A Guidebook for the Preservation of Public-Use Airports (2011)

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TRANSPORTAT ION RESEARCH BOARD WASHINGTON, D.C. 2011 www.TRB.org A I R P O R T C O O P E R A T I V E R E S E A R C H P R O G R A M ACRP REPORT 44 Research sponsored by the Federal Aviation Administration Subscriber Categories Aviation A Guidebook for the Preservation of Public-Use Airports Thomas P. Thatcher L. R. KIMBALL Ebensburg, PA

AIRPORT COOPERATIVE RESEARCH PROGRAM Airports are vital national resources. They serve a key role in trans- portation of people and goods and in regional, national, and inter- national commerce. They are where the nation’s aviation system connects with other modes of transportation and where federal respon- sibility for managing and regulating air traffic operations intersects with the role of state and local governments that own and operate most airports. Research is necessary to solve common operating problems, to adapt appropriate new technologies from other industries, and to introduce innovations into the airport industry. The Airport Coopera- tive Research Program (ACRP) serves as one of the principal means by which the airport industry can develop innovative near-term solutions to meet demands placed on it. The need for ACRP was identified in TRB Special Report 272: Airport Research Needs: Cooperative Solutions in 2003, based on a study spon- sored by the Federal Aviation Administration (FAA). The ACRP carries out applied research on problems that are shared by airport operating agencies and are not being adequately addressed by existing federal research programs. It is modeled after the successful National Coopera- tive Highway Research Program and Transit Cooperative Research Pro- gram. The ACRP undertakes research and other technical activities in a variety of airport subject areas, including design, construction, mainte- nance, operations, safety, security, policy, planning, human resources, and administration. The ACRP provides a forum where airport opera- tors can cooperatively address common operational problems. The ACRP was authorized in December 2003 as part of the Vision 100-Century of Aviation Reauthorization Act. The primary partici- pants in the ACRP are (1) an independent governing board, the ACRP Oversight Committee (AOC), appointed by the Secretary of the U.S. Department of Transportation with representation from airport oper- ating agencies, other stakeholders, and relevant industry organizations such as the Airports Council International-North America (ACI-NA), the American Association of Airport Executives (AAAE), the National Association of State Aviation Officials (NASAO), and the Air Transport Association (ATA) as vital links to the airport community; (2) the TRB as program manager and secretariat for the governing board; and (3) the FAA as program sponsor. In October 2005, the FAA executed a contract with the National Academies formally initiating the program. The ACRP benefits from the cooperation and participation of airport professionals, air carriers, shippers, state and local government officials, equipment and service suppliers, other airport users, and research orga- nizations. Each of these participants has different interests and respon- sibilities, and each is an integral part of this cooperative research effort. Research problem statements for the ACRP are solicited periodically but may be submitted to the TRB by anyone at any time. It is the responsibility of the AOC to formulate the research program by iden- tifying the highest priority projects and defining funding levels and expected products. Once selected, each ACRP project is assigned to an expert panel, appointed by the TRB. Panels include experienced practitioners and research specialists; heavy emphasis is placed on including airport pro- fessionals, the intended users of the research products. The panels pre- pare project statements (requests for proposals), select contractors, and provide technical guidance and counsel throughout the life of the project. The process for developing research problem statements and selecting research agencies has been used by TRB in managing cooper- ative research programs since 1962. As in other TRB activities, ACRP project panels serve voluntarily without compensation. Primary emphasis is placed on disseminating ACRP results to the intended end-users of the research: airport operating agencies, service providers, and suppliers. The ACRP produces a series of research reports for use by airport operators, local agencies, the FAA, and other interested parties, and industry associations may arrange for work- shops, training aids, field visits, and other activities to ensure that results are implemented by airport-industry practitioners. ACRP REPORT 44 Project 03-11 ISSN 1935-9802 ISBN 978-0-309-21317-2 Library of Congress Control Number 2011928181 © 2011 National Academy of Sciences. All rights reserved. COPYRIGHT INFORMATION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB or FAA endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. NOTICE The project that is the subject of this report was a part of the Airport Cooperative Research Program, conducted by the Transportation Research Board with the approval of the Governing Board of the National Research Council. The members of the technical panel selected to monitor this project and to review this report were chosen for their special competencies and with regard for appropriate balance. The report was reviewed by the technical panel and accepted for publication according to procedures established and overseen by the Transportation Research Board and approved by the Governing Board of the National Research Council. The opinions and conclusions expressed or implied in this report are those of the researchers who performed the research and are not necessarily those of the Transportation Research Board, the National Research Council, or the program sponsors. The Transportation Research Board of the National Academies, the National Research Council, and the sponsors of the Airport Cooperative Research Program do not endorse products or manufacturers. Trade or manufacturers’ names appear herein solely because they are considered essential to the object of the report. Published reports of the AIRPORT COOPERATIVE RESEARCH PROGRAM are available from: Transportation Research Board Business Office 500 Fifth Street, NW Washington, DC 20001 and can be ordered through the Internet at http://www.national-academies.org/trb/bookstore Printed in the United States of America

