplanements. GA airports include forecasts for based aircraft (both the number and type). Cargo airports, or airports with significant cargo operations, include forecasts for cargo tonnage. While forecasts generally provide a yearly average, most airports have peak periods during which demand far surpasses those averages. These peaks are critical at commercial service airports that serve as hubs or that have substantial international traffic. Master plan forecasts must include appropriately defined peak period activity such as “peak-hour,” or “average-day, peak-month,” for the planning of facilities such as terminal buildings and ground access systems.21 21 FAA. (2007). Advisory Circular 150/5070-6B Change 1. (p. 37). AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 25 Certified Member Factors Affecting Demand Forecasts The “art” of aviation demand forecasting has undergone considerable study and advancement in recent years. The following factors are used to forecast the demand for individual airport master plans and to update and refine those forecasts: Economic Characteristics. A community’s economic character affects its air traffic- generating potential. Economic characteristics are essential in connection with business travel by commercial and GA aircraft, and for air cargo traffic. Manufacturing, service industries, primary and resource businesses, agricultural flying, instructional flying, and aircraft sales generate air transport activity both inside and outside the airport area. Demographic Characteristics. The size and composition of an airport community’s population — and its potential growth rate — are primary ingredients in creating demand for air transportation services. These characteristics include an area’s population profile and changes in its age, educational and occupational distribution. Demographic factors influence the level of airport traffic, its composition and its growth — in terms of both incoming traffic from other states, regions or cities and traffic generated by the local or regional populations. The discretionary purchasing power available to an airport’s market area residents over any period is a good indicator of consumers’ financial ability to travel and is known as “disposable personal income.” Distinct, local preferences for particular modes of transportation may exist, but in some cases, alternative modes of transportation may not be available or economically feasible. Higher levels of disposable personal income increase the demand for air transportation services in that market. Geographical Attributes. The spatial distribution and proximity of populations and centers of commerce within an airport market area may correlate to the type and level of transportation services demanded. The geography and local climate also may be necessary for either stimulating or limiting aviation demand. For example, a region’s physical and climatic qualities can serve as attractions that generate tourism. The relationship of the airport undergoing the master plan process to other airports and the routes and airways in the regional and national systems may have a strong bearing on the types and levels of aviation services that the aviation users might demand at the master plan airport. One such example may be when an airline intends to establish a hub at a new location or begin offering new destinations. Aviation Related Factors. Several other factors might affect aviation demand at an airport. Fuel price fluctuations, changes in items such as the regulatory environment, the levels and types of taxes, fees, currency restrictions, business activities, industry trends, mergers, consolidations, and new marketing agreements are all factors. Local attitudes toward the environmental impacts of aviation also may affect demand and should be considered in forecasting or updating forecasts. Similarly, the granting of new routes for international air service can induce essential changes in traffic volume at the specific airports receiving the international service. Other Factors. Local airport authorities or operators can take several actions that have the conscious or unintended effect of either stimulating or retarding growth in aviation demand. The types of ground access and support services provided, user charges, and plans for future development can affect aviation demand’s future growth. Economic fluctuations such as fuel price changes, currency and trade restrictions, political developments, international tension, changing regulations, and environmental impacts all should be considered in the forecast process. The actual forecast steps vary from airport to airport, depending on the issues addressed and the level of effort required to develop the forecast. Steps in this process include: 26 / American Association of Airport Executives Module 2 Identifying parameters and measures to forecast. Reviewing previous forecasts. Determining data needs. Identifying data sources. Collecting the data. Selecting the forecast methods. Preparing the forecasts. Evaluating and documenting the results.22 Forecasting Techniques The forecast process includes (1) identification of aviation activity measures (2) review of previous forecasts (3) collection of data (4) selection of appropriate forecast methods. The selection and application of appropriate methodologies and techniques require professional judgment. The most common forecast techniques include: 1. Regression Analysis — a statistical technique tying aviation demand to enplanements, population, and income levels. 