Developing and Maintaining Support for Your Airport Capacity Project (2013)

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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 85 TRANSPORTAT ION RESEARCH BOARD WASHINGTON, D.C. 2013 www.TRB.org Research sponsored by the Federal Aviation Administration Subscriber Categories Aviation • Administration and Management Developing and Maintaining Support for Your Airport Capacity Project Evan Futterman Futterman Consulting Springfield, VA Stephanie A. D. Ward David Dietz Regan A. Massey mead & Hunt, inC. Madison, WI Mary Vigilante synergy Consulting, inC. Seattle, WA Tom J. Browne tJB aviation, llC Clifton, VA Rusty Chapman delta airport Consultants, inC. McDonough, GA Paul B. Gaines paul B. gaines, sp Houston, TX Michael J. Powderly airspaCe solutions Marietta, GA Peter J. Kirsch Kaplan KirsCH & roCKwell Denver, CO

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 near­term 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 100­Century of Aviation Reauthorization Act. The primary participants 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 operating agencies, other stakeholders, and relevant industry organizations such as the Airports Council International­North America (ACI­NA), the American Associa­ tion of Airport Executives (AAAE), the National Association of State Aviation Officials (NASAO), Airlines for America (A4A), and the Airport Consultants Council (ACC) 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 end­users 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 airport­industry practitioners. ACRP REPORT 85 Project 03­21 ISSN 1935­9802 ISBN 978­0­309­28334­2 Library of Congress Control Number 2013941434 © 2013 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 not­for­profit 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 not­for­profit 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.national­academies.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

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 CRP STAFF FOR ACRP REPORT 85 Christopher W. Jenks, Director, Cooperative Research Programs Crawford F. Jencks, Deputy Director, Cooperative Research Programs Michael R. Salamone, ACRP Manager Joseph D. Navarrete, Senior Program Officer Terri Baker, Senior Program Assistant Eileen P. Delaney, Director of Publications Maria Sabin Crawford, Assistant Editor ACRP PROJECT 03-21 PANEL Field of Policy and Planning Patty Clark, The Port Authority of New York & New Jersey, New York, NY (Chair) Andrew L. Bell, Dallas/Fort Worth International Airport, DFW Airport, TX Michael J. Cheyne, Hartsfield-Jackson Atlanta International Airport, College Park, GA Carolyn Grisko, Grisko LLC, Chicago, IL Mark A. Perryman, Landrum & Brown, Incorporated, Cincinnati, OH Michael Schneiderman, Michael Schneiderman Law Firm, Chicago, IL Luis Loarte, FAA Liaison Kimberly Fisher, TRB Liaison

F O R E W O R D By Joseph D. Navarrete Staff Officer Transportation Research Board ACRP Report 85: Developing and Maintaining Support for Your Airport Capacity Project provides succinct and thoughtful guidance to help airport sponsors respond to the many challenges they face when undertaking a significant capacity improvement project. The guidance recognizes that building support must occur early in the process and that, just as importantly, maintaining support is also key to successful implementation, since large capital projects can take many years to accomplish. The guidebook is designed for quick reference with each chapter featuring a “Key Takeaways” section. Successful delivery of new airport capacity projects (including new runways and runway extensions, airspace improvements, terminal expansion, and ground access improvements) can take many years. Such projects are most likely to succeed with steady support from air­ port sponsors, political constituencies, airport users, interest groups, regulatory agencies, and nearby communities. Many airports need guidance to help them identify, mobilize, maintain, and broaden support, and to deal constructively with project opposition. This research, led by Futterman Consulting and Mead & Hunt, Inc. under ACRP Project 03­21, began with the identification of numerous large­scale capacity projects representa­ tive of various airport types (e.g., major hub airports, general aviation airports) and proj­ ect types, ranging from new airports to new runways and terminals. The research team then conducted many in­depth interviews with those directly involved with these projects, including airport staff, airport board members, representatives from FAA local offices and headquarters, airline directors, community groups, and others. The research team then developed their guidance based on these interviews and their professional experience. The guidebook is divided into five chapters, with Chapter 1 describing the guidebook’s organization. Chapter 2 outlines a typical project lifecycle and describes project process activities (i.e., the technical elements of planning, design, review, permitting, construction, and commissioning) and organizational activities (i.e., activities that support and comple­ ment the technical process). Chapter 3 focuses on key organizational activities, including identifying the need for a project; building project support; developing the message; devel­ oping a stakeholder outreach plan; organizing airport staff and outside resources; address­ ing the project process (i.e., the Airport Layout Plan, environmental review, design, con­ struction, and commissioning/operation); and considering a range of project alternatives. Chapter 4 offers suggestions for identifying, understanding, and working with stakehold­ ers, including those who support the project, those who oppose the project, and project bystanders. A summary of the guidebook’s key guidance is presented in Chapter 5.

C O N T E N T S 1 Chapter 1 Introduction 3 Chapter 2 Typical Project Lifecycle and Activities 3 2.1 Organizational Activities 3 2.2 Project Process Activities 5 Chapter 3 Organizational Activities Critical for Success 6 3.1 Identifying the Need for a Project 6 3.2 Building Specific Project Support 8 3.3 Developing the Message 8 3.4 Stakeholder Outreach Plan 8 3.5 Organizing for Success 9 3.5.1 Project Leadership 9 3.5.2 Project Management 9 3.5.3 Project Team 9 3.6 Developing a Project Process 10 3.6.1 Design of the Project Process 10 3.6.2 Integrated Planning and Environmental Process 11 3.7 Range of Alternatives 11 3.7.1 Alternative Compromise 11 3.7.2 Agency and Sponsor Approval 12 3.8 Conclusion 13 Chapter 4 Building and Maintaining Support with Stakeholders 14 4.1 Ingredients of Success 14 4.1.1 Understanding Stakeholder Roles and Responsibilities 14 4.1.2 Identify Stakeholders 16 4.2 Stakeholder Involvement 16 4.2.1 Get Stakeholders Actively Involved 16 4.2.2 Keep Stakeholders Informed 17 4.2.3 Sharing Information About Project Cost 18 4.2.4 Reaching Out and Compromising 18 4.2.5 After the Project Is Built 18 4.2.6 Working with Local Stakeholders 19 4.3 Working with Airlines 20 4.4 Working with the FAA 21 4.4.1 Sponsor/FAA Relationship and Communication 21 4.4.2 FAA Lines of Business 22 4.4.3 FAA Coordination with Other Federal Agencies 22 4.4.4 Other Advice for Sponsors 22 4.5 Working with Outside Agencies 23 4.6 Working with Local Communities and Citizens 24 4.7 Working with the Media

25 Chapter 5 Summary 27 Appendix A Abbreviations and Acronyms 28 Appendix B Glossary 30 Appendix C List of Projects Researched for the Guidebook