CHAPTER 4

Case Examples

The case examples presented in this chapter (see Table 2) highlight specific airport practices regarding parks or recreational use on airport property. Airports highlighted in this chapter were selected because they have a dedicated park or recreational use area on airport property. Although each airport’s circumstances are unique, the airports included within this chapter represent a diverse group of airports across the United States that may prove insightful to the reader.

Table 2. Case example information.

^* GA = general aviation

Case Example 1—Naples Airport, Naples, Florida

Naples Airport (APF), located in Southwest Florida, is a general aviation (GA) airport comprising 732 acres. The airport is located in a nature-rich area with year-round weather that enables outdoor activities. It has developed two unique areas for community benefit: the Gordon River Greenway Park and an observation deck that provides views of the runway approach areas.

The Gordon River Greenway Park includes seven miles of walking trails. This was created in partnership with the City of Naples and a local environmental group. There are several stakeholders within this land use agreement, including the airport, the City of Naples, Conservancy of Southwest Florida, the local zoo, and the Southwest Florida Land Preservation Trust. The Gordon River Greenway Park borders the Gordon River, which provides a natural opportunity for users to observe wildlife and is also a great opportunity for the airport to achieve conservation goals.

APF also installed an observation deck located in one of the runway approach areas (Figure 1). The deck has a shaded area to allow enjoyment by visitors year-round. It is equipped with

an aeronautical radio that allows visitors to listen to air traffic control communications while observing aircraft operations. It also has a workout area, picnic tables, restrooms, and a fenced-in playground area for children. This area is popular with the community and airport staff and has a steady flow of visitors.

The lands on which the greenway and observation deck are located are not suitable for aeronautical use. This enabled the conversion of these areas for community benefit. APF has also benefited because these efforts support attainment of the airport’s environmental goals in addition to supporting positive community relations.

Even with these benefits, there are costs as well. These costs were considered in the initial planning stages for the park. APF maintains the areas and incurs the general operating costs of providing custodial, maintenance, and landscaping services.

The airport’s Community Outreach and Communications Manager advocates for community involvement at the airport. “Get community feedback. What ideas are coming from the users?” This can be accomplished by conducting surveys to gauge community needs. “Don’t assume what they want.” Additionally, being a socially minded airport is just as important as generating revenues. “The perception at this airport is that these uses are not revenue generators, but definitely worth it” (Z. Burch, personal communication, December 18, 2023).

Case Example 2—Baltimore/Washington International Thurgood Marshall Airport, Baltimore, Maryland

Baltimore/Washington International Thurgood Marshall Airport (BWI), located nine miles south of Baltimore, Maryland, is a large hub airport resting on 3,160 acres. To provide an opportunity for the public to safely observe aircraft activity, BWI created a two-acre observation area. Known as the Thomas A. Dixon, Jr. Aircraft Observation Area, this area also includes a children’s playground. Open dawn to dusk, the observation area is the trailhead to the BWI Trail, which is a 12.5-mile hiking and cycling trail that traverses the airport perimeter (See Figures 2 and 3).

As the airport’s operational activity has significantly increased over the years, these green areas have provided an opportunity to restore some goodwill within the community. Families can recognize the value of the airport while getting exercise and learning about aviation. These areas have also provided the opportunity for ancillary sustainability practices (i.e., solar panel installation and habitat preservation) and community development.

According to the Deputy Director, Office of Planning, “The development of excess airport land for specific community purposes (i.e., recreation, wellness, sports, arts, etc.) affords neighboring communities with unique opportunities to enjoy the outdoors/hobbies in an environment with direct exposure to aviation. Such amenities are mutually beneficial to airports as these developments demonstrate a sponsor’s interest in and commitment to the well-being of the citizens in their region” (S. Ames, personal communication, January 18, 2024).

