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

Chapter: Chapter Fifteen - Case Examples

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Suggested Citation:"Chapter Fifteen - Case Examples ." National Academies of Sciences, Engineering, and Medicine. 2016. Combining Mixed-Use Flight Operations Safely at Airports. Washington, DC: The National Academies Press. doi: 10.17226/23568.
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Suggested Citation:"Chapter Fifteen - Case Examples ." National Academies of Sciences, Engineering, and Medicine. 2016. Combining Mixed-Use Flight Operations Safely at Airports. Washington, DC: The National Academies Press. doi: 10.17226/23568.
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86 The following case examples explain some of the situations and experiences airport operators have at their airports for accommodating various aeronautical users. Included are procedures, practices and steps they went through to address the various challenges on their airport. CASE EXAMPLE—KEENE DILLANT–HOPKINS AIRPORT (KEEN) Dillant–Hopkins Airport in Keene, New Hampshire, has an aerobatic box established by the New England Aerobatic Club (Figure 39) where several aerobatic pilots from the club participate. Although individual routines last less than 15 min each, the practice continues most of the day to accommodate multiple pilots. Initially, the club’s waiver called for club to issue NOTAMs. The club wanted to further issue a NOTAM restricting practice touch-and-go operations while the box was active. The city viewed the aerobatic club favorably and wanted to accommodate its activity but was uncomfortable with the club issuing NOTAMs. Discussions followed that included the local flight schools and the aerobatic club. The aerobatic box has a floor of 1,500 ft AGL, which is 500 ft above the normal traffic pattern. The aerobatic club and airport management’s concerns were the occasional aircraft flying out of the box and that student pilots frequently used the facility. Of more concern was the transient pilot who did not check NOTAMs beforehand or who did not properly use Unicom when transiting or entering the area. The airport also had a voluntary noise abatement practice that precluded modifying existing traffic patterns. CASE EXAMPLE—MINDEN–TAHOE AIRPORT (KMEV) The local flying school had no objection to conducting student training while the box was active and used the situation to promote student learning and awareness. As a result, the airport entered into a licensing arrangement with the club that could be revoked at any time if conditions were not met. The licensing conditions stipulated the box could be used only five times per year, on Saturdays only; that activation of the box would be after 10 a.m.; spotters with radios would monitor Unicom; and a safety briefing open to the public would be held before each practice. Student touch-and-go train- ing would be restricted. The FAA recommended that pilots not fly under the aerobatic box when it was active. The aerobatic box was activated by the authorized club member, at which point the FSS issued a standard NOTAM. The airport would include the NOTAM on its AWOS announcement, as it is believed that transient pilots are more likely to monitor winds and weather announcements than Unicom. Minimum Standards The Minden–Tahoe Airport is a diverse GA airport that operates at a profit solely from aeronautical revenues. The airport welcomes all kinds of aeronautical activity to help sustain its operation and has adequate space to accommodate them. Its location on the east side of Lake Tahoe and the Carson Mountain Range lends itself as a major attraction for glider operations. Although not listed on the FAA airport master record, the airport is home to more than 100 gliders. chapter fifteen CASE EXAMPLES

87 Prior to a management company taking over operations in 2010, the airport frequently experienced “wild west” conditions, as gliders, tow aircraft, based aircraft, aerial applicators, and others vied for different runways and space on the uncontrolled airport. The key to turning things around was establishing policy documents, such as minimum standards and rules and regulations (documents are available at http://mindentahoeairport.com/about-us/documents-and-forms/). Going through the public process of developing the documents signaled the county’s intention to bring order to the airport facility. As stated in MEV minimum standards, the documents’ purpose is to: • Promote safety; • Promote the economic health of airport businesses; • Protect airport users from unlicensed and unauthorized products and services; • Protect the investment of providers of aeronautical services meeting minimum standards from competition not making a similar investment; • Improve community relationships; • Promote the orderly development of airport property; and • Encourage high quality products, services and facilities to airport users. Once the MEV policies passed, airport management started mandatory monthly safety meetings for its prime tenants and operators. Access to the airport and leases became the means of enforcement. At first, opposition to the procedures was evident. But as new operating procedures were implemented, FIGURE 39 Diagram of the aerobatic box at Keene Dillant–Hopkins Municipal Airport (Source: E. Mattern, Keene Municipal Airport, New Hampshire. Used with permission.).

