Strategies for Reuse of Underutilized or Vacant Airport Facilities (2011)

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3 will often take time to resolve ownership and financial obli- gations for a property. Properties can stay vacant for years. Airports may pursue a strategy to find replacement tenants, renovate a facility for an alternative use, or demolish a facil- ity for redevelopment. STUDY METHODOLOGY Case studies are a valid methodology when a holistic, in- depth investigation is needed to further understand a partic- ular topic and when there has been little previous organized reporting (Yin 1994). Information used in this synthesis was collected primarily through interviews with airport operators and property managers. Examples of reuse were selected using the following criteria: • Geographic distribution; • A sample of different types of aeronautical facilities; and • Range of reuse outcomes including nothing done, replacement tenant, new use through rehabilitation, historic preservation, and complete redevelopment. The synthesis team developed background information on each case study by reviewing primary planning docu- ments, airport statistics, websites, and articles. A case study questionnaire was developed to explore various aspects of the situation, including (1) a description of the property and its current status, (2) a history of the property and circum- stances leading up to a vacancy, (3) how reuse options were developed and prioritized, (4) what steps were taken to pre- pare the property for reuse, (5) tenant recruitment, and (6) how the airport viewed the reuse experience. Appendix A shows the case study questionnaire. REPORT STRUCTURE This synthesis is organized into four parts (see Figure 1). Chapters one and two provide an overview of how an evolv- ing aviation industry has transformed the ways that airport facilities are used. Also discussed is the concept of adaptive reuse and the complex factors that impact a reuse decision. Chapters three through thirteen present case studies that delve into how airports have addressed reuse of specialized facilities and the following issues of concern: CHAPTER ONE INTRODUCTION PURPOSE OF THE SYNTHESIS Each year, TRB sponsors a series of synthesis reports on current knowledge and practice in the airport industry. The intention of the synthesis is to develop a compendium of best available knowledge on addressing or resolving spe- cific airport problems. Often, if the topic warrants further investigation, a full-scale research effort follows a synthe- sis project. This synthesis was initiated because the recent economic downturn reduced demand for air service, general aviation, and cargo at U.S. airports and led many air carriers and service providers to postpone capital projects, consolidate operations, and in some cases, abandon airport facilities or lease less airport space than in previous years. The challenges associated with vacant aeronautical prop- erties can be vexing. When an airline or other service pro- vider vacates a property, particularly during a bankruptcy, an airport may unexpectedly become responsible for closing the facility, remediating hazardous conditions left by the ten- ant, providing additional security resources to the property, and implementing a reuse strategy. Usually these tasks are unbudgeted expenses for the airport. The loss of revenue from the property can also have a significant impact. The incidence of aeronautical vacancy is not widely reported beyond individual airports. The purpose of this report is to compile and examine case studies of how air- ports have addressed the reuse of vacant or underutilized airport facilities given the costs of physical conversion as well as regulatory requirements on airport operators. Aero- nautical facilities under consideration were • Terminals, • Maintenance buildings, • Cargo and United States Postal Service buildings, • Military base reuse, • Training facilities, • Hangars, • Control towers, and • Pavement. Reuse strategies for these types of facilities elicit a broad spectrum of airport responses. If bankruptcy is involved, it

4 TABLE 1 ACRP PROJECTS THAT COMPLEMENT THIS REPORT ACRP Number Project Title Legal Research Digest 6 The Impact of Airline Bankruptcies on Airports Project 01-08 Guidebook on Best Management Practices for Leasing and Developing Airport Property Project 01-16 Asset and Infrastructure Management at Airports Project 01-18 Application of Enterprise Risk Management at Airports Report 16 Guidebook for Managing Small Airports Report 19 Guidebook for Developing an Airport Per- formance-Measurement System Report 19A Airport Performance Indicators Report 20 Guidebook for Strategic Planning in the Air- port Industry Report 24 Marketing Techniques for Small Airports Report 27 Enhancing Airport Land Use Compatibility, Volumes 1 and 2 Report 36 Airport/Airline Agreements and Rate Meth- odologies—Practices and Characteristics Synthesis 1 Innovative Finance and Alternative Sources of Revenue for Airports Synthesis 7 Airport Economic Impact Methods and Models Synthesis 19 Airport Revenue Diversification FIGURE 1 Report structure. • Terminals (Pittsburgh and Springfield–Branson), • Maintenance facilities (Oakland and Duluth), • Training facilities (New Bedford), • Military base reuse (Rickenbacker and Phoenix–Mesa Gateway), • Cargo facilities (Dayton and Pittsburgh), and • Historic preservation (John F. Kennedy International). Chapter fourteen summarizes lessons learned from the case studies, conclusions, and recommendations for best reuse practices. OTHER ACRP RESOURCES ACRP has published a number of studies and syntheses that complement this report. Table 1 lists relevant studies and syntheses.