The local community, Anne Arundel County, and the Maryland Department of Transportation were engaged with during the process of planning and developing the space. Engaging various stakeholders ensured that all concerns were addressed during the planning stages. However, the Deputy Director noted that “First and foremost, any decision regarding airport land development requires FAA consultation—technical support on matters relative to Section 163, ALPs/NEPA, grant assurances and FAA standards/guidance will be necessary to successfully deliver any community use on airport land.”

In addition, “While it is ideal to introduce a community feature at an airport site which affords a view of arrival/departure paths, airport administrators and planners must examine all potential aeronautical needs which might ultimately compete for the same real estate prior to such a commitment. While airports historically terminate leases and/or demolish existing facilities when necessary to support aeronautical missions, future disruption to or elimination of an established public use will certainly strain community relations and pose NEPA Section 4(f) challenges. Care should also be taken to account for future expansion of any site as demand for these uses can quickly outpace the capacity of associated parking, playgrounds, athletic fields, etc.” (S. Ames, personal communication, January 18, 2024).

The management of these areas varies. BWI manages the observation area, but a cooperative agreement between the airport and Anne Arundel County outlines the hiking and cycling trail maintenance schedule and authority. The usual maintenance costs and periodic investments in beautification are covered by BWI’s operating and maintenance budget. No fees are assessed to the users of the recreational spaces. “At the outset of any public use project, sponsors should partner with local government agencies to create operating/maintenance/policing agreements for any areas which interface with nonairport land” (S. Ames, personal communication, January 18, 2024).

Some challenges encountered in providing these areas for the community were providing adequate ADA compliance and accessibility to the areas, ensuring that adequate parking was available, and providing for the security of visitors to these recreational areas. Regular monitoring of the spaces and a steady flow of visitors has contributed to sufficient security.

Case Example 3—Hector International Airport, Fargo, North Dakota

Hector International Airport (FAR), located three miles northwest of Fargo, North Dakota, is a small hub airport occupying 2,500 acres. It has 206 based fixed-wing aircraft and experienced 90,450 aircraft operations in the 12 months prior to August 31, 2023.

Desiring additional park space, the community approached the airport and requested that a portion of airport land be dedicated for community use. The airport was willing to consider this, with the understanding that the airport can take back the land at any point. Airport staff identified several areas of surplus land that would not be needed for aeronautical use. Two areas were leased to the Fargo Park District and developed for community benefit. These include a 35-acre soccer complex and 31 acres dedicated to aircraft viewing (Figure 4). Additionally, 2,000 acres of farmland were set aside, which has the dual benefit of providing both a noise buffer and a screen from airport operations.

The land use agreement references appropriate grant assurances and involves several parties, including the Fargo Park District, FAR’s airport management, and the FAA. The Fargo Park District Riverwood Park Sublease Agreement is included in Appendix B, which 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.

In addition to community goodwill, revenues are generated (especially from the farmland), which can be substantial. Maintenance of these areas (excluding farmland) is provided by the Fargo Park District. FAR is only required to plow the viewing area during the winter months. FAR is not liable for injuries on these areas; the airport is protected by statute. There have been some complaints by pilots about the glare emanating from the soccer complex, but the airport

has managed to address this. “We have learned to put the community needs up front, directly working with them to make it a partnership to improve relations” (S. Dobberstein, personal communication, December 15, 2023).

Case Example 4—Greenville Downtown Airport, Greenville, South Carolina

Greenville Downtown Airport (GMU), located three miles east of Greenville, South Carolina, is a GA airport occupying 385 acres. With 205 based fixed-wing aircraft and 85,103 aircraft operations for the 12 months prior to December 31, 2022, GMU had been experiencing an increase in community noise complaints. According to the Airport Director, staff were answering “a lot of noise complaints from people not understanding the upside of the airport” (J. Stephens, personal communication, January 9, 2024).

To address this and to generate community goodwill, airport staff considered an innovative use of a minimally used airport ramp area. It was decided that an airport restaurant would serve as an attraction for the local community and bring people to the airport, leaving with a positive feeling about their visit.