88 the tenants started to realize that the airport was becoming a safer place to operate. Buy-in from stake- holders became easier. The MEV rules and regulations address practices in the area of traffic patterns, runway usage, access to movement areas, radio requirements and CTAF practices, ground handling of aircraft (including glid- ers), helicopter operations, hot air balloon operation, aerial applicators operation, firefighting services, skydiving operations, proper conduct of the public when on the airport, and other matters. RC model air- craft operation is prohibited. The airport is currently working on UAS regulations. The state of Nevada is striving to be a leader among states in promoting UAS operations because of its expected economic con- tributions (documents are available at http://mindentahoeairport.com/about-us/documents-and-forms/). Glider and Parachute Operations Glider tow operators and gliders use traffic patterns opposite from the fixed-wing aircraft. Helicopter patterns are established in concert with the airport manager’s office review. Because glider traffic patterns progress through the drop zone for skydivers, the airport’s rules and regulations specify a coordination procedure involving the use of the CTAF and persistent announcements of activity. Jump aircraft give 5-, 2-, and 1-min announcements prior to jump. Included in the announcement are approximate position of jump aircraft, location of the jump zone, and approximate time jumpers will be in the air. When jumpers are exiting, the jump plane pilot announces their exit. When all jumpers are on the ground, the skydive operator is to specifically announce “Minden–Tahoe traffic, jumpers on the ground.” Jumper coordinators on the ground are to have two-way radios. The drop zone is located on airport property but outside the airfield fence. Skydivers are shuttled back through a fence and onto the airfield as part of the control process. Currently, only tandem skydiving is allowed regularly. Gliders preparing for takeoff are staged in a designated ramp area. When ready, they are hooked up and towed onto the runway by the tow aircraft. No staging occurs on the runway. A dirt runway, parallel to the secondary runway and adjacent to the glider staging area, is used by tow airplanes and gliders for landing purposes only. One suggestion airport management has for other airports with glider activity, is to design glider turn-out areas off the runway. The turn-outs allow for the glider to roll clear of the runway for recovery, rather than settle on the runway and cause delays in runway use by others. Aerial Firefighting Operations During fire season, MEV can serve as a staging point for aerial firefighting operations. The airport leases an area on a former (now closed) runway to the forest service and operating company. When service is activated, the fire control management company erects a temporary ATCT to manage traffic. Controllers are contractors approved and certificated by the FAA. A NOTAM is issued identifying the ATCT is in operation. Revenue is generated through the lease arrangement and a daily aircraft use fee. The lease allows for the storage and dispensing of retardants with proper environmental precautions. The firefighting service uses both fixed-wing aircraft and helicopters. CASE EXAMPLE—BOULDER MUNICIPAL AIRPORT (KBDU) Situated at the base of the Rocky Mountains, the Boulder Municipal Airport (KBDU) in Colorado is a natural location for glider and sailplane activity. Home to more than 40 gliders, the uncontrolled airport is challenged to integrate aeronautical activity on its limited land area. KBDU has one paved runway and a second parallel turf runway designated for gliders. The length of the paved runway precludes major jet traffic, but piston engine business aircraft use and heavy flight training activity add to the congestion. The airport is just outside of the Denver Class B airspace and lies beneath a busy north-south corridor circumventing the airspace. Glider Operations A designated turf runway intended for gliders only is located inside the ROFA of the main paved runway. Because the glider runway is situated inside the primary ROFA, it currently has a modification

89 to standards to allow its use. Gliders parked along the turf runway are outside the ROFA. The conditions associated with the modification to standards as stated in the AFD are: • RY 08G/26G FOR GLIDER USE ONLY, 197 FT SEPARATION CNTRLN TO CNTRLN. GLIDER OPS AS CLOSE AS 60 FT PARALLEL TO RY 8/26. • SIMULTANEOUS APCHS TO, AND DEPS FROM, RY 8/26 AND 8G/26G ARE PROHIB- ITED. POWERED ACFT YIELD RIGHT OF WAY TO GLIDERS ON FINAL OR INITIATE A GO-AROUND FOR ADEQUATE SPACING. Problems arise when transient aircraft pilots have not properly reviewed the AFD and thus do not (1) understand that they need to go around if a glider is making an approach to the turf runway, and (2) runway 26 has a non-standard right-hand traffic pattern. Complicating matters are the glider traffic pattern approaches’ steep, tight turns close to the runway. To an uninitiated pilot, the glider can appear to cut off a fixed-wing aircraft on a normal traffic pattern approach if the fixed-wing pilot is unaware of glider operating procedures and that gliders will make steep close-in turns. Most of the gliders have radios; they make announcements over the CTAF. To accommodate the glider activity, a special traffic pattern is in effect for glider tow aircraft and gliders (Figures 40 and 41). The glider traffic pattern to the south of the airport is for student training with quick return capability back to the airport. The glider pattern can pose a conflict for pilots of aircraft transiting north-south between Denver Class B and the mountains. For more experienced glider pilots, the path to the northwest will take them to the foothills of the mountains. In cooperation with airport management, the glider operators have implemented a rigorous training program before students are released to fly on their own. Pilots from outside the area have to pass the glider orientation program before operating. The orientation program is part of a classroom instruction that explains FIGURE 40 Designated traffic patterns and flight paths for Boulder Municipal Airport (Source: Boulder Municipal Airport, Colorado, Noise Abatement and Traffic Pattern informational brochure.).

