Advisory 

Circular

U.S. Department

of Transportation

Federal Aviation

Administration

Consolidated AC includes Change 1 

Subject: Change 1 to AIRPORT MASTER 

PLANS

Date: May 1, 2007 

Initiated by: APP-400

AC No: 150/5070-6B

Change: 1

________________________________________ 

1. PURPOSE. This Change adds a new drawing, the Runway Departure Surfaces Drawing, 

into the Airport Layout Plan drawing set. The requirement to add this drawing is based on the 

new 40:1 and 62.5:1 departure surfaces added to Appendix 2 under Change 9 of FAA Advisory 

Circular 150/5300-13, Airport Design. It also incorporates a reference to FAA Advisory 

Circulars 150/5300-16, 17, and 18, which is recently published guidance on conducting 

aeronautical surveys. 

2. CHANGE TEXT. Changed text is indicated by vertical bars in the margins. 

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Benito DeLeon, Director 

Office of Airport Planning and Programming 
 

Advisory 

Circular

U.S. Department

of Transportation

Federal Aviation

Administration

Subject: AIRPORT MASTER PLANS Date: July 29, 2005 

Initiated by: APP-400

AC No: 150/5070-6B

Change:

________________________________________ 

1. PURPOSE. This Advisory Circular (AC) provides guidance for the preparation of master 

plans for airports that range in size and function from small general aviation to large commercial 

service facilities. The intent of this AC is to foster a flexible approach to master planning that 

directs attention and resources to critical issues. The scope of each master plan must be tailored 

to the individual airport under evaluation. 

2. CANCELLATION. This publication cancels Advisory Circular 150/5070-6A, Airport 

Master Plans, dated June 1985. Chapter 10 and Appendix F of this document cancel Chapter 1, 

Section 5, Airport Layout Plan; Appendix 6, Section 2, Typical Airport Layout Plan; and 

Appendix 7, Airport Layout Plan Components and Preparation, of Advisory Circular 150/5300-

13, Airport Design, dated September 1989. 

Dennis E. Roberts, Director 

Office of Airport Planning and Programming 
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For sale by the Superintendent of Documents, U.S. Government Printing Office, Washington, D.C. 20402

7/29/05 AC 150/5070-6B

Table of Contents 

PART I: THE PROCESS OF PREPARING MASTER PLAN STUDIES .............................1

CHAPTER 1 INTRODUCTION.....................................................................................1

101. Purpose and Application......................................................................................... 1 

102. Intended Users ........................................................................................................ 1 

103. Need for New Guidance.......................................................................................... 1 

104. Function of Master Plan Studies............................................................................. 1 

105. Organization and Use of the Advisory Circular ..................................................... 2 

CHAPTER 2 CONTENT OF MASTER PLANNING STUDIES................................5

201. Tailoring Studies to the Needs of Individual Airports............................................ 5 

202. Types of Master Planning Studies .......................................................................... 5 

203. Level of Study Detail.............................................................................................. 7 

204. Products of the Master Planning Process................................................................ 7 

205. Master Plan Reviews by the FAA........................................................................... 8 

CHAPTER 3 PRE-PLANNING......................................................................................9

301. Initial Needs Determination.................................................................................... 9 

302. Request for Qualifications and Consultant Selection ............................................. 9 

303. Development of Study Design.............................................................................. 10 

304. Negotiating Consultant Contracts......................................................................... 12 

305. Application for Federal Funding........................................................................... 13 

PART II: ELEMENTS OF MASTER PLAN STUDIES ........................................................15

CHAPTER 4 PUBLIC INVOLVEMENT PROGRAM..............................................17

401. Timing ................................................................................................................... 17 

402. Tools and Techniques ........................................................................................... 18 

403. Identify the Stakeholders ...................................................................................... 20 

404. Identify Key Issues ............................................................................................... 20 

405. Documentation Guidelines.................................................................................... 20 

CHAPTER 5 ENVIRONMENTAL CONSIDERATIONS.........................................23

501. General.................................................................................................................. 23 

502. Environmental Considerations in Master Planning Alternatives Analysis........... 24 

503. Further Guidance on Consideration of Environmental Factors in 

Airport Master Planning ....................................................................................... 26 

504. Documentation Guidelines.................................................................................... 26 

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CHAPTER 6 EXISTING CONDITIONS ....................................................................27

601. General.................................................................................................................. 27 

602. Background Section.............................................................................................. 27 

603. Inventory and Description of Existing Facilities .................................................. 27 

604. Describe Regional Setting and Land Use ............................................................. 30 

605. Environmental Overview...................................................................................... 31 

606. Develop Socioeconomic Data............................................................................... 32 

607. Assemble Historical Aviation Activity................................................................. 32 

608. Financial Data ....................................................................................................... 33 

609. Documentation Guidelines.................................................................................... 34 

CHAPTER 7 AVIATION FORECASTS .....................................................................35

701. General.................................................................................................................. 35 

702. Forecast Elements ................................................................................................. 36 

703. Factors Affecting Aviation Activity ..................................................................... 37 

704. Steps in the Forecast Process ................................................................................ 39 

705. Documentation...................................................................................................... 43 