A request for proposals from potential restaurant operators was disseminated, which resulted in the selection of an operator to develop and operate an airport restaurant. In addition, adjacent to the restaurant, a community park was developed. GMU believed that developing a community park next to the restaurant would provide customers with an opportunity to see aviation operations either before or after eating a meal. Locating the park next to an active airport ramp area with free aircraft parking allows the community to see aviation up close.

This park includes a green space, three playgrounds, an amphitheater, a 787-foot paved walking path, a two-unit bathroom, two covered pavilions for events (such as picnics and birthday parties), and shade structures (Figure 5). The entrance to the park is through a section

of a Boeing 727, providing a unique entrance point for the appropriately named “Runway Park.” Included throughout Runway Park are educational signs that teach viewers about aviation history, forces of flight, and career opportunities in the aviation industry. Adjacent to the park is a military history center and miniature golf course. Collectively, the area is referred to as the airport’s Community Corridor.

The military history center is not revenue-producing, but the restaurant and miniature golf course do provide a source of revenue to GMU. Although park admission is generally free, GMU charges for tours to schools, church groups, and homeschool groups; these revenues support park expenses. The pavilions are available to rent as well. As such, these areas are self-sustaining.

Before the Community Corridor was opened, GMU had three flight schools, but now the airport has seven flight schools. GMU believes this is a testament to the direct impact that community education and exposure to aviation has had on the growth of the airport. “What started as a complaint about the airport has now turned into a supply for the aviation industry. Kids who have played in our park have become pilots and instructors” (J. Stephens, personal communication, January 9, 2024).

To build on their success, GMU is now considering constructing a skate park and pump track (for cycling) on an adjacent green space. The Greenville Downtown Airport Charitable Fund, a 501(c)(3) nonprofit organization, was also created to raise funds to be used for maintenance of the Community Corridor and for the development of a community aviation center. GMU also hosts car shows and 5K runs that generate some revenue for the airport. “It is about connectivity to the community” (J. Stephens, personal communication, January 9, 2024).

When interviewed, the airport contact noted “There are many sources of funds for these non-aeronautical uses . . . with the park we have found a way to make it self-sustaining.” They continued, “talk to people in your community about the revenue options, so they know where it’s coming from. Our airport does not receive any county or city funding” (J. Stephens, personal communication, January 9, 2024).

Case Example 5—Murfreesboro Municipal Airport, Murfreesboro, Tennessee

Located in Middle Tennessee, two miles north of Murfreesboro, the Murfreesboro Municipal Airport (MBT) is owned and operated by the City of Murfreesboro. This GA, non-towered airport occupies 225 acres. Adjacent to the airport, McKnight Park is an 81-acre community park comprising a multipurpose indoor–outdoor sports and recreational facility that includes an outdoor water park and a volleyball court as well as baseball, softball, and soccer fields.

To develop McKnight Park, the City of Murfreesboro initially acquired 27 acres of former farmland adjacent to MBT’s Runway 18 and converted this land into recreational use for soccer and other sporting events. To support aeronautical demand, MBT reclaimed approximately 10 acres. This was accomplished through an internal memorandum of understanding (MOU) between MBT and the City of Murfreesboro Parks and Recreation Department. There were minimal impacts to the community during this transaction because of the healthy relationship between the airport and local government officials and departments.

Although the MOU is not a formal land use agreement, the ALP reflects the 17 acres of recreational use of airport property. According to MBT’s airport manager, the 10 acres of reclaimed area is flatland that will accommodate development for aeronautical purposes. With a unique blend of federal and city funding and operations, the airport was uncertain how easily the land could be reclaimed for aeronautical use. However, there have been no issues reclaiming the land, and the FAA supports use of airport property for aeronautical use.