90 the airport’s operating rules and regulations, traffic pattern, operating areas, radio communications, and so forth. The table of contents from a recent training manual includes: • Transition to/from hangars • Glider launching • Returning to the airport after glider release • Pattern entry • Landing pattern • Landing on the glider runway, the area between runways or the main runway • Aborted landing procedure • Radio usage. To help make pilots more aware of the operations at BDU, the airport developed a glider towplane operating policy, which is posted on its website (see Appendix N). BDU’s website also FIGURE 41 Depiction of traffic pattern for noise mitigation at Boulder Municipal Airport (Source: Boulder Municipal Airport, Colorado, Airport Master Plan Update 2006.).

91 includes a section on traffic pattern noise abatement. A traffic pattern limitation is further published in the AFD: • MIDFIELD PATTERN ENTRY FROM THE SOUTH IS ONLY AVBL FOR GLIDER USE. Aerial Firefighting Operations The airport is sometimes a staging facility for aerial firefighting operations. Helicopters are primar- ily used. The helicopters use water buckets from nearby lakes, so no storage or transfer of retardants occur on the airport. The firefighting operations do engage in hot refueling activities, but this is done only by trained personnel authorized by the aerial firefighting agency. Parachute Operations In the past, skydiving companies did operate from the Boulder airport, but they had an off-site drop zone. Skydiving customers would arrive at the airport, obtain their in-class training and briefings, don parachutes, board the aircraft, and depart for a PDZ located on private land about 4 nm northeast of the airport. The plane would return and land, and customers would be shuttled back to the airport in a van. The arrangement worked well until the company lost its PDZ as a result of a zoning issue. The skydiving company then sought to establish a PDZ on the airport. Upon receiving the request, airport management held discussions with the operator. Airport management posited that it would be difficult to accommodate an on-airport PDZ because of the high level of glider traffic, complexity of existing patterns, and the limited space available for a drop zone. The city eventually declined the request and, as a result, a Part 13 complaint was filed. The complaint triggered a safety assessment by the FAA in September 2014. In discussions between airport management, the skydive operator, the USPA, the Denver FSDO, and the regional ADO, proposals for accommodating the aeronautical activity were evaluated. Personnel from FSDO conducted a safety assessment. Included in the review were two proposed drop zones, altering traffic patterns, alternating days of operation between skydiving and glider operations, alternating times of the day for each operation, limiting skydiving activity to mornings only before glider activity commenced, and establishing the presence of a landing zone safety officer to coordinate and direct skydiving operations. The conclusion of the FAA ADO compliance officer in January 2015 was that the city of Boulder had made a good faith effort to accommodate the skydive operation (M. Miller, personal commu- nication to J. Divan, Jan. 9, 2015). The FAA stated that “parachuting activity could not be said to be entirely incompatible with existing operations, the highest degree of safety in the public interest could not be maintained if both operations (glider and skydiving) were conducted over the same area at the same time.” In the safety assessment, the FSDO found the parachute operation posed a modest risk to existing operations and a change to those operating procedures would bring added risk. The skydiving operation chose to relocate to another airport. CASE EXAMPLE—LAKELAND LINDER REGIONAL AIRPORT (KLAL) Lakeland Linder Regional Airport (KLAL) is a busy GA reliever airport in central Florida that is home to the annual Sun ’n Fun Fly-in and Exposition. During Sun ’n Fun, the exposition hosts varied aeronautical activity that include balloons, ultralights, powered parachutes, light sport, aerobatic aircraft, skydiving, gyrocopter, helicopters, amphibious seaplanes, warbirds, and fixed wing aircraft of many sizes. Special operating procedures are put in place similar to those in place for the annual EAA Oshkosh event in Wisconsin. Several of the procedures from both airports have applicability to operations throughout the year. LAL has two intersecting runways and more than 103,000 operations in 2014. Based aircraft include 152 single-engine, 24 multi-engine, and 33 jet-based aircraft. The airport has a part-time