2. Trend Analysis and Extrapolation — a technique that uses the historical pattern of aviation activity to project future trends. 3. Market Share Analysis — a technique that assumes a top-down relationship among national, regional, state and local forecasts, where local forecasts represent a market share or percentage of national forecasts. 4. Smoothing — a statistical technique applied to historical data focused more on the airport’s recent trends and conditions. Once these analyses are complete, the next step is to apply the forecast methods and evaluate the results. Planners should look for variances between the forecast models, particularly significant historical variances between the FAA’s Terminal Area Forecasts versus actual historical performance and other forecast results. Planners also should be sensitive to significant factors such as the closure of an FBO or an airline bankruptcy/merger and the impact such events will have on the forecasts. Planners should identify trends along with temporary surges or drops in activities. Forecasts then are submitted for approval to the FAA. Facility Requirements In the Facility Requirements chapter, planners compare the current facilities and services available at the airport (the existing conditions) to the forecasted demand for facilities and services. This “gap analysis” helps planners determine what additional facilities and services (such as snow removal equipment, runway expansion, terminal construction) are needed to meet the projected demand. Recognize that, in some cases, the community or stakeholders may not want the airport to grow or may only want it to grow in a limited way. Therefore, the Facility Requirements may recommend a runway extension, only to have it not make it into the airport capital improvement plan due to conflicting community desires. In other words, the Facility Requirements chapter expresses what the airport needs to meet future demand, but may not have the financial, community or federal, state or local agency support, or the land, necessary to construct the improvement(s). 22 FAA. (2007). Advisory Circular 150/5070-6B Change 1. (p. 39). AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 27 Certified Member Special facility requirements address: Airfield and Airspace Airfield Capacity Analysis (Annual Service Volume as determined by aircraft mix, and the number of hourly and annual flight operations). Runway Requirements (relate to the Runway Design Code (RDC) and the Airport Reference Code (RDC) to determine if the runways meet the optimal orientation, length, width, and pavement strength). Taxiway Requirements (relate to the Taxiway Design Code (TDC) and whether the existing taxiways meet the TDC and Taxiway Edge Safety Margin (TESM) requirements, and recommendations for improvement when needed). The status of current NAVAIDS and whether additional NAVAIDS are necessary, and to replace aging NAVAIDS. Airspace Requirements (looks at the existing TERPS to determine if the approach and departure procedures meet the existing and future demand). Commercial Service Terminal Gates and Apron Frontage (to determine whether the aircraft parking positions meet the standards under the Airport Design Advisory Circular, for the appropriate Aircraft Design Group (ADG). Passenger Terminal Building (determines if the Federal Inspection Services (CBP, ICE) areas are adequate in size, looks at existing ticket counter and baggage claim space, room taken up by security checkpoints, and necessary space for departure lounges, concessions, etc.). Curb fronts (intermodal connections). General Aviation Requirements Hangars (conventional hangars, t-hangars, etc.). Availability of transient aircraft parking and tie-down. Available terminal space for other businesses and functions such as FBOs, airport administrative offices, conference and training rooms, rental car counters, restaurants, pilots’ lounges, pilot store, and flight planning. Air Cargo Requirements Type of cargo companies (integrated carriers, freight forwarders, belly freight, all-cargo, or combination carriers). Aircraft parking with respect to space and tonnage (pavement strength) requirements. Security needs to meet TSA standards for the air cargo area (i.e., Air Operations Area + Security Identification Display Area). Access to the intermodal system. Support Facilities Adequate ARFF facilities (based on any projected changes to the airport’s Part 139 ARFF Index). Airport maintenance (snow removal, support vehicles) adequacy in resources for building, fleet and field maintenance. Fuel storage adequacy (for commercial and GA operations, and ground vehicle operations). A new challenge for airport operators is the trend towards cleaner fuels, and electric aircraft operations. Aircraft maintenance. Availability and efficiency of de-icing facilities and associated de-icing runoff facilities. Assess special areas (snow storage, storm water retention, environmentally sensitive areas). 