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

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21 In accommodating mixed-use operations, an airport is challenged in two ways: (1) operational accommodation in the airspace and runway environment, and (2) logistical accommodation on the airfield. This chapter provides insight into both aspects for the aeronautical activities covered in this report. More specific adaptations may be covered in each chapter under an individual aeronautical activity. AIRFIELD DESIGN An ALP is a prerequisite for eligibility to receive federal funding. Under Sponsor Assurance 29, an airport operator agrees to keep up to date at all times an ALP that shows the location of all existing and proposed aviation and nonaviation facilities and structures. For nonobligated airports, state standards can apply, which often mirror federal design standards. During this synthesis investigation, airport operators were asked if their ALP showed a unique mixed-use aeronautical operating area, or if their master plan evaluated provisions for a particular mixed-use aeronautical activity. Nine of the 36 airports indicated their ALP showed an operating area or an evaluation was made in the master plan. Advisory Circular 150/5300-13A provides guidance on the development of airports, including turf runways for ultralights (FAA 2012b). Separate ACs exist for the design of heliports and helipads and seaplane bases: AC 150/5390-2C (FAA 2012f) and AC 150/5395-1A (FAA 2013d). Detailed information on the design of airfield and airspace associated with a particular aeronautical activity is presented in each respective chapter of this report, as appropriate. Design category A-1 is used for most ultralight and glider runways, although the wingspan of gliders can increase the category code. Guidelines for the design of a PDZ are found in the USPA’s Basic Safety Requirements (BSR) and in AC 105-2E on sport parachuting (USPA 2013; FAA 2013b). RUNWAY DESIGNATION The FAA allows an airport operator to attach a “U” suffix to a runway designation to signify it is for ultralights. A runway does not have to have designation markings. Only one airport was observed in all the AFDs to have a runway designated with a “U” for ultralight. Several airports had remarks that a runway was to be used for ultralights, but they did not have the “U” designation. A runway designation can also be modified with the suffix “G” for glider runway or “W” for water landing area. Suffixes for helipads (H) and balloon (B) areas are also allowed on the Airport Master Record Form 5010. A review of ALPs for airports having ultralight and glider operations found that a few had dedicated turf runways or areas that were not listed on the ALP. Those airports allowed takeoff and landings, with the pilot assuming the risk of operation. A search did not find any direct federal regulatory pro- hibition against using turf alongside an existing paved runway for an aeronautical activity, such as for ultralight, glider, or taildragger operations. However, permitting requirements from state aviation organizations or local ordinances, or rules or regulations may prevent such operations. A pilot is ulti- mately responsible for the safe operation of the aircraft. Seeking permission of airport management to operate on other than an approved surface is consistent with safe practice and decision-making. Turf runways that are within the runway obstacle free area (ROFA) of another runway can have safety implications. Normal safety practices do not allow other aircraft to operate while an aircraft chapter four AIRFIELD AND AIRSPACE CONSIDERATION

22 is on the runway, or in the runway safety area or ROFA. Figure 1 is a depiction of the turf runway adjacent to a runway at the Naples Municipal Airport in Florida. Some of the basic design factors or considerations found in the literature and through interviews that can affect or enhance safe aircraft operation of a particular aeronautical activity are: • Placing wind indicators and traffic pattern indicators on an airport; • Separating operating areas according to design criteria; • Grading, compaction, preparation and maintenance of areas adjacent to a runway; and • Maintaining runway safety areas, object free areas, and object free zone criteria. Because winds can have a more pronounced effect on ultralights, blimps, balloons, and gliders, providing visual indicators in the area of touchdown is a valuable safety measure. Normal design facilities would include a segmented circle, a wind direction indicator, landing direction indicators, and traffic pattern indicators. If a separate runway is established for a glider, PDZ, or ultralight operation, having a supplemental wind indicator in the area of landing is of value to the pilot or operator. AIRPORT TRAFFIC PATTERNS Regulatory and standard procedures exist for the safe interaction of various aeronautical activities in and around an airport. The procedures are described in 14 CFR Part 91 and the Aeronautical Infor- mation Manual (AIM) (CFR 2015; FAA 2014c). Additional safety information for airport managers appears in AC 90-42F, Traffic Advisory Practices at Airports Without Operating Control Towers; AC 90-48C, Pilots’ Role in Collision Avoidance; and AC 90-66A, Recommended Standard Traffic Patterns and Practices for Aeronautical Operations at Airports Without Operating Control Towers (FAA 1990a, 1983b,1993). These publications contain operating practices, procedures, frequencies, and phraseology for use when approaching or departing airports without an operating control tower, and for those that have part-time ATCTs. The regulatory requirements of Part 91 simply call for pilots of airplanes approaching to land to make all turns to the left, unless light signals or visual markings indicate that turns should be made to the right [14 CFR 91.126(b)(1)] (2015). The former is called a standard left-hand traffic pattern, FIGURE 1 FAA airport diagram of a turf runway adjacent to a paved runway (Source: FAA Airport/Facility Directory 2015.).