92 contract air traffic control tower that operates 16 h each day. The airport has a Part 139 airport oper- ating certificate and has received commercial air service in the past. KLAL is about to open a new U.S. Customs office. The airport operates a 24-h aircraft rescue and firefighting station. The airport is home to several large aircraft maintenance facilities, routinely stages military helicopter operations, and has an RC model aircraft operating area. The airport is popular in central Florida for students practicing instrument approaches. A portion of the airport is leased to the Sun ’n Fun organization. The agreement allows the airport to safely manage its Part 139 responsibilities and allows for flexibility in accommodating varied aeronautical activity. The leased area places responsibility for security access and maintenance on the Sun ’n Fun organization or tenants in the area. To accommodate and manage the varied activity throughout the year, airport management has implemented a number of procedures. A Special Operation Brief communicates the key aspects of an activity or event occurring on the airport (Appendix T). The Ops Brief lists event information, event contacts, timeline and staging of activities and events, and includes a note section for listing NOTAMs and responsibility assignments. General information about special events is further communicated by posting to the airport’s website, social media, and by email to tenants. Glider and Ultralight Operations The LAL airport is also home to an on-airport aviation aerospace academy high school, a college aviation program, and four other flight-training businesses. To accommodate the request of the Aerospace Academy Aeroclub for student training efforts, the airport is currently in the process of building a turf runway for use by taildraggers, antiques, and gliders. During Sun ’n Fun, the turf runway will serve the LSA and ultralight group. Once completed, an operating agreement with the Aerospace Academy Aeroclub will make the club responsible for the upkeep of the turf runway and surrounding area as part of their educational endeavor. The location of the proposed turf runway is approximately 2,800 ft from, and parallel to, the main runway. It falls beneath one of the runway protection zones for the crosswind runway. Designed as a VFR daytime turf runway only, traffic to and from the runway will be controlled by ATC. The turf runway is being funded by a local benefactor of the Aerospace Academy and will be restricted to only those authorized users with prior permission. The traffic pattern will be at a lower altitude than the left-hand traffic for the main runway. The area designated for the turf runway is isolated from the main runway and is identified as a non- movement area under Part 139. ATC clearance will still be necessary to access the airspace. Student, pedestrian, and vehicle access is controlled through standard security badging and escort procedures. The steps involved in developing the turf runway are as follows: 1. Initial discussions and agreement among stakeholders 2. Submission of Interim ALP to the FAA showing the proposed runway location, design category A-1 3. Receipt of FAA conditional approval of ALP 4. Submission of the FAA Form 7460-1 Notice or Proposed Construction 5. Receipt of 7460 evaluation and conditions from FAA 6. Submission of the FAA Form 7480 Notice of Landing Area Proposal to FAA and state 7. Receipt of 7480 response and conditions 8. Evaluation and Submission of Environmental Assessment (Category X exclusion) 9. Submission of the Construction Safety & Phasing Plan (CSPP) for construction 10. Submission of FAA Form 7460-2 Notice of Actual Proposed Construction 11. Issuance of Notice to Proceed for construction 12. Construction of turf runway 13. Final inspection and acceptance 14. Revision of ATC Letter of Agreement, Airport Facility Directory, and Airport Operating Manuals.

93 Balloon Operations Balloon activity outside the annual fly-in is rare on the airport because the airport has Class D airspace, which requires a radio. The balloon operator and guests are either escorted onto the field by airport operations personnel or are issued security identification badges. Balloon operations during the annual fly-in are conducted in accordance with a waiver issued by the FAA for the event. NOTAM activation is initiated by the authorized holder of the waiver. Airship Operations The airport has served as a stopover point for blimp operations. It has adequate space to accom- modate a blimp’s movements and requirements. A blimp is normally positioned south of the primary runway and outside of various airport design surfaces for the runways. ATCT visibility is not impeded. The airship operator and guests are either escorted onto the field by airport operations personnel or are issued security identification badges. Helicopter/Vertical Takeoff and Landing Operations Helicopters, primarily used in law enforcement and the military, routinely use the airport. In coopera- tion with ATC, the airport has developed standard arrival and departure routes for the helicopters, depending upon which side of the field they will use. The routes help separate the helicopters from the fixed-wing aircraft as well as mitigate noise complaints in the community. Their flight path is below that of standard fixed-wing traffic. To prevent pavement damage, tenant helicopters or those arriving for maintenance often use a dolly landing platform. Transient helicopters locate at the FBO on a grass area. The FBO has responsibility for managing operations in its leased area. The military uses the airport as a staging area for a nearby training area. Blackhawks and Chi- nooks are the helicopters that frequent the airport. The airport also has been the site of several Osprey V-22 VTOL operations. LAL has adequate pavement to accommodate the helicopters and VTOL away from normal GA activity. The airport worked out operating procedures with the military and the ATCT to have arrivals over the runway and wheel taxi to the staging area. The procedures limit the damage done to the grass areas from the rotor wash. Figure 42 illustrates the rotor extension onto the grass taxiway safety areas and the position of the hot exhaust gases onto the pavement. Takeoffs and landings are accomplished on the runway and follow normal air traffic procedures to and from the airport. To reduce the consequence of rotor wash creating FOD on the taxiways, especially from the VTOL, the airport has made adjustments to mowing operations and collects the mown grass. FIGURE 42 VTOL operation on a taxiway (Credit: S. Walsh, Lakeland Linder Regional Airport, Florida. Used with permission.).

