CHAPTER 1

Introduction

Previous publications, including ACRP Synthesis 116: Examples of Facility Space Provided for Community Use at Airports, have found that some airports provide space or property for parks and recreational use (Karaskiewicz and Swanson, 2022). There are also airports interested in providing such space for community benefit. This synthesis attempts to better understand current practices by airports that became more in tune with their communities by developing publicly accessible parks or recreational use areas. Through a literature review and telephone interviews with staff at 11 airports, this synthesis describes considerations for designating portions of airport property for publicly accessible parks or recreational use. Challenges related to airport land use are explored, with an emphasis on the community benefits of parks. This synthesis does not include discussion of special or periodic activities such as car shows, marathons, or similar events.

The case examples and findings presented in this synthesis will likely not be appropriate to all airport circumstances. For example, grant assurances apply only to federally obligated airports. Airports not included in the National Plan of Integrated Airport Systems (NPIAS) are not eligible for Airport Improvement Program (AIP) funding and thus may have more discretion in developing parks or recreational uses on airport property. It may be prudent for airport staff to consider their unique airport property boundaries, long-term needs for aeronautical uses, and community needs when evaluating what type, if any, of park or recreational use will be possible. Coordinating with the local Airports District Office (ADO) is imperative.

Sustainability

Although airports may define sustainability differently, it is helpful to adopt a common definition to guide sustainability initiatives.

In simple terms, some businesses may only consider the triple bottom line when discussing sustainability. This view considers the “three P’s”: profit, people, and the planet. However, it is more holistic for airports to consider the areas included in the EONS framework (economic viability, operational efficiency, natural resource conservation, and social responsibility).

According to the Global Reporting Initiative (2011) and Thomson and Delaney (2014), airport sustainability initiatives can be categorized into one or more of the following categories using the EONS framework:

• Economic viability (E)
• Operational efficiency (O)
• Natural resource conservation (N)
  • Air quality enhancement/climate change
  • Energy conservation/renewable energy
  • Noise abatement
  • Water quality protection and water conservation
  • Land and natural resources management
  • Land/property use
  • Pavement management
  • Materials use and solid waste reduction/recycling
  • Hazardous materials and waste management/reduction
  • Surface transportation management
  • Buildings/facilities
• Social responsibility (S)
  • Socioeconomic benefits
  • Community outreach/involvement

Of the four EONS areas, airports are naturally driven to be economically viable. When airport sponsors accept funds from FAA-administered airport financial assistance programs (such as the AIP), they agree to certain obligations (or assurances). Although the assurances are numerous, Grant Assurance 24—Fee and Rental Structure, requires airport sponsors to “maintain a fee and rental structure for the facilities and services at the airport which will make the airport as self-sustaining as possible under the circumstances existing at the particular airport, taking into account such factors as the volume of traffic and economy of collection” (FAA, 2022b, p. 11). Thus, this drive to be economically viable is required for federally obligated airports by the FAA through sponsor grant assurances.

Airports are also naturally operationally efficient. FAA Grant Assurance 19—Operation and Maintenance, states:

It may be assumed that operational efficiency is required by the FAA for federally obligated airports through sponsor grant assurances.

Natural resource conservation practices may be new to some airports, but this area is relatively easy to understand and is often what most people think of when sustainability is discussed. Environmentally sustainable initiatives are more frequently observed at airports. Whether this is in the form of recycling programs, LED lighting, or low-flow toilet fixtures, many airports have initiated some form of natural resource conservation efforts. Additionally, various FAA programs are available to assist airports with measures to conserve natural resources. For example, the FAA Voluntary Airport Low Emissions (VALE) Program is designed to help airports:

Of the four EONS areas, the fourth, social responsibility, may be the most elusive for airports. This area refers to how the airport will be perceived as socially responsible in the eyes of various stakeholders, which include the communities adjacent to the airport. Thus, this EONS area is more reliant on outcomes than on inputs. Perception is important. For example, if an airport invests several million dollars in an aircraft engine run-up enclosure in order to reduce the sound levels associated with maintenance runs of aircraft engines that reach the neighboring community, but the community does not perceive any noise reduction, then this investment did not yield the anticipated results in the social responsibility area.

Communities bordering airports may be vocal critics of the airport, so conveying the benefit of the airport and airport initiatives to this community may be difficult. How can an airport convince its surrounding community that the airport is socially responsible? What measures can the airport take to be more socially responsible?

To fully answer these questions, it is useful to understand social responsibility. The FAA defines social responsibility as “a broad set of actions that ensure organizational goals are achieved in a way that’s consistent with the needs and values of the local community” (FAA, 2015a, para. 1).