23 whereas the latter is called a non-standard right-hand traffic pattern. Any changes to a traffic pattern require notification to the FAA under 14 CFR 157 (2015). At controlled airports (those having an ATCT in operation), additional standard and local pro- cedures are established and controlled by the ATCT controller. The absence of an operating ATCT creates a need for increased vigilance on the part of the pilot. An uncontrolled airport is one in which aircraft movement is not regulated, either by the FAA or by an FAA-approved air traffic contractor. If an ATCT is not staffed, or is not in operation, then an uncontrolled airport environment exists. At an uncontrolled airport, the observance of a standard traffic pattern and the use of common traffic advisory frequencies (CTAF) procedures are found to improve the safety and efficiency of aeronautical operations. Conflicts can arise at airports when pilots do not follow the recommended practices. The literature review revealed a number of incidents that resulted from pilots not follow- ing recommended practices. A review of current practices at uncontrolled airports that use CTAF will be published in a forthcoming ACRP Synthesis report (Prather in press). The report provides an overview of FAA- and industry-established rules, regulations, requirements, and advisories that address non-towered airport operations, procedures, and communications, and case examples of local protocols and practices for providing advisories at uncontrolled airports. The responsibility for developing local procedures for operating gliders, parachutists, lighter-than-air (LTA) aircraft, helicopters, and ultralight vehicles lies with airport owners and operators. AC 90-66A provides information on normal traffic patterns (FAA 1993). At uncontrolled airports, traffic patterns are established by the airport owner or operator, using AC 90-66A as a guide. Procedures for Handling Airspace Matters, Order JO 7400.2K, serves as the source within FAA for handling technical matters pertaining to establishing or revising traffic patterns (FAA 2014f). Variations in the traffic pattern altitude near an airport can and do exist for a number of reasons. Primary factors affecting the pattern altitude are related to terrain and building avoidance, reduced noise exposure, or possible interference with other aircraft. Gliders, helicopters and ultralights often have traffic patterns that are at lower altitudes than that of fixed-wing aircraft. The different altitudes recognize the different speeds or operating characteristics of each. Jet aircraft cannot slow down to the speed of a piston or ultralight aircraft. Ultralights and gliders cannot match the speed of regular aircraft. By separating the patterns, safety is enhanced. No matter the operation at different altitudes, each pilot can enhance safety and prevent collision avoidance by being alert and scanning for other aircraft. Part 91 operating rules specify minimum safe altitudes for aircraft to fly. Normally, minimum downwind pattern altitudes are 1,000 ft above ground level (AGL) or the airport elevation. Because of their speed, large and turbine-powered airplanes typically have traffic patterns of 1,500 ft AGL. Traffic pattern altitudes for military turbojet aircraft sometimes extend up to 2,500 ft AGL. Information on a specific airport traffic pattern altitude is provided in the AFD, the official publication used by pilots for current airport information. AC 90-66A on ultralight vehicles suggests their pattern altitude should be 500 ft below and tight (or inside) the standard pattern established for the airport (FAA 1993). Although the patterns may be separate, they eventually join on the final approach and takeoff paths. For this reason, some airports in the study allow ultralights or gliders to land on the turf adjacent to the runway (see chapter fifteen). Figure 1 provides such an example. Figure 2 illustrates generally accepted traffic pattern procedures for ultralights, weight-shift control (WSC), and slow LSA. Part 91.119 allows for helicopters, powered parachutes, or WSC aircraft to operate at less than 500 ft over uncongested areas, provided this does not create a hazard to persons or property on the surface. Whether a hazard is created can be a matter of personal disagreement. The FAA will respond to a complaint and make an assessment on a case-by-case basis. Standard helicopter practice is to avoid the flow of fixed-wing aircraft. Helicopter traffic normally follows a right-hand pattern. This pattern also allows for greater pilot visibility, as a helicopter pilot is seated in the right seat, whereas a fixed wing pilot is seated in the left seat of a two-seat aircraft.