94 Aerial Advertising Banner Tow Operations The LAL airport discourages banner tow operators, as limited space is available for setup along the runway or taxiways. Other factors that reduce interest in banner tow operations are the insurance requirements, the fee structure, ATCT presence, and the need for security escort onto the field. Banner tow operators generally find more favorable operating requirements at a number of other airports in close vicinity to LAL. Aerobatic Operations Two aerobatic boxes exist at the LAL airport—a jet box and a piston-engine box. The jet box is primarily utilized by jet and warbird teams that practice in preparation for upcoming airshows and performance at Sun ’n Fun. However, a civilian jet team has requested and been authorized to use the jet box during the show season. The piston aerobatic box was established to benefit local tenants and competition fliers. The waiver was issued by FSDO to the airport. The box is only available to indi- viduals meeting airport requirements. The waiver and map used by the airport for authorizing users is provided in Appendix I. Two airport operations officers monitor the edges of the box during an aerobatic practice session. The length of time the box is active is generally only 15 min. A NOTAM is issued when a box is active, per the requirements of the waiver. Parachute Operations While skydiving is not a common activity on the airfield, an occasional request is made to use the airport, especially during Sun ’n Fun. Jump aircraft are normally loaded 15 mi to the northwest at well-known Skydive City in Zephyrhills, Florida. The recovery aircraft coordinates with KLAL operations personnel. An FAA authorization is obtained for the jump, and NOTAMs are issued by the responsible party identified. ATC controls local and transient aircraft during the jump. Radio-Controlled Model Operations KLAL has a dedicated paved area that is used by a local RC model club. The paved area is at the southern boundary of the airport but near the runway protection zone for the crosswind runway. Permission is granted to access the area through a controlled gate. An operating agreement restricts the height that RC models may obtain. The RC modeler is required to have one individual in radio communication with the control tower and KLAL operations at all times. NOTAM issuance is coordinated through KLAL operations personnel. Model aircraft operators are badged for access to the air operations area to retrieve any downed models that stray. There have been occasions when an RC model has been “lost.” Appendix T provides an example of a Special Operations Brief for the RC modelers. CASE EXAMPLE—TRUCKEE–TAHOE AIRPORT (KTRK) The scenic and high-mountain location of the Truckee–Tahoe Airport by Lake Tahoe, California, makes the airport a desirable site for varied aeronautical operations. The mission of the Airport District Board is to provide high quality aviation facilities and services to meet local needs, and to strive for low impact on neighbors while enhancing the benefit to the community at large. Being recognized as a noise sensitive and environmentally conscientious area makes it a challenge for airport manage- ment to balance the needs of the community, the tourism industry, airport tenants, and economic self-sufficiency, and the requirements of its federal grant obligations. TRK is a two-runway uncontrolled GA airport with more than 100 based aircraft and an estimated 25,000 annual operations. It has a high volume of seasonal glider activity and often has simultaneous operations on its two intersecting runways. As a result of high-density altitude conditions, the airport restricts ultralight operation to prior permission approval by airport management. In spring of 2014, airport management was approached by a skydiving company seeking sea- sonal operations at the airport. The airport was in the midst of having new minimum standards for

95 commercial operators approved. Because skydiving operations were not present at the time of devel- opment, the minimum standards did not reflect the possibility of skydiving. Since then, a new policy has been approved (Truckee–Tahoe Airport District 2014). As part of the policy and overall safety management system, the airport requires the implementation of a safety risk assessment for operational changes. The safety risk assessment process minimally examines on-airport safety issues, off-airport safety issues, and airspace issues associated with the PDZ. The skydiving company submitted an SMS program for review. The airport then had a third-party consultant conduct an independent safety analysis of the proposed skydiving SMS proposal. Management further engaged an aviation attorney to review the airport’s documents and its efforts in accommodating skydivers under its sponsor assurance responsibilities. The difficulty in seeking to accommodate the skydiving activity was in how to integrate the opera- tion without conflicting with existing glider operations or with voluntary noise abatement procedures flown by corporate and transient aircraft (Figure 43). Glider operations in the Truckee area have an established glider area depicted on FAA navigational sectional charts. The skydive company proposed an area that minimally impacted the glider activity (Figure 44). Airport management has been diligent in addressing the concerns of its tenants. In-depth meetings were held with involved parties to discuss each party’s concerns and possibilities. Open communi- cation kept everyone informed, especially the airport board of directors. As a result of the lengthy discussions, working through the issues, the development and passage of minimum standards, the FIGURE 43 Diagram of different traffic patterns for gliders, tow aircraft, and skydivers at Truckee–Tahoe Airport, California (Source: Property of Convergent Performance, LLC. Used with permission.).