McKnight Park is managed and maintained by the City of Murfreesboro Parks and Recreation Department (Figure 6). Since MBT does not manage any of the recreational area, liability and financial risks to the airport are minimal. Instead, it has provided a positive community image of the airport. According to the airport manager, “I think the airport being close to the park has been a good thing. It has given the airport a lot of positive exposure to the community and its importance” (C. Gehrke, personal communication, January 29, 2024).

According to the airport manager, several lessons have been learned through this process. First, it is important to get everything in writing to protect the actions of the airport. Second, reclaiming an area of public recreational use can be risky, so it is important to protect the actions made. “Make it well known that this is airport property. Public relations have been a concern, but we have kept it positive, which has allowed the community to remain positive.” Third, when developing a new recreational use, “Consider parking, and planned activities that may take place in proximity to the airport. Balloon releases or fireworks can negatively impact airport operations” (C. Gehrke, personal communication, January 29, 2024).

Case Example 6—Raleigh–Durham International Airport, Raleigh–Durham, North Carolina

Raleigh–Durham International Airport (RDU), located nine miles northwest of Raleigh–Durham, is a medium hub airport on 5,000 acres. It is owned and operated by the Raleigh–Durham Airport Authority.

During the 1980s, RDU desired to generate community interest in aviation. As a result, a free-access community park was developed (Figure 7). The observation park has various attractions for adults and children to enjoy, including a playground and audio speakers that broadcast air traffic control radio transmissions; it also provides restrooms and seating areas. RDU incurs the overall costs of maintaining the area, which includes costs related to general maintenance, custodial services, and landscaping. Appendix C contains the landscape maintenance service agreement for the park.

In addition to the observation park, William P. Umstead State Park, managed by the North Carolina Division of Parks and Recreation, also rests partially on airport property. Umstead State Park is a prominent park that consists of approximately 5,500 acres.

Several factors, including the topography of the land within both the community park and the state park, mean that a large portion of the area is not usable for aeronautical purposes. This has aided RDU in obtaining FAA approval to designate this land for recreational use. The airport master plan includes future plans to revamp bike trails for the community.

RDU indicates that the community park is not without some challenges. First, because of the park’s proximity to the airfield, wildlife attraction can create hazards for aircraft. Second, although free to the community, RDU does incur operational costs with maintaining the park and its facilities. Third, at some point in the future, the park observation area will need to be moved to accommodate additional aeronautical use. This is anticipated to cause tension between the airport and park users.

RDU has learned that it is important to avoid creating incompatible land use, particularly in areas that could have aeronautical use at a future date. “Talk to others before you do this. This is a complicated issue. The audience is not just airports, it’s the FAA and state stakeholders as well” (B. Sandifer, personal communication, December 21, 2023).

Case Example 7—Cobb County International Airport–McCollum Field, Atlanta, Georgia

Cobb County International Airport (RYY), located 21 miles northwest of Atlanta, is a GA, FAA-designated reliever airport occupying 309 acres. RYY has 331 based fixed-wing aircraft and experienced 95,672 aircraft operations in 2021.

Responsive to the needs of the local community, in 2017, RYY designated a portion of airport land for the purpose of community use; this has become Aviation Park. The Cobb County Parks Department, Kennesaw State University, and the Town Center Community Improvement District (CID) Board of Directors assisted with the necessary research and planning for development of a community park. According to the Airport Operations Manager, “We are pleased to have a great relationship with the Cobb County Parks Department, Town Center CID, Town Center Community Alliance, and Kennesaw State University—all who make this park one of the best around” (W. McDonald, personal communication, January 16, 2024).

Aviation Park is located at the eastern end of the runway (Figure 8). The park is a three-acre area that includes one and a half acres of green field in addition to parking, a gazebo, restrooms, and a small inclusive playground consisting of a donated aircraft as well as a frame jungle gym. The restroom facilities are modeled after an air traffic control tower. The facilities also include an exhibit that covers the history of Georgia aviation and the physics of flight; it also incorporates profiles of five individuals who maintain jobs on airport property in order to demonstrate the everyday tasks that keep the airport running smoothly. There is also active programming in the park; this includes a “yoga in the park” series.