24 Regulations restrict certain aeronautical activity over densely populated or congested areas. In part, the restriction is intended to protect persons and property on the ground. Aeronautical activities most affected are aerial applicators, aerobatics, skydiving, and certain balloon and ultralight activity. The literature review revealed cases of disagreement as to whether or not an operation was being conducted over a congested area. The term “congested area” has not been defined by either the FAA or the NTSB. Instead, it is determined on a case-by-case basis and a number of factors are evaluated (R.B. MacPherson, personal communication to L. Simmons, March 8, 2010). Pertinent to this synthesis are basic requirements for right-of-way rules and minimum safe altitudes under Part 91 operating rules. As stated in Section 91.113, right-of-way rules apply to the following: • Any aircraft in distress has the right-of-way over all other aircraft; • A balloon has the right-of-way over any other category of aircraft; • A glider has the right-of-way over an airship, powered parachute, WSC aircraft, airplane, or rotorcraft; • An airship has the right-of-way over an airplane or rotorcraft; • An aircraft towing or refueling other aircraft has the right-of-way over all other engine-driven aircraft; • Aircraft on final approach to land or while landing have the right-of-way over other aircraft in flight or operating on the surface; • Aircraft at a lower altitude have the right-of-way over an aircraft at a higher altitude; and • Aircraft being overtaken have the right-of-way. A pilot can prevent collisions in the traffic pattern and on the ground by being alert and scanning for other aircraft. Under Part 91, it is the pilot’s responsibility to use vigilance in operating the aircraft so as to see-and-avoid other aircraft, regardless of whether the aircraft is operated under instrument or visual flight rules [14 CFR 91.113(b)]. Seaplane pilots operating on water are to give right-of-way to other vessels and follow United States Coast Guard regulations. Aerobatic practice areas (APA) or “boxes” located above an airport may require temporary adjustments to regular aircraft traffic patterns, as the FAA recommends aircraft avoid flying underneath an active APA. The FAA publishes aeronautical maps that depict symbols to alert pilots of a particular activity on or near an airport. The depictions are for glider operation, hang glider activity, parachute jumping area (PJA), ultralight activity, and unmanned aircraft activity. Figure 3 shows symbols appearing on FAA visual flight rules (VFR) aeronautical sectional maps. The FAA is currently considering addi- tional symbols, such as symbols for the location of an aerobatic training area and space launch activity (FAA 2015a). The FAA Aeronautical Information Services Division website has a Frequently Asked FIGURE 2 Separate traffic patterns for different speed aircraft (Source: FAA 2008b.).

25 Question Forum (https://www.faa.gov/air_traffic/flight_info/aeronav/faq/) to address the different aeronautical activities. Current questions include: • How can I get a symbol for a specific area put on a chart? • How can I update my airport diagram information? • How can I make a change to the Airport/Facility Directory? For on-airport operations, an AC 91-73B on Part 91 and Part 135 single-pilot procedures during taxi operations provides useful information and sample operating procedures for pilots (FAA 2012d). The information contained in the AC can be adapted by airports for incorporation into rules and regulations associated with a specific aeronautical activity. The AC provides practical guidance and SOPs with the goal of increasing safety and efficiency of aircraft movement on the airport surface. AC 120-74B, on Parts 91, 121, 125, and 135 flightcrew procedures during taxi operations, provides similar informa- tion for multi-crew operations on airports (FAA 2012e). For taxi operations at airports with a function- ing control tower, the FAA provides further guidance in Taxi Clearances: Know the Rules, Understand Your Clearance (FAA 2007b). Appendix G provides examples of remarks from the AFD for several airports. The remarks reflect different traffic patterns associated with a particular aeronautical activity. It is apparent 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. CERTIFICATE OF WAIVER OR AUTHORIZATION Federal aviation regulations (14 CFR 91.303) require pilots conducting or performing certain aero- nautical activities—such as aerobatic practice areas (APA), skydiving, and banner towing—to obtain FAA authorization or waiver (2015). The authorization or waiver is primarily contingent upon being able to safely conduct the activity in a particular location. A waiver provides temporary relief from certain FAA rules related to operation of an aircraft, such as minimum safe altitude limits, aircraft speed limitations, and operation within ATC-controlled areas. If the activity does not require a waiver of regulations, then a Certificate of Authorization (COA) can be issued. AC 91-45C informs a pilot or airport operator how to obtain an authorization or waiver of federal regulations for a certain activity (FAA 1990b). FAA Form 7711-2 is the application form for requesting an authorization or waiver. Upon submittal of a request, Flight Standard District Office (FSDO) person- nel will evaluate and often conduct a site assessment before approving a request. FAA Form 7711-1, Certificate of Waiver or Authorization, is the approval form from the FAA. The issuance of a waiver for an aeronautical activity is the responsibility of the FSDO manager for the geographic area in which the activity is located. Each waiver is evaluated on a case-by-case basis. An evaluation of the application is made to assess the safety and efficiency effects on the airspace and air traffic system. The FSDO will coordinate any aerobatic application with an air traffic division and issue a waiver or COA based on safety assessment. FIGURE 3 Depictions of aeronautical activity on VFR sectional charts (Source: FAA 2015a.).