2011 Wisconsin Airport Land Use Guidebook Bureau of Aeronautics Wisconsin Department of Transportation 6/1/2011 ii This page intentionally left blank Wisconsin Airport Land Use Guidebook June 2011 Wisconsin Department of Transportation iii Wisconsin Airport Land Use Guidebook Preface Welcome to the Wisconsin Airport Land Use Guidebook (2011 edition). This revised guidebook is designed to help communities and airports work cooperatively to plan for and establish compatible land use around airports and work towards mitigating existing incompatible conditions. Land use compatibility is a significant, yet often unrecognized, factor in aviation safety. When asked to describe an airport safety-related matter, many people refer to the perimeter fencing or the security checkpoint within an air carrier airport. Seldom does the average citizen recognize that bright lights, residential developments, wetlands, and tall towers pose hazards to airports, their users, and nearby residents. The goal of this guidebook is to protect communities and airports from incompatible land use that could negatively affect the safe operation of airports and pose hazardous consequences to the public. In this guidebook, stakeholders will find information and resources that may help them direct the future development of their communities and airports. Stakeholders who might find this guidebook useful include airport and community planners; airport owners and managers; zoning administrators; local, state, and regional agency officials; developers; legislators; and the general public. Wisconsin Airport Land Use Guidebook June 2011 iv Contents List of Figures ............................................................................................................................................... vi Chapter 1 Introduction ................................................................................................................................. 1 Purpose of this Guidebook ........................................................................................................................ 2 Importance of the Aviation Industry ......................................................................................................... 3 Classification and Distribution of Wisconsin’s Airports ............................................................................ 5 Summary ................................................................................................................................................... 8 Chapter 2 The Importance of Establishing Compatible Land Use around Airports .................................... 10 Safety Concerns ...................................................................................................................................... 10 FAA Safety Standards .............................................................................................................................. 17 Noise Concerns ....................................................................................................................................... 24 FAA Noise Standards ............................................................................................................................... 26 Summary ................................................................................................................................................. 27 Chapter 3 Land Use Incompatibility Concerns ............................................................................................ 28 Safety-Related Concerns ......................................................................................................................... 28 Noise-Related Concerns .......................................................................................................................... 32 Summary ................................................................................................................................................. 32 Chapter 4 Land Use Regulations and Guidance .......................................................................................... 34 Federal Laws and Policies ....................................................................................................................... 34 State Laws and Policies ........................................................................................................................... 37 Summary ................................................................................................................................................. 42 Chapter 5 Roles and Responsibilities for Establishing Compatible Land Use ............................................. 43 Federal Government ............................................................................................................................... 43 State Government and Regional Organizations ...................................................................................... 45 Local Governments ................................................................................................................................. 46 Airport Owners and Managers ............................................................................................................... 47 Airport Users ........................................................................................................................................... 47 Citizens .................................................................................................................................................... 48 Summary ................................................................................................................................................. 49 Chapter 6 Techniques for Establishing Compatible Land Use .................................................................... 50 Planning and Zoning Tools ...................................................................................................................... 50 Natural Feature Techniques .................................................................................................................... 52 Wisconsin Airport Land Use Guidebook June 2011 Wisconsin Department of Transportation v Wisconsin Airport Land Use Guidebook Land Acquisition and Agreement Techniques ........................................................................................ 57 Noise Mitigation ...................................................................................................................................... 61 Summary ................................................................................................................................................. 62 Summary ..................................................................................................................................................... 66 Appendix A: Additional Land Use Regulations and Guidance ..................................................................... 67 Planning-Related Regulations and Guidance .......................................................................................... 67 Environment-Related Regulations and Guidance ................................................................................... 