Management of the park is handled by the Cobb County Parks Department and the CID. This agreement precludes the need for RYY funding in order to maintain the park. This is a beneficial partnership, as the park does not generate income. The reclaiming of this land for aeronautical purposes would happen only if there were a need to extend the runways, which is not anticipated.

According to the Airport Operations Manager, “Aviation Park is a win-win situation for the community and the airport. As this plot of airport-owned land cannot be developed for aviation

use at this time, I couldn’t think of a better way to benefit the community” (W. McDonald, personal communication, January 16, 2024).

Case Example 8—Santa Monica Municipal Airport, Santa Monica, California

Located three miles east of Santa Monica in Southern California, Santa Monica Municipal Airport (SMO) is a GA, FAA-designated reliever airport occupying 215 acres. SMO is owned and operated by the City of Santa Monica.

Santa Monica Municipal Airport and its surrounding community have a lengthy history. The City of Santa Monica acquired the airport in the early 1920s, and over the years the community has voiced many concerns about the airport. In 1981, the Santa Monica City Council first declared that when it became legally possible, they would close the airport and convert the space to “a great park.” Over the years, there have been legal filings between the City of Santa Monica and the FAA about the closure of the airport. In 2017 the City of Santa Monica was authorized to close the Santa Monica Airport after December 31, 2028 (City of Santa Monica, 2020).

In 2007, an 8.2-acre park was completed, and it sits, in part, on the airport. Prior to the completion of the park, the city conducted community outreach to identify the community needs for a park space and amenities. The park includes a synthetic turf sports field, a playground area, picnic tables with barbecue grills, restrooms, and an off-leash dog park with separate areas for small and large dogs (Figure 9).

The park is managed by the City of Santa Monica Recreation and Arts Department. The city’s general fund leases the land for the park and pays an annual rent to SMO. The city’s general fund also pays for the operation and maintenance of the park. Operating costs include services for

custodial, building, and park maintenance. The largest cost associated with the park since its inception has been replacing the artificial turf for the sports field.

The park is located well beyond the Air Operations Area, therefore there are minimal impacts to aircraft operations. Because of the location of the park as well as the use of minimal landscaping and additional hardscapes, wildlife that could be hazardous to aircraft are virtually nonexistent.

During the construction of the park, SMO was part of the project planning committee, which was especially beneficial during the construction phase. “The airport has to have a seat at the table during any development or construction on or near the airport” (S. Makrides, personal communication, January 24, 2024). Maintaining an open dialogue between the airport and the project manager was also beneficial.

Overall, the park has improved the area and brought a number of visitors to the airport that otherwise would not have visited SMO. As a general rule, a park can improve an airport’s relations with the surrounding community and at times, mend negative community views toward the airport and its operations. “I do believe if it is done right, a park at an airport can bridge the gap on negative views and impacts” (S. Makrides, personal communication, January 24, 2024).

In 2018, a study was commissioned by the city to explore the potential pathways to convert the airport into park space. Released in 2020, the Santa Monica Airport to Park Conversion Report explored various scenarios for converting the airport. It provided an economic evaluation of the airport, identified issues and opportunities of converting the property, and identified potential costs (City of Santa Monica, 2020). The city is now embarking on a formal process to engage the community on the potential conversion of the airport. They plan on contracting with a firm that will lead research and public outreach efforts, with plans to bring a preferred scenario for the airport conversion to the Santa Monica City Council at the end of 2025.

Case Example 9—Truckee Tahoe Airport, Truckee, California

Truckee Tahoe Airport (TRK), located two miles east of Truckee, California, is a GA airport that is owned and operated by the Truckee Tahoe Airport District. TRK has 109 based fixed-wing aircraft and occupies 2,280 acres of land.

