Combining Mixed-Use Flight Operations Safely at Airports (2016)

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26 Aerobatics is an aeronautical activity that enjoys the same rights to the national airspace system as other aeronautical activities. Interviews and the literature search indicate there is resistance among airport operators and communities to allow an aerobatic box to be established over an airport. The arguments made by those who have sought to prevent aerobatic activity are that it is unsafe, can deter other traffic, and is noisy. At the same time, the aviation industry and populace expect aerobatic pilots to entertain and compete safely. Airshows are one of the most popular spectator events in the nation (Family Business Experts n.d.). The skill and precision an aerobatic pilot or team displays can be captivating, especially because they perform so close to the ground. Competition pilots compete worldwide on par with other major sports. Other pilots seek training opportunities and skill capabilities for general compe- tency development or in the event of an inflight emergency. Aerobatic practice is a key component to safe operations, just as are other types of aircraft training. Data found in the study show a low number of aerobatic accidents; noise confined to the aerobatic box area for the short practice routines; and no substantiation that other aeronautical traffic is deterred from operating at an airport as a result of aerobatic activity. AEROBATIC PRACTICE AREA The skills and capabilities displayed at airshows, competitions, and recovery from aircraft upset can- not be accomplished without training and practice. Whereas a pilot can practice aerobatics without a waiver or authorization almost anywhere in the United States above 1,500 ft AGL, the training is not the same as that needed for performing at air shows or competitions that require lower altitudes. An established APA at an airport allows a pilot to train below 1,500 ft AGL and gain the skills and experience necessary to perform well. There were 173 APAs in the United States in 2011 (Aeronautical Charting Forum April 27–28, 2011). An APA is defined as a place where a pilot may practice aerobatic maneuvers below an altitude of 1,500 ft AGL. Commonly called an “aerobatic box,” the designated volume of airspace can vary in size and directions given the speed and type of aircraft practicing. An aerobatic contest box for competition or air show flying is normally standardized to that shown in Figure 4, per Order 8900.1 2015, Volume 3, Chapter 5, Section 1-4, 3-119 (FAA 2015b). An additional diagram is provided in chapter fifteen for the case example of the Keene Municipal Airport in New Hampshire, which shows how an airport safely integrates the aerobatic box into its overall operation. Appendix H shows the APA license agreement the airport uses. Increasing a pilot’s awareness, especially that of transient pilots, that an aerobatic box exists at an airport is a key safety issue. Issuance of a notice to airman (NOTAM) is generally a conditional requirement of a COA whenever the aerobatic box is active. Pilots obtaining flight briefing services from flight service station (FSS) are generally informed of an active APA if a proper NOTAM has not been issued. However, the description may make it difficult for pilots to visualize where the activity is occurring. Publishing a diagram or description of the APA and placing it on the airport’s website, or otherwise posting or distributing it, can help raise pilot awareness and safety. The AFD provides a list of APAs in a separate Special Notice section. To enhance standardization and awareness, the chapter five AEROBATIC OPERATIONS

27 FAA is currently working to place an aerobatic symbol on navigational charts, similar to hang gliding, glider, parachute, and ultralight activity symbols. APAs located above an airport may require temporary adjustments to regular aircraft traffic patterns because the FAA recommends aircraft avoid flying underneath an active APA. The FAA is currently investigating the feasibility of placing an aerobatic training area symbol on aeronautical sectional charts to inform pilots of the activity, similar to glider and ultralight symbols. CERTIFICATE OF WAIVER OR AUTHORIZATION Certificates of Waivers are necessary from the FAA to establish an APA. In AC 91-45C, the FAA considers an APA to be an “aviation event,” therefore requiring a waiver be issued from existing regulations to be safely performed (FAA 1990b). The AC provides information to a pilot or airport operator on how to obtain an authorization or waiver of federal regulations for certain activity and to establish an APA or air show “box.” An APA issued in an airport operator’s name rather than a pilot’s name better allows the airport operator to control and manage the activity. An individual or airport operator requesting the establishment of an aerobatic box submits Form 7711-2 to the FAA FSDO. An aerobatic box can be issued for a short or long-term period. “Short” is for a one-time event such as an air show or competition. “Long-term” is for greater than 30 days up to 24 months, at which point permission must be renewed. At the end of October 2014, there were 165 long-term APAs in the United States. Textbox 7 provides a list of common conditions the FAA will include when issuing a waiver. One condition, that of seeking permission from a property owner, is more for notification purposes because local jurisdictions do not have authority over activity in the airspace. The FSDO will gener- ally seek input from the airport or landowner, but can allow an operation despite local objection. An airport operator cannot unduly withhold permission if the sponsor is federally obligated. At airports with operating control towers, ATCT concurrence is necessary for APA establishment. Overall safety is generally enhanced with an operational ATCT, because the airspace can be controlled to mitigate potential conflict with other aircraft. An example of an aerobatic box waiver for a busy controlled reliever airport is provided in Appendix I. 1 statute mile buffer 1 statute mile buffer FIGURE 4 Illustration of a typical aerobatic box (Source: FAA 2015b.).