The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences. The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering. The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, on its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine. The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy’s purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council. The Transportation Research Board is one of six major divisions of the National Research Council. The mission of the Transporta- tion Research Board is to provide leadership in transportation innovation and progress through research and information exchange, conducted within a setting that is objective, interdisciplinary, and multimodal. The Board’s varied activities annually engage about 7,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individu- als interested in the development of transportation. www.TRB.org www.national-academies.org

CRP STAFF FOR ACRP REPORT 44 Christopher W. Jenks, Director, Cooperative Research Programs Crawford F. Jencks, Deputy Director, Cooperative Research Programs Michael R. Salamone, ACRP Manager Lawrence D. Goldstein, Senior Program Officer Charlotte Thomas, Senior Program Assistant Eileen P. Delaney, Director of Publications Hilary Freer, Senior Editor ACRP PROJECT 03-11 PANEL Field of Policy and Planning Dennis W. Leong, Wisconsin DOT, Madison, WI (Chair) Debbie K. Alke, Montana DOT, Helena, MT Laurie Cullen, HNTB Corporation, Boston, MA Jack W. Ferns, New Hampshire DOT, Concord, NH Reiner Pelzer, Delaware Valley Regional Planning Commission, Philadelphia, PA Jack E. Thompson, Jr., C&S Companies, Orlando, FL Kerri Woehler, Washington State DOT, Burlington, WA Harry P. Wolfe, H. Paul Consultants, Phoenix, AZ Sharon Glasgow, FAA Liaison John L. Pfeifer, Aircraft Owners and Pilots Association Liaison Christine Gerencher, TRB Liaison AUTHOR ACKNOWLEDGMENTS The research reported herein was performed under ACRP Project 03-11, FY 2008, by L.R. Kimball, Ebensburg, PA. L. R. Kimball was the contractor for this study. Thomas P. Thatcher, A.I.C.P., P.P., CFI, of L.R. Kimball was the project’s Principal Investigator and report author. Danielle A. Bower, A.I.C.P., of CHPlanning, Philadelphia, PA, researched six of the eight airport case studies. Summer Marr of Wilbur Smith Associates, Columbia, SC, led the research in the review of state airport system plans, and Glenn A. Kay, ATP, L.R. Kimball, assisted in the collection of his- torical data. Karen A. Thom of L.R. Kimball oversaw project scheduling and financial administration of the project. Finally, the author would like to acknowledge and recognize the Federal Aviation Administration, the Aircraft Owners & Pilots Association, the National Association of State Aviation Officials, and the Exper- imental Aircraft Association for the assistance they provided throughout this research effort. C O O P E R A T I V E R E S E A R C H P R O G R A M S

ACRP Report 44 provides a Guidebook that describes why public-use airports close and identifies measures and strategies that can be undertaken to help preserve and prevent their closure. This guidebook presents step-by-step procedures on how to identify risk factors that can increase the potential of a future airport closure and how to formulate an effective airport preservation program. Included is a detailed listing and evaluation of the reasons, or risk factors, why public-use airports close, addressing economic, operational, revenue, business, land use, and other issues. The Guidebook also identifies potential groups inter- ested in preserving public-use airports and offers practical checklists for identifying and addressing critical issues as part of a comprehensive strategic airport planning program in support of preservation efforts. It presents practical guidance on how to delineate primary airport closure risk factors, identifies extensive resources of value to those working to pre- serve airports, and collects a wide range of documents in the appendices to support the development of a practical and implementable strategic plan for airport preservation. This Guidebook is intended to be used by state and local agencies, airport owners/operators, and other public and private groups with an interest in preserving public-use airports. According to the Federal Aviation Administration, there are approximately 5,000 public- use airports in the United States. The historical record shows that there has been a substan- tial decrease in the number of public-use airports over the last 40 years, despite a substan- tial increase in the population of the United States during the same time. Many public-use airports, particularly those that are privately owned, are in danger of closure, typically to make land available for alternative development that is considered to be more profitable, from a strict business standpoint, than a public-use airport. These conditions are especially true in the fringes around urban centers and other populated areas with high or rising prop- erty values; yet, it is in these areas where air access is often needed the most. Once an air- port in an urban fringe area is lost, the chances of building a replacement are almost nonex- istent. In addition, aircraft technology is evolving to the point where efficient high-speed executive transport aircraft will soon be able to use smaller and mid-sized public-use gen- The Guidebook is supplemented by a set of Appendices which are included on a CD bound into this report. The CD is also available for download as an ISO image on the TRB website. A summary, color brochure is also available on the website as a PDF document. F O R E W O R D By Lawrence D. Goldstein Staff Officer Transportation Research Board