96 development and analysis of safety and risk, and a goal of accommodating aeronautical activity, no informal or formal complaints have been filed with FAA. Feedback received by the airport from the Reno FSDO and the Western Regional ADO stated that the airport was proactive in its efforts to accommodate skydiving activity, and had done more so than other airports to accommodate the proposed activity, with its safety analysis. Because the glider and skydiving operation would be operating adjacent to each other, there was concern on the part of the airport that conflicts could arise. To help mitigate the conflict, all parties entered into an LOA that addresses the need for cooperation, behavioral expectations, communication and deconfliction, safety, operations affecting community annoyance, and adherence to SOPs. A special provision in the LOA allows the Airport District to act as the primary arbiter in case of disagreement before any operator seeks FAA involvement. Airport management is also to be involved in all con- versations related to shared facilities, airspace use, shared safety protocol, and shared communication (radio) protocols. The skydiving operation is set to commence operation in spring of 2016. The lease and SOPs developed for skydiving operations include the following: • Use of USPA guidelines • SOPs become part of the lease and enforceable as such • Safety is 1st. • All aircraft to have operating radios • Pays land rent and cost or maintenance and repair or premises • Allows suspension of activity during peak aeronautical activity • No alcohol or illegal substances on airport property • All skydivers are to read and sign the skydiving SOPs. • Notification to ATC or jump operation • Identification of aircraft position reports and time to jumpers away • Stray jumper recovery • Announcement of skydivers on the ground • Crowd control and use of golf carts. The SOPs developed for gliders include the following: • Safety is 1st. • All glider pilots are to undergo familiarization training. FIGURE 44 Proposed airspace plan combining skydiving and glider activity at Truckee–Tahoe Airport, California (Source: Property of Convergent Performance, LLC. Used with permission.).

97 • All glider pilots are to read and sign the glider SOPs. • All gliders are to have operating radios. • Timely commencement of flight to minimize runway occupancy time • Use of tail dolly requires attendant to remove it. • Tail dolly used as count of sailplanes in the sky • Aircraft tow announcements made prior to takeoff • No dumping of water ballast below 400 ft • Crowd control. Information on the various documents presented in this case example can be found in the 2015 May–September Board of Directors minutes as posted at https://truckeetahoeairport.com/ administration/board/meetings. The final report can be accessed at: https://truckeetahoeairport.com/ board_meetings/122/view_file?file=TAB+11+-+Skydive+Lake+Tahoe.pdf. CASE EXAMPLE—FARIBAULT MUNICIPAL AIRPORT (KFBL) Glider Winch Operations Faribault Municipal Airport (FBL) is a GA airport with one 4,257-ft paved runway and a 2,300-ft turf runway. Nine gliders are based on the field to complement the 53 fixed-wing aircraft. The airport also has ultralight activity, primarily powered parachutes. There were approximately 18,700 operations in 2014. Unique to glider operations at FBL is the use of a motorized winch to launch the gliders. More common in Europe, there are but a dozen or so winch operations used in the United States. The commercial glider operator uses a Socata Rallye 235 as a tow aircraft, but it is considered more economically and environmentally effective to launch aircraft using a powered winch. There are no FAA regulations specific to winch launching. The winch unit is a towable piece of equipment secured to a vehicle. The equipment is generally located beyond the departure end runway end safety area and object-free area, but within the runway protection zone (Figure 45). The winch rope is strung alongside the edge of the pavement and extended the entire length of the 4,257-ft runway. An ATV-type vehicle runs the rope the length of the runway. The unit is required to be equipped with a radio and a flashing beacon. No special airfield training was provided to the operators because most are pilots. With the glider positioned at the opposite approach end of the runway from the winch, a hook-up is completed, announcements are made on CTAF, and a launch commences. Caution is exercised in laying the tow rope so to not ensnare weeds, brush, or lights beside the runway. During a launch, the rope line rises several feet above the runway surface. In the event the crosswind runway is to be used by another aircraft, the airport manager requires the glider operator to station a person with a radio at the intersection of the turf and paved runways to warn pilots of the cable obstacle. If a pilot calls on CTAF intending to use either runway, the glider operator is to take measures to accommodate FIGURE 45 Glider winch equipment past the runway end (Credit: D. Ingraham, Cross Country Soaring, Faribault, Minnesota. Used with permission.).

98 fixed-wing traffic by retracting the rope or by towing the winch device outside the runway protection surfaces. The launch results in the glider rising to above 2,000 ft, at which point the tow rope is released by the glider pilot. A small parachute slows the rope’s fall while at the same time the winch is reeling it in. FAA does suggest that a 2-min window be allowed for no aircraft activity after a glider release from a winch rope (FAA 2011c). The time allows for safe retrieval of the tow rope. Upon return and using a right-hand pattern, the glider lands on the runway. No NOTAMs are issued, other than the standing NOTAM in the Remarks section of the AFD: • ULTRALIGHTS & GLDRS USE TAXIWAY AND EXTENDED TAXIWAY PARALLEL TO RY 12/30. ULTRALIGHTS & GLDRS USING TAXIWAY FLY PATTERN ON ‘NE’ SIDE OF RY 12/30. Because of the low operational use of the airport, problems have been minimal, although some have cropped up. One occasional problem is the tow rope falling to the far extremes of the runway sides, depending where the glider pilot releases it. Runway lights have been damaged when the launching glider veered off the edge of the runway. Tow rope breakage has occurred, as with regular aircraft-towed operations. Glider procedures and training allow the pilot to safely recover from any height. The concern of the airport manager has been more related to the length of time it takes to stage and recover the gliders. It can take up to 5 min to complete a launch or retrieval. Although it is not a high operation airport, the concern is for delay and irritation from other pilots. The other concern is for the number of persons and vehicles near the runway (Figure 46). Overall, the airport manager believes both ultralight and glider operation are beneficial to the airport from a community relations perspective. It shows the airport is busy and the activities attract local sightseers. Ultralight Operations The airport is the site of powered parachute operations during the summer months. A large grass area between the hangars and the runway is made available for their operation. Powered parachute opera- tions generally occur early in the morning or late evening, when winds are calmest in the Midwest. Any complaint generally stems from someone else being inconvenienced. Aerial Agriculture Operations The airport used to have agriculture operators at the airport, but the airport’s drainage system is now tied into the city’s wastewater treatment center. The potential for having to process a spill or cleaning would exceed the capabilities, so aerial applicators have located elsewhere. FIGURE 46 Staging of glider and equipment near runway (Credit: D. Ingraham, Cross Country Soaring, Faribault, Minnesota. Used with permission.).