Airport management may ask how the airport can act in a socially responsible way to meet the needs and values of the local community. Although this can be accomplished in a number of ways, for the purpose of this synthesis, airports may consider converting unused airport land for parks and recreational use in order to benefit the community. This would be a step toward meeting the needs and aligning with the values of the local community and as a result being perceived as a more socially responsible airport.

Land Uses

There are various methods airports may use to meet social responsibility goals. Airport-specific resources on social responsibility include ACRP Synthesis 119: Considerations for Establishing and Maintaining Successful Pollinator Programs on Airports (Lurie et al., 2022) and ACRP Synthesis 69: Airport Sustainability Practices—Drivers and Outcomes for Small Commercial and General Aviation Airports (Prather, 2016). These ACRP synthesis reports indicate that activities such as honeybee farming, community farming, or creation of an airport community center can produce societal benefits. Depending on the proposed use, designation of airport land for non-aeronautical use may be required by the FAA. A comprehensive land use planning effort is necessary for FAA review and approval.

When airports consider land that may be dedicated for parks and recreational purposes, they should consider all airport land uses in order to ensure that the selected purpose is compatible with the airport. The use of airport property, including land adjacent to the airport, is perceived as either compatible or incompatible with the airport environment. The FAA, in Grant Assurance 21—Compatible Land Use, requires airport sponsors to:

According to the FAA, there are four primary variables to consider when evaluating the types of land uses that are compatible around airports:

• The impact of aircraft noise and noise compatibility planning
• The potential for airspace conflicts from tall structures in the vicinity of an airport
• The possibility of electronic interference with aviation navigation aids
• The potential for interaction between aircraft and wildlife attractants (FAA, n.d.-b., p. I-2)

Although the degree of compatibility varies depending on the specific use, “aircraft noise has been the primary driver of airport land use compatibility conflicts” (FAA, n.d.-b., p. ES-1). That being said, noise is not the sole concern when considering compatible land uses. “Land use decisions that conflict with aviation activity and airport facilities can result in undue constraints being placed on an airport” (FAA, n.d.-b., p. I-3).

On the other hand, airport-compatible land uses are defined as “those uses that can coexist with a nearby airport without constraining the safe and efficient operation of the airport or exposing people living or working nearby to unacceptable levels of noise or hazards” (FAA, 2022a, p. A-5).

One goal of airport management is to ensure that all land use is compatible with the airport. To ensure compatible land use, it is important to engage in airport land use planning—and to do so in a collaborative fashion. “It is extremely important, as air travel becomes constantly more popular as a preferred alternative for transporting people, goods, and materials, that airport planners and local land use planners work together toward cooperative land use planning efforts” (FAA, n.d.-b., V-33). Collaborating with local zoning officials to enact zoning restrictions may prevent incompatible land use.

According to the FAA, “The objective of aviation-related land use planning is to guide incompatible land uses away from the airport environs and to encourage compatible land uses to locate around airport facilities” (FAA, n.d.-b., p. ES-1).

Airport staff can learn more about airport land use compatibility planning in Advisory Circular (AC) 150/5190-4B–Airport Land Use Compatibility Planning. The AC is intended to “help a broad audience understand the effects of land use on the safety and utility of airport operations, and identify compatible land use development tools, resources and techniques to protect surrounding communities from adverse effects associated with airport operations” (FAA, 2022a, p. i). Additionally, the FAA requires NPIAS airports to maintain a current airport layout plan and Exhibit A property map at all times.

Synthesis Overview

The remaining chapters of this synthesis provide the reader with knowledge of the issues surrounding use of airport land for community benefit, including challenges related to this action.

Chapter 2, Study Methodology, presents the methodology adopted for this synthesis. Topics include literature review, interview participants, and interview methodology.

Chapter 3, Literature Review, presents a comprehensive review of the literature. Topics such as sustainability planning, revenues, parks and recreational use of airport land, community use agreements, and Section 4(f) are discussed.

Chapter 4, Case Examples, presents 11 case examples that highlight specific uses of airport land for parks or recreational use at airports.

Chapter 5, Conclusions and Future Research, presents a summary of findings from this study as well as recommendations for future research.

The following appendix can be found at the end of this synthesis:

• Appendix A: Airport Interview Questionnaire

In addition, the following appendices can be found on the National Academies Press website (nap.nationalacademies.org) by searching for ACRP Synthesis 137: Parks and Other Recreational Uses on Airport Property:

• Appendix B: Fargo Park District Riverwood Park Sublease Agreement
• Appendix C: Raleigh–Durham International Airport Park Landscape Maintenance Service Agreement