68 Land Acquisition-Related Regulations and Guidance ............................................................................. 73 Noise-Related Regulations and Guidance ............................................................................................... 74 Case Law .................................................................................................................................................. 75 Appendix B: Sample Land Use Ordinances ................................................................................................. 76 Appendix C: Agency Contacts ..................................................................................................................... 78 Glossary ....................................................................................................................................................... 81 Acronyms .................................................................................................................................................... 92 Reference .................................................................................................................................................... 93 Wisconsin Airport Land Use Guidebook June 2011 vi List of Tables Table 1-1: Total 2002 Economic Significance of the Aviation Industry in Wisconsin ................................... 5 Table 1-2: NPIAS Airport Functional Categories ........................................................................................... 6 Table 1-3: Wisconsin Airports in the National Plan of Integrated Airport Systems (NPIAS) ........................ 7 Table 1-4: Wisconsin Airport Functional Categories ..................................................................................... 8 Table 2-1: General Aviation and Commercial Aircraft Accident Data ......................................................... 12 Table 2-2: Accidents by Phase of Operation: U.S. General Aviation Aircraft .............................................. 13 Table 2-3: Accidents by Phase of Operation: Air Carriers ........................................................................... 13 Table 2-4: Most Common Causes of Commercial Service Aviation Accidents ........................................... 17 Table 2-5: FAR Part 77 Dimensional Requirements .................................................................................... 19 Table 2-6: Runway Safety Area and Object Free Area Dimension Requirements ...................................... 24 Table 3-1: Population Densities by Building Type ....................................................................................... 31 Table 3-2: Compatible Land Uses within FAR Part 77 Surfaces and FAA Safety Areas ............................... 33 Table 6-1: Compatible Tree Heights ........................................................................................................... 53 Table 6-2: Wisconsin Tree Height Index ..................................................................................................... 54 Table 6-3: Land Acquisition Options for Establishing Compatible Land Use .............................................. 58 Table 6-4: Techniques for Establishing Compatible Land Uses Around Airports ........................................ 63 Table 6-5: Stakeholder Communication Directory ..................................................................................... 64 List of Figures Figure 1-1: Outagamie County Regional Airport, Appleton, WI ................................................................... 1 Figure 1-2: Burnett County Airport, Siren, WI .............................................................................................. 2 Figure 1-3: Sawyer County Airport, Hayward, WI ......................................................................................... 4 Figure 1-4: Wisconsin Airport System ........................................................................................................... 9 Figure 2-1: Typical Airport Traffic Pattern .................................................................................................. 11 Figure 2-2: Proximity of Aviation Accidents to Nearest Airport ................................................................. 12 Figure 2-3: Arrival Accidents ....................................................................................................................... 14 Figure 2-4: Take-off Accidents .................................................................................................................... 16 Figure 2-5: FAR Part 77 Surfaces- Profile View ........................................................................................... 20 Figure 2-6: FAR Part 77 Surfaces- Plan View ............................................................................................... 21 Figure 2-7: Runway Protection Zone .......................................................................................................... 23 Figure 2-8: Runway Safety Areas and Object Free Areas ............................................................................ 23 Figure 3-1: Man-Made Pond Near End of Runway ..................................................................................... 30 Figure 5-1: Park Falls Municipal Airport, Park Falls, WI .............................................................................. 49 Figure 6-1: Tall trees surround the Manitowish Waters Airport, Manitowish Waters, WI ........................ 53 Figure 6-2: Land Use Compatibility Planning Steps .................................................................................... 65 Wisconsin Airport Land Use Guidebook June 2011 Wisconsin Department of Transportation 1 Wisconsin Airport Land Use Guidebook Chapter 1 Introduction Wisconsin has a diverse aviation system of more than 130 public use airports. With the growth of the global market, transportation of goods and passengers is increasingly becoming a key element of Wisconsin’s economy. The aviation system provides a variety of services for state residents and plays an important role in attracting business and industry to the state. Airport sponsors in Wisconsin, as well as in other states, need to maintain and develop the existing aviation infrastructure to ensure that the aviation system is preserved to meet future needs. Figure 1-1: Outagamie County Regional Airport, Appleton, WI One of the primary concerns facing the aviation industry today is the increasing pressure of incompatible land use near airports. Incompatible land uses are those that constrain safe and efficient operation or expose people living or working nearby to noise or other aviation hazards. In recent years, Wisconsin’s airports have felt the increasing demand for developable space adjacent to airports, both in the air and on the ground. Without proper planning, incompatibilities are likely to increase as the demand for developable land and air travel grows. Airport compatible land use planning is essential for a number of reasons. Foremost, it enhances the safety of those in the aircraft and on the ground by mitigating factors that may contribute to aircraft accidents. Secondly, compatible land use planning protects