28 Part 91 pilot operating rules describe the restrictions for pilots conducting aerobatic flight (14 CFR 91.303). Aerobatic flight may not be conducted • Over any congested area of a city, town, or settlement; • Over an open air assembly of persons; • Within the lateral boundaries of the surface areas of Class B, Class C, Class D, or Class E air- space designated for an airport; • Within 4 nm of the center line of any federal airway; • Below an altitude of 1,500 ft above the surface; or • When flight visibility is less than 3 statute miles. The term “congested area” has not been defined by FAA or NTSB. Instead, it is determined on a case-by-case basis in which a number of different factors are evaluated (R.B. MacPherson, personal communication, Mar. 8, 2010). Operations over congested areas are restricted because of the poten- tial to cause harm to people or property below. Pilots engaging in aerobatic activity have different levels of skills. For a pilot to perform at an air- show, he or she will obtain a Statement of Aerobatic Competency from the FSDO (FAA Form 8710-7). The statement is not required if a pilot is competing in a non–airshow-related aerobatic contest, or if a pilot is practicing in a previously authorized APA. SAFETY CONSIDERATIONS The literature search points to concerns about safety and noise as the two main obstacles to establishing an APA at an airport. Safety concerns include collision with other aircraft and collision with the ground. Because an APA involves the allocation of airspace, local airport objections may not affect the issuance of a waiver from the FAA. Aerobatic pilots and airports can take measures to minimize risks and improve acceptance of aerobatics through educational and notification efforts, and thoughtful discussion and review of procedures. Informing pilots by disseminating information through NOTAMs, AFD remarks and web page listings, posting flyers at pilot areas and other local airports, and having regular safety or user meetings are means to enhance safety. SOPs for aerobatic activity are affected by the waiver con- ditions authorized by FAA and from IAC guidance material. Individual airport minimum standards or rules and regulations can be developed from the waiver and the guidance material. Aerobatic boxes are generally established close to an airport, with 90% of those being associated with an uncontrolled GA airport. One reason for being located over an airport is to add a measure of safety for a pilot in the event of an aircraft mechanical or system failure. The pilot can readily land. Another reason is the airport layout can provide easy recognizable boundaries that help describe the aerobatic limits of the box. TEXTBOX 7 Conditions Typically Issued by the FAA for an APA Waiver (Source: Literature search) • Minimum flight visibility requirements • Minimum elevation for maneuvers • Requirement for notification to ATC 30 min prior and upon completion • Activation and deactivation of NOTAMs to the FSS • Maintenance of a who, when, and what record • The time of day or period of activity allowed • Identification of any flight safety requirements, such as clearing turns • Permission of the airport manager and the property owner over which acrobatic flights are being conducted • Requirement for any safety briefing • Conditions for ceasing to practice if an unsafe activity occurs

29 NOTICES TO AIRMEN Examples of NOTAMs issued for aerobatic activity are (FAA Order JO 7930.2P CHG 2): • AEROBATIC ACFT WITHIN AN AREA DEFINED AS 6NM RADIUS OF FOD068025 (5NM S CAV) SFC-4500FT AVOIDANCE ADVISED 1312291200-1312292200 • AEROBATIC AREA WITHIN AN AREA DEFINED AS 3NM RADIUS OF SGF 3000FT– 8500FT AVOIDANCE ADVISED 1312301400-1312301800 • AIRSPACE AIRSHOW ACFT WITHIN AN AREA DEFINED AS 5NM RADIUS OF MIV SFC-10000FT AVOIDANCE ADVISED Appendix G contains a list of permanent NOTAMs listed in the AFD. The remarks reflect different traffic patterns associated with each aeronautical activity. It is apparent from the listing that there is no standard for the phrasing to be used. Airport operators can view the remarks and choose a phrase that best conveys the safety message for their airport. ACCIDENTS AND INCIDENTS Aerobatics are one of the more risky ventures in aviation because the activity takes place close to the ground. The main cause of most aerobatic accidents was identified as not maintaining proper altitude (de Voogt and Van Doorn 2009). For this reason, practicing aerobatic maneuvers is important for improving safety. For the same reason, airports operators can be reluctant to allow the establish- ment of an aerobatic box over their airport. The International Council of Air Shows website includes a wide variety and large number of documents related to emergency response, including sample emergency response plans, PowerPoint presentations from past council conventions, and emergency response-related articles from the back issues of Air Shows Magazine. The IAC is a source of safety information as well. Figure 5 provides a recent analysis of aerobatic accidents for the period 2008 to 2013. NOISE AND ENVIRONMENTAL REVIEW As part of the consideration for issuing a waiver for a long-term aerobatic box, the FAA is obligated to assess the box’s environmental impact, primarily from a noise standpoint (FAA 2015e). The engine- propeller combination on most aerobatic aircraft, coupled with frequent pitch and revolution changes, can generate noise that is irritating to some. To address the issue, the FAA had a study conducted in 2006 that sought to better identify and model the type and effect of noise from aerobatic activity FIGURE 5 Number of aerobatic accidents by type, 2008–2013 (Source: Johnson 2014.).

30 (Boeker et al. 2012). It was concluded that none of the piston engine aerobatic routines flown in the study would have exceeded 65 dBA DNL at distances 0.25 mi or more from the center of the practice box. The study recommended that heavily utilized practice boxes be located 0.5 mi or more from noise-sensitive receivers. Environmental reviews can delay a waiver or authorization for a special aeronautical activity. Environmental assessments are not considered for temporary aerobatic practice areas to be used 10 consecutive days or fewer. While it is the responsibility of FAA to evaluate the impact, an airport can improve the review process by submitting a voluntary environmental information document (FAA 2011a).