28 / American Association of Airport Executives Module 2 Ground Access, Circulation and Parking Regional Transportation Network (coordination with local planners), connectivity via road, rail or vessel. On-Airport Circulation Roadways (passengers, employees, delivery vehicles). Roadway Facilities (taxi/limo/courtesy van, rental car facilities, charter vans and buses, public parking and employee parking). Where communities have opposed the start-up of commercial service, the construction of facilities to accommodate such operations would not be consistent with the demands of the stakeholders. While there are numerous types of facilities and services that an airport can provide, planners should, at the very least, consider the following elements: Capacity shortfalls between the existing capabilities (conditions) of the airport and forecasted traffic. Changes as a result of the Covid pandemic and other large-scale changes to our industry. Changes to the FAA’s Design Standards and updating existing facilities to meet existing standards. The airport sponsor’s strategic vision for the airport. Outdated existing facilities in need of replacement (i.e., replacing old hangars, FBO or SASO facilities, or NAVAIDS such as visual approach systems). Planners should consider emerging trends, such as: NextGen’s implementation means changes to traditional aircraft flight patterns, an increase in noise complaints from areas that traditionally have not complained about noise, and additional airport capacity effects. Widespread dependency on GPS makes the air navigation system vulnerable to cyberattacks and space weather (i.e., solar flare) activity. Disruptions to navigational systems may cause delays and flight cancellations. Very Large Jets such as the Airbus A380 caused many airports to make design and operational modifications. Although the A380 is no longer in production, its impact on the industry remains as the aircraft is still in wide use, particulaly in the air cargo industry. The introduction of Very Light Jets (i.e., Cessna Mustang, HondaJet, CirrusJet) may increase air travel options and create more revenue for airport operators but also may result in capacity issues for airspace and airports. The success of these operations and aircraft may increase the charter and private aircraft market. Spaceport operations may affect airspace management as air traffic controllers must integrate spacecraft descending from the upper atmosphere into the U.S. airspace system. Plus, spaceport operations may have additional environmental affects not associated with normal flight operations. Supersonic airliners and supersonic business jets may expand air travel significantly, requiring modified or new terminal buildings, maintenance and hangar facilities. Supersonic (and eventually hypersonic) aircraft may require different fuels and other liquids and have unexpected environmental impacts. Runway, taxiway and apron design also may be affected. Urban Air Mobility (UAM) and Advanced Air Mobility (AAM)23 transportation systems (vertical takeoff and landing piloted and autonomous “taxi,” aircraft) may increase landside traffic to the airport but arriving by air. UAM systems have unique parking requirements versus traditional vehicles. Some airports plan for UAM operations on their parking garages’ top levels, while other airports may construct off-site landing areas with bus or rail service to the terminal building. Small aircraft charter operators (less expensive with limited range) utilizing aircraft such as the PC-12 and Cirrus SR22 with flights approximately the cost of a commercial airline first-class ticket. Since many of these operations are planned to operate out of general aviation airports, there may be more facility demand (and thus more leasing revenue, and fuel flowage fees), as a result. 23 UAM are short-range transportation systems while AAM are longer range. AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 29 Certified Member The construction of remote security screening locations at parking lots or other off-site locations, with bus or rail service directly to the gate areas. This may reduce traffic in the terminal building, which could impact publicarea concessions, and require higher levels of security processes and personnel to ensure the integrity of the screened bags and people as they transit from the remote area to the gate areas. This also may require facility changes at the gate areas to protect passengers from the weather as they exit the bus and enter the concourse. Planners also should consider new regulatory changes. For example, new air cargo security regulations in 2006 impacted the subsequent design of cargo facilities at airport. The regulatory change required all air cargo areas to move from an Air Operations Area (AOA) designation, to an AOA + SIDA designation. This required tenants to credential (i.e., badge) more personnel and the airport operator to ensure the higher level of security is maintained. Planners also should meet with TSA representatives early in the process. They should be familiar with the current versions of applicable documents, including the National Safe Skies Alliance Recommended Security Guidelines for Airport Planning, Design, and Construction, and relevant sections of the Transportation Security Regulations (TSRs). Some recent changes to aviation security requirements include: TSA initiated a new automated passenger bag screening system, requiring extensive infrastructure changes to certain screening checkpoints. In 2019, Computerized Tomography machines started to be deployed to passenger screening checkpoints. These machines are more effective at spotting threats but may also take up more space. Some machines have heavier floor support needs and additional power requirements. Testing of new passenger screening technologies such as open millimeter wave (MMW) imaging (as opposed to the “telephone booth” MMW machines). Other touchless detection systems are also in development that may increase flowthrough at the checkpoint. Some of these devices use thermal imaging, integrating the sensor technology with artificial intelligence, to identify prohbited items. Both have the potential to increase passenger throughput at the checkpoint and reduce wait