99 CASE EXAMPLE—ALBERT WHITTED AIRPORT (KSPG) The Albert Whitted Airport is located on a peninsula that fronts on the Gulf of Mexico and helps form Tampa Bay. Because of its location close to beaches and to sports and cultural arts activities, the airport has been a site of aerial advertising since the early 1970s. In compliance with its grant assurances, the airport accommodated competing aerial advertisers on its limited acreage. But the arrangement was less than satisfactory, as competing businesses attempted to operate from the same area. In 2011, the airport sought to address its obligations under the grant assurances while resolving the operational issues by issuing a request for proposal for a single aerial advertising firm to lease space at the airport, and to man- age the banner tow operating area. Under the management arrangement, the aerial advertising firm could supplement its existing on-airport operations by subcontracting with any number of off-airport banner operators or even with airport tenants if they met the minimum standards to conduct banner operations. A consolidation of aerial banner business resulted in one aerial advertising company operating at the airport. They operate from an area adjacent to the runway but outside the object-free area (Figure 47). Access to the banner pickup and dropoff area requires personnel and vehicles to cross a taxiway and runway that is under the positive control of a contract ATCT. Radio contact is necessary, and access to the area is at the banner operator’s risk. A separate LOA was entered into with the contract ATCT operator and the city that delineates the duties and responsibilities of each party. The closeness of the banner operations to the runway prevents simultaneous operations with other aircraft. With the airport surrounded by water, an emergency drop is expected to be in the bay. The banner tow operator has obtained a waiver of 14 CFR Part 91.311. The waiver identifies which aircraft and pilots are authorized, geographic operational area, weather limitations, duration of waiver, and special conditions such as training, personnel responsibility, notices, public safety. CASE EXAMPLE—VENICE MUNICIPAL AIRPORT (KVNC) The Venice Municipal Airport is a busy uncontrolled GA reliever airport on the gulf coast of Florida. The airport has two intersecting runways and has a noise abatement program because of housing close to the airport. Because the area is a tourist location and serves a retirement community, transient FIGURE 47 Banner towing operational lease areas contained in a request for proposal (Source: R. Lesniak, Albert Whitted Airport, Florida. Used with permission.).

100 jet and turboprop aircraft frequent the airport, especially during the winter months. An annual balloon event is conducted. The airport is occasionally visited by a blimp. The airport has a wide range and mix of aircraft operations and use. Based aircraft include 178 piston single-engine, 20 multi-engine, three jet, and four helicopters. Powered parachutes and parasail operations are conducted a mile from the airport along the gulf shore. The airport has one based flight school and numerous others that frequent the airport, including one school that caters to foreign students and one that provides helicopter training. A request by a skydiving business to oper- ate at the airport resulted in an FSDO site assessment. The city has been diligent in seeking means to determine whether the airport can safely accommodate the skydive operation. Its efforts are ongoing at the time of this report. Figure 48 shows the three PDZ locations being considered. An independent analysis using the FAA’s safety risk management guidance has been undertaken. As part of the risk assessment, the following hazards and mitigations were identified. Skydiving risk hazards: • Skydivers transitioning through congested airspace and airway routes • Skydiving operations crossing active runways or taxiways • Skydiving operations occurring close to active runways • Large and diverse volume and mix of aircraft • Congested traffic pattern at peak hour operations • Congested or blocked radio transmissions • Unannounced or non-radio traffic operation • Large and fast aircraft operations in vicinity of proposed skydiving activity • Student pilots with varying degrees of proficiency and communication/language skills • Transient aircraft unaware of skydiving operations • Pedestrian activity (landed skydivers) in vicinity of aircraft movement area (potential runway incursion) • Ground vehicles operating on aircraft movement area (potential runway incursion) • Military helicopter operations in vicinity of skydiving activity • Ultralight and powered parachutes operations in vicinity of skydiving activity • FAA regulations regarding the safe conduct of skydiving activities in a congested and dynamic operating environment not well established • Limited ability of the airport sponsor to establish, disseminate and enforce procedures for aircraft in flight. FIGURE 48 Site analysis of parachute drop zones and aircraft traffic patterns at Venice, Florida (Source: C. Rozansky, Venice Municipal Airport, Florida. Used with permission.).