airport viability and development potential by correcting and restricting land uses that could limit the airport’s growth. Compatible land use planning also increases the quality of life for airport neighbors and the surrounding communities by alleviating the negative impacts of aircraft and airport operations. For these reasons, compatible land use planning is an important component of Wisconsin’s aviation industry. Wisconsin Airport Land Use Guidebook June 2011 2 Chapter 1: Introduction Purpose of this Guidebook The main purpose of this guidebook is to provide informational and educational guidance to airport and government officials, planners, and residents. It is intended to help airport stakeholders establish compatible land uses around their airports to improve public welfare and safety by employing and incorporating the most effective tools available. It also provides helpful resources for local officials to incorporate airport compatible land needs into their comprehensive planning process. Through this process, communities can work cooperatively with airports to reach the mutually beneficial goal of compatible land use and economic vitality. Figure 1-2: Burnett County Airport, Siren, WI The first chapter of this guidebook discusses the importance of the aviation industry and provides a brief snapshot of airports in Wisconsin. Chapter 2 highlights the importance of establishing compatible land uses around Wisconsin airports by outlining the impact of safety and noise hazards resulting from incompatible land use and discussing FAA safety and noise standards. Chapter 3 discusses land use compatibility concerns in greater detail. The least compatible land uses around airports include structures with large densities of people, streetlamps and buildings that emit bright light, dust-producing smokestacks that cause visual and physical obstructions, and ponds and large wetlands that attract wildlife hazards. More compatible land uses include farmland, low density residential development, and small office buildings. Chapter 4 presents a brief summary of state and federal land use regulations and guidance, providing a legal snapshot of the issues concerning land use compatibility surrounding airports. This section of the document includes Section 114.135-6, Wis. Stats, which grants airport owners the legal authority to protect airspace and formulate ordinances regulating the height of buildings, structures, and objects of natural growth within three miles of the airport. Additionally, this section of the document discusses Wisconsin Airport Land Use Guidebook June 2011 Wisconsin Department of Transportation 3 Wisconsin Airport Land Use Guidebook Wisconsin’s comprehensive planning law, which requires all zoning, subdivisions and official maps of a community to be consistent with its adopted comprehensive plan. As one of nine required comprehensive plan elements, the ―Transportation‖ element provides an avenue for unprecedented coordination among airports, airport managers, commissions and their host communities. Chapter 5 discusses the roles and responsibilities of stakeholders involved in the compatible land use planning process on the federal, state, and local levels. Finally, Chapter 6 identifies techniques for establishing compatible land use within the areas of planning and zoning, natural features mitigation, land acquisition and agreements, and noise mitigation. This chapter serves as a pivotal starting point for airports and their communities, but it is important to be mindful that all airports and localities are unique and land use compatibility issues and solutions will vary. Web links to useful resources, such as guidance documents and existing plans and programs for various preventive, corrective and mitigation practices, can be found throughout this document. Users of this guidebook should be aware that the information contained within may not be inclusive of all of the relevant regulations, resources, problems, and solutions; rather, it is meant to be a summary of the primary issues that need to be considered. Interested parties should consult with the Bureau of Aeronautics (BOA) at WisDOT and other relevant agencies for specific guidance regarding aviation planning. Importance of the Aviation Industry For a better understanding of the importance of regulating incompatible land uses, it is essential to understand the value of Wisconsin’s aviation system. National Level The United States has an extensive network of airports that move people and cargo, as well as supports national defense objectives. Aviation is an essential mode of transportation in the U.S; over 1.9 million passengers rely on U.S. airports for business and leisure travel each day.1 Similarly, business development relies on airports for air cargo and general aviation services. The relationship between airports, aviation, and industry is interconnected and all work to sustain each other’s growth and development. The nation’s civil aviation industry employs more than 11 million people, with earnings of more than $396 billion and direct, indirect, and induced outputs of more than $1.3 trillion.2 Airports are essential for job retention and economic development in communities across the nation and protecting their viability is crucial for the national economy. State Level Aviation is an important industry in Wisconsin which provides transportation, economic development, and recreational educational opportunities for the citizens of the state and its visitors. The Wisconsin airport system not only links businesses and residents regionally, but also to the rest of the nation and the world. Commercial air carrier airports and general aviation airports are both important resources for 1 Airport Cooperative Research Program. Report 27: Enhancing Airport Land Use Compatibility, Vol. 1. 2010. 2 Federal Aviation Administration, The Economic Impact of Civil Aviation on the U.S. Economy, December 2009, http://www.faa.gov/air_traffic/publications/media/FAA_Economic_Impact_Rpt_2009.pdf. Wisconsin Airport Land Use Guidebook June 2011 4 Chapter 1: Introduction corporations seeking to expand or locate in the state. In addition to commercial air service and general aviation facilities, the Wisconsin aviation system also provides ―quality of life‖ amenities such as emergency medical services, flight training, and environmental management. Figure 1-3: Sawyer County Airport, Hayward, WI Airports and their associated activities are themselves economic engines for communities, providing employment, purchasing goods and services from other businesses, and generating income as aviation- related spending circulates through the economy. The Wisconsin Bureau of Aeronautics measured the economic value of aviation in Wisconsin in the 2002 Economic Significance of the Aviation Industry in Wisconsin.  Economic Significance of the Aviation Industry in Wisconsin can be found here: http://www.dot.wisconsin.gov/library/publications/topic/air/economic-sum.pdf The study found that the total economic significance for 2002 (direct, indirect, and induced economic impact of the aviation industry) was significant, with a total output of $2.8 billion. The economic significance in 2002 is presented in Table 1-1. Wisconsin Airport Land Use Guidebook June 2011