times. Expanded use of PreCheck and Known Crewmember is affecting line management as more individuals enroll in the programs. The Known Crewmember prograrm eliminated thousands of indivdiuals (i.e., flight crews) from having to access the passenger screening checkpoints. As a result of the Covid pandemic, TSA installed plexiglass screens throughout the checkpoint to prevent disease spread. TSA is working toward credential authentication technologies at the Travel Document Check stations, and eventually, biometric authentication. These technologies are designed to increase passenger throughput and decrease wait times. Planners also must take design hour demand into consideration in terminal space planning. In the U.S., the evaluation of peak hour demand is often based on the peak hour of the peak month’s average day. This approach provides sufficient facility capacity for most days of the year yet recognizes that there will be some days with congestion, queues and delays. While facilities neither must be underbuilt nor overbuilt, for some critical airport systems, the peak hour of the average day of the peak month substantially can understate the demand, resulting in unacceptable levels of service or overloading of systems to the point that may approach gridlock. Some components of the passenger terminal complex, such as baggage handling systems and security checkpoints, are susceptible to this issue.24 24 Ibid 30 / American Association of Airport Executives Module 2 Alternative Development and Evaluation In some studies, airports can address numerous development options, including alternatives to major facility requirements. Planners often will present the alternatives to the airport sponsor, which can have the planners do further research on a particular alternative or eliminate alternatives that are not within the airport sponsor’s future vision. Long-term land acquisitions, environmental issues (such as those developments that require an EA or EIS), and the availability of funding through the AIP or PFC program also should be considered. Some good examples of reasons to present alternatives include various new terminal layout configurations, new runways at various locations, various lengths, or landside renovations, such as relocating the parking booths. Once alternatives are identified, each is evaluated based on operational performance (capacity, capability and efficiency). In some cases, an alternative is to construct a new airport, in which case an airport site selection becomes part of the list of alternatives. The Airport Layout Plan (ALP) The ALP update is also a part of the master plan update (addressed previously), as the graphical presentations of the ALP plan set are updated to reflect the projects depicted in the master plan update study. As with any update to the ALP, FAA approval at this stage is necessary. Facilities Implementation Plan The Facilities Implementation Plan explains how to implement the findings and recommendations of the planning effort. This portion of the master plan sometimes may be fused with the Financial Feasibility Analysis. The Facilities Implementation Plan suggests projects to include in the capital improvement plan (CIP), which also may go by the term Transportation Improvement Plan (TIP), depending on the preferences of the airport sponsor. The CIP is not to be confused with FAA’s ACIP25, which is the federal government’s national listing of projects eligible for AIP funding at a particular airport. Regardless of the terms used, the facilities implementation plan must address all of the airport’s planned capital projects (even those projects that are not associated with the recommendations of the master plan) to ensure that adequate fiscal, staff, scheduling and other resources are available. In addition, all documentation should be prepared so that it will be clearly understood by all parties. The facilities implementation plan must balance funding constraints; project sequencing limitations; environmental processing requirements; agency and tenant approvals and coordination processes; business issues such as leases and property acquisition; and sponsor preferences. The plan also must be coordinated with the master plan ALP and the airport’s financial plan. (Source: FAA) The FAA recognizes that the plan may change from year to year to reflect changing conditions and priorities. Thus, the CIP should be developed based on demand with specific improvements identified for implementation when specific milestones occur. It is easy to confuse the NPIAS with the ACIP. The NPIAS is essentially a list of projects eligible for federal funding for a particular airport. The FAA’s ACIP is which projects the FAA actually intends on funding for that particular airport. 25 AAAE Certified Member (C.M.) - Module 2: Planning, Construction & Environmental / 31 Certified Member The Facilities Implementation Plan should provide information regarding critical activities such as: Sponsor-specific project approval activities (those activities requiring board, council, or other administrative body approvals and budgetary approvals). Airline and other tenant approvals, including lease modifications. Project funding activities (FAA grants, PFC, and long-term debt financing). Environmental processing activities. Land acquisition activities. Sponsor-specific project implementation, process activities associated with the design and build of projects. Agency coordination activities, including coordination with the FAA, metropolitan planning organizatio

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