In May 2011, Truckee resident and Truckee Airport Board Trustee Katie Morrison died in a plane crash along with her two young children, Wyatt, aged six, and Hannah, aged five. To honor Katie, Wyatt, and Hannah, Katie’s Playground was created. The 0.3-acre park includes a children’s playground, picnic tables, a green area, and shade sails. The park is in close proximity to the airport terminal, allowing convenient access to residents and visitors alike (Figure 10).

Funding for the park is rather unusual, as TRK is one of nine special airport districts where property tax revenues can be utilized. This allows for funding of facilities and operation of the park without charge to visitors. According to the airport’s Aviation & Community Services Manager, routine maintenance such as mowing, lawn chair maintenance, and winter season shade removal are airport responsibilities. In-house maintenance costs are reasonable. The most significant capital cost was the purchase and installation of the playground equipment.

There are some challenges associated with the park, such as that balls, frisbees, and other toys have made it over the fenced area and onto the aircraft ramp. The foreign object debris is removed by airport operations personnel. Additionally, the close proximity to the aircraft ramp means that aircraft noise can at times be a nuisance for park visitors.

On the whole, “It has always been a positive thing for the airport. There is an incredible amount of goodwill that comes from the park to the community for the public use” (M. Lamb, personal communication, January 13, 2024).

Case Example 10—Hamilton Municipal Airport, Hamilton, New York

Hamilton Municipal Airport (VGC), located one mile northwest of Hamilton, New York, is a GA airport resting on 180 acres. Owned and operated by the Village of Hamilton, VGC has 36 based fixed-wing aircraft.

To create community-use space at VGC, a small picnic area was developed so that the public can enjoy the outdoors and observe aircraft operations. The area was improved to include a recreational walking trail that runs through the runway protection zone (Figure 11). The trail provides an excellent vantage point for viewing aircraft operations. It is approximately half a mile long and connects directly to the Chenango Canal Towpath Trail. The walking trail is popular with the community and generates interest in VGC. According to the airport manager, “That is why we installed it where it is. We encourage our people to be able to enjoy the airport even if they don’t fly” (N. Mitchell, personal communication, January 25, 2024).

VGC maintains the area by mowing, weeding, and performing general maintenance. There are no fees charged to any of the users; rather, the airport financially supports the operation and maintenance of the area.

According to the airport manager, considerations for preparing to design a similar use begin with FAA approval. “Be aware of FAA involvement and the rules they uphold” (N. Mitchell, personal communication, January 25, 2024).

As VGC has discovered, something as small as a picnic seating area with a picnic table and a walking trail can have a great deal of impact on community relations, generating a positive perception of the airport. Community assets—even small ones—can be created, even at smaller

airports. “Overall, it has been very positive for the community and the airport” (N. Mitchell, personal communication, January 25, 2024).

Case Example 11—Van Nuys Airport, Van Nuys, California

Van Nuys Airport (VNY), located in the Southern California corridor, is a GA, FAA-designated reliever airport. Occupying 725 acres, VNY is owned and operated by Los Angeles World Airports.

Today, VNY has a two-acre observation area with a park, swing sets, and other amenities (Figure 12). The observation area has signs and placards that provide education on the historical roots of the airport in the community to visitors. Scenes from the movie Casablanca were filmed at the Van Nuys Airport, and in 2005, the airport was showcased in the documentary One Six Right. There has also been a proposal to rehabilitate the area, including the addition of solar perimeter lights and water tolerant plants.

VNY has a free program for elementary school students that includes a tour of the airport, information on how airplanes fly, and the opportunity to explore careers in aviation. This reflects its proactive approach to community relations and to inspiring the next generation of aviation professionals.

The observation area has been in the ALP for many years, so there have not been any compliance issues. However, because of the location of the park in relation to the airport, there are some concerns with loitering, paparazzi (because of the clientele the airport attracts), drones, kites, and balloons. The airport has addressed these issues (P. Herrera, personal communication, December 15, 2023).