101 Skydiving risk mitigations: • Provide alternate travel route for parachutists to avoid crossing runways/taxiways • Post signs at crossing points with instructions for skydivers and pilots • Provide training to skydivers regarding runway/taxiway crossing procedures • Provide vehicle driver training for those assigned to recover skydivers • Establish and disseminate best practices for operations in the vicinity of skydiving • Skydiving operator to establish and disseminate operating procedures • Provide safety briefings with based tenants and known users • Locate the DZ site to avoid creating existing or potential hazards • Post signs advising pilots and skydivers of possible hazard by prop wash or jet blast • Establish and disseminate rules and regulations for ground operations • Provide outreach to regional airports, FBOs, flight schools and instructors, flying clubs, pilot organizations, military units, air ambulance, regional helicopter, and corporate operators • Change CTAF to a more discrete frequency • Skydiving operator use CTAF to inform local traffic of skydiving operations in progress • Facilitate formal communications with ATC • FAA/Operator: Develop Letter of Agreement between ATC and skydiving operator • ATC: Establish distinct transponder code for skydiving aircraft. • Publish skydiving information in the Airport Master Record • Issue NOTAM for skydiving operations • Append AWOS message to inform about skydiving operation • Have parachuting symbol depicted on appropriate Sectional Chart if eligible. • Use visual indicators (flags, banners, etc.) on the airport to alert pilots of skydiving operations in progress • Establish and disseminate best practices in the vicinity of skydiving. CASE EXAMPLE—ARLINGTON MUNICIPAL AIRPORT (KAWO) Ultralight and Glider Operations Arlington Municipal Airport is an uncontrolled GA airport with a broad mix of aircraft activity. When asked what benefit the airport derives from accommodating various mixed-use aeronautical activities, the airport manager responded, “A delightful mix of flying machines!” First developed in 1934 and later improved by the Army and Navy in the 1940s, the current triangular runway layout of KAWO allows for the accommodation of a number of different aeronautical users. The mix includes business jets, turboprops, piston-engine, historic military and antiques, gliders, helicopters, gyro- copters, powered parachutes and other ultralights, tethered balloons, and aerobatic aircraft. The airport estimates it has more than 400 based aircraft, including 11 jets, 12 helicopters, 45 gliders, and 60 ultralights. Total number of operations was approximately 62,000 in 2013. To accommodate the various users, KAWO currently has two paved runways, one designated turf runway for fixed-winged aircraft within the ROFA of the crosswind runway, one designated turf area for ultralights away from all runways, and three successive turf glider operating areas parallel to the main 5,332-ft runway but outside the ROFA. The turf runways are used at the pilot’s discretion and risk. Traffic Patterns To manage the various activities, the airport has developed and publishes a traffic pattern diagram (Figure 49) and a traffic pattern information brochure (Figure 50). The information is posted in the operating areas of the ultralights and gliders areas and posted on the airport’s website. The airport manager conducts quarterly user group meetings to address safety and operational concerns. The airport allows glider and ultralight personnel to access their respective areas in accordance with the airport’s rules and regulations. Airport operating rules and regulations exist to specifically govern each type of aeronautical activity and are regularly reviewed and updated (see Appendix D).

102 FIGURE 49 Traffic patterns for Arlington Municipal Airport, Washington (Source: Arlington Municipal Airport Traffic Pattern Map, http://www.arlingtonwa.gov/index.aspx?page=98).

103 FIGURE 50 Traffic pattern information card for Arlington Municipal Airport, Washington (Source: Arlington Municipal Airport Brochure, http://www.arlingtonwa.gov/index.aspx?page=90.).

Next: Chapter Sixteen - Conclusions »
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TRB's Airport Cooperative Research Program (ACRP) Synthesis 74: Combining Mixed-Use Flight Operations Safely at Airports documents practices in safely accommodating mixed-use aeronautical activity at airports. Mixed-use aeronautical activity refers to the different categories of aircraft a public-use airport is intended to accommodate in compliance with FAA sponsor assurances. These categories include gliders, helicopters, ultralight vehicles, balloons, airships, blimps, skydiving, aerial applications for agriculture and firefighting, banner towing, aerobatic practice, and similar flight operations. Also discussed are unmanned aircraft systems and radio-controlled model aircraft activity that take place on an airport and can become part of the mix of an airport’s operation. Not discussed are seaplane operations; ACRP Synthesis 61: Practices in Preserving and Developing Public-Use Seaplane Bases covers this topic.

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