eral aviation airports in areas not served by commercial or scheduled air carriers. If the United States continues to lose small and mid-sized public-use general aviation airports, there will be many communities and regions that will never get the opportunity to be served by efficient, new technology future aircraft. The actual closure of an airport is usually the last step in a long chain of events that may have occurred over several years. As a result, one of the keys to airport preservation is to rec- ognize problems and take action early in the process when options are still available. Par- ties (including state and local governments) seeking to preserve public-use airports may have difficulty obtaining information about options and resources that might be available to preserve an airport and increase its economic viability. This Guidebook provides infor- mation on how to recognize and identify threats and how to establish an effective program to help prevent closures that otherwise might occur. This Guidebook is based on a broad literature review, evaluation of historic and current airport data, case studies, polling, and interviews. The research indicates that there is a significant difference between “airport preservation” and “airport rescue.” Airport rescues are typically short-term emergency actions designed to keep open an airport already in imminent danger of closing. Airport rescue actions fre- quently do not deal with the underlying reasons why or how an airport came to the brink of closure. The Guidebook identifies and directly focuses on the fundamental reasons why some public-use airports come to the brink of closure and what can be done to identify and manage the factors that can put an airport at risk of failure and closure. Although the Guide- book will be a key resource for both airport preservation and airport rescue actions, it is principally focused on achieving permanent, long-term preservation. A major conclusion of the study is that circumstances and factors that put public-use air- ports at risk of potential failure and closure are often readily identifiable and measurable, and these factors usually manifest themselves years (or even decades) in advance of a poten- tial airport failure or closure. As a result, airport failures or closures generally do not hap- pen suddenly. Closures are usually the cumulative result of a broad array of circumstances that have or could have been seen many years earlier. In addition, the research appears to indicate that there can be a disconnect between perceived impacts of land use and zoning around public-use airports and the scope and practical effect of actual adverse impacts of incompatible land use and zoning. There is a broadly held perception that ineffective land use planning and zoning may be principally responsible for the closure of many public-use airports. The reality, however, is more complex. Incompatible land use and zoning is a seri- ous negative constraint on public-use airport viability, but other factors may be just as important. What usually occurs is a series of pressures that ultimately forces a public-use airport to succumb. The Guidebook is a resource for airport professionals and others with an interest in air- ports and the role they serve in the community. Users should consider the Guidebook as a practical planning tool—an overview of strategic issues and actions useful or even necessary for advancing both (1) public-use airport preservation and (2) developing and sustaining successful public-use airports. Owners and operators of public-use airports, even if these airports currently appear to be at minimal risk of closure, can and will benefit from appli- cation of the Guidebook. This Guidebook lays out strategies and actions that will, on imple- mentation, contribute significantly to making an airport incrementally more useful, more successful, and better integrated into the economy of the surrounding community.

1 Chapter 1 Preservation of Public-Use Airports Research Background 1 Introduction—Using This Guidebook 2 Background and Project Objectives 3 Reasons for Public-Use Airport Closures 4 Research Approach 6 Chapter 2 Historical Background and Long-Term Data Trends 6 Public-Use Airport Data and Trends 6 Airport Totals from 1969 to 2007 6 Public Ownership versus Private Ownership of Public-Use Airports 8 Public-Use Airport Closures by Year, 1997 to 2007 8 Civil Aircraft Data and Trends 8 General Aviation Hours Flown, 1940 to 2005 9 Active General Aviation Aircraft in the United States, 1975 to 2005 9 Civilian Pilot Data and Trends 10 Chapter 3 Preservation of Public-Use Airport Research Findings 10 Characteristics of 200 Recently Closed Public-Use Airports 10 Geographic Location 10 Runway Lengths 11 Public Ownership Versus Private Ownership 12 Available Airport Services and Infrastructure 12 Adjacent Land Uses 12 Airport Closure Risk Factors 13 Airport Closure Protective Factors 13 Findings from Interviews and Polling 14 Findings from the Assessments of State Airport System Plans 15 Findings from Airport Case Studies 18 Chapter 4 Practical Management of 16 Primary Airport Closure Risk Factors 18 Overview of Airport Closure Risk Factors 19 Classification of 16 Primary Airport Closure Risk Factors 19 Grant Obligation Status 19 Economic Issues 20 Community and Environmental Issues 21 Infrastructure Issues 22 Suggested Roles for Individuals and Entities 22 Different Types of Airport Advocates 22 Airport Advocate Leadership Opportunities 22 Organizing Effective Airport Preservation Advocacy and Action 24 Airport Advocates Issues Checklist C O N T E N T S

27 Public Funding Risk Factor 28 Economic Risk Factors 32 Community and Environmental Risk Factors 35 Infrastructure Risk Factors 38 Chapter 5 Select Long-Term Airport Preservation Strategies and Mechanisms 38 An Airport Advocate’s Commitment to Positive Improvement 38 Federal and State Airport Aid Grant Obligation Status 39 Public Versus Private Ownership 40 Total Available Airport Infrastructure 41 Integration with Local Land Use and Planning 41 Community Education and Outreach 42 Sale of Airport Land Development Rights 45 Chapter 6 Additional Research Findings 47 Chapter 7 Airport Advocate Resources 47 Basic Information for Airport Advocates 48 Additional Information and Resources for Airport Advocates 51 Chapter Notes Note: Many of the photographs, figures, and tables in this report have been converted from color to grayscale for printing. The electronic version of the report (posted on the Web at www.trb.org) retains the color versions.