706. Source Data........................................................................................................... 43 

CHAPTER 8 FACILITY REQUIREMENTS .............................................................47

801. General.................................................................................................................. 47 

802. Emerging Trends................................................................................................... 48 

803. Design Hour Demand ........................................................................................... 49 

804. Security Considerations ........................................................................................ 49 

805. Airfield and Airspace Requirements..................................................................... 50 

806. Commercial Service Passenger Terminal Complex ............................................. 53 

807. General Aviation Requirements............................................................................ 55 

808. Air Cargo Requirements ....................................................................................... 56 

809. Support Facilities .................................................................................................. 57 

810. Ground Access, Circulation, and Parking Requirements...................................... 58 

811. Utilities.................................................................................................................. 60 

812. Other Requirements .............................................................................................. 60 

813. Documentation Guidelines.................................................................................... 60 

CHAPTER 9 ALTERNATIVES DEVELOPMENT AND EVALUATION.............63

901. General.................................................................................................................. 63 

902. Alternatives Analysis Process in Airport Master Planning................................... 65 

903. Identification of Alternatives ................................................................................ 68 

904. Evaluation of Alternatives .................................................................................... 70 

905. Selection of a Recommended Alternative............................................................. 72 

906. Airport Site Selection............................................................................................ 73 

907. Documentation Guidelines.................................................................................... 73 

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CHAPTER 10 AIRPORT LAYOUT PLANS.................................................................75

1001. General.................................................................................................................. 75 

1002. Airport Layout Plan Drawing Set ......................................................................... 76 

1003. Computer-Aided Design Standards ...................................................................... 79 

1004. Geographic Information Systems Applications.................................................... 79 

1005. Base Mapping and Data Sources .......................................................................... 80 

1006. Checklists.............................................................................................................. 81 

1007. Approvals.............................................................................................................. 81

1008. Documentation Guidelines.................................................................................... 82 

CHAPTER 11 FACILITIES IMPLEMENTATION PLAN .........................................83

1101. General.................................................................................................................. 83 

1102. Formulation of the Capital Improvement Plan ..................................................... 84 

1103. Project Sequencing and the Comprehensive Master Schedule............................. 85 

1104. Key Activities and Responsibilities...................................................................... 86 

1105. Documentation Guidelines.................................................................................... 87 

CHAPTER 12 FINANCIAL FEASIBILITY ANALYSIS.............................................89

1201. General.................................................................................................................. 89 

1202. Sources of Funding ............................................................................................... 89 

1203. Financial Feasibility.............................................................................................. 91 

1204. Revenue Enhancement.......................................................................................... 94 

1205. Benefit Cost Analysis ........................................................................................... 95 

1206. Documentation Guidelines.................................................................................... 95 

APPENDIX A GLOSSARY..............................................................................................97

APPENDIX B USEFUL REFERENCE MATERIALS...............................................103

1. FAA Advisory Circulars..................................................................................... 103 

2. FAA Orders......................................................................................................... 106 

3. Federal Aviation Regulations ............................................................................. 107 

4. Transportation Security Regulations................................................................... 107 

5. Security-Related Publications............................................................................. 107 

6. FAA Reports ....................................................................................................... 108 

7. General Airport Publications .............................................................................. 108 

APPENDIX C LIST OF POTENTIAL STAKEHOLDERS .......................................111

APPENDIX D CONSIDERATION OF ENVIRONMENTAL FACTORS IN 

AIRPORT MASTER PLANNING.......................................................113

1. Introduction......................................................................................................... 113 

2. Practice and Process............................................................................................ 114 

3. Tools ................................................................................................................. 119 

4. NEPA Documents of Other Federal Agencies.................................................... 122 

Attachment D-1 Environmental Overview for Master Plan Purposes............................ 123 

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APPENDIX E AIRPORT SITE SELECTION.............................................................125

1. General................................................................................................................ 125 

2. Site Selection Process Overview ........................................................................ 125 

3. Site Approval ...................................................................................................... 126 

APPENDIX F AIRPORT LAYOUT PLAN DRAWING SET ...................................129

1. Airport Layout Drawing ..................................................................................... 129 

2. Airport Airspace Drawing................................................................................... 132 

3. Inner Portion of the Approach Surface Drawing ................................................ 133 

4. Terminal Area Drawing ...................................................................................... 134 

5. Land Use Drawing .............................................................................................. 134

6. Runway Departure Surface Drawing...................................................135 

7. Airport Property Map................................................................... 135

List of Figures 

Figure 4-1: Public Meeting ...........................................................................................................17 

Figure 6-1: Timeline of Events.....................................................................................................28 

Figure 7-1: Sample of FAA Forecast Graphs ...............................................................................35 

Figure 7-2: Aviation Demand Elements .......................................................................................37 

Figure 7-3: Sample Table from Terminal Area Forecast Summary Report .................................44 

Figure 8-1: Commercial Service Terminal Complex....................................................................54 

Figure 9-1: Alternatives Analysis Process Example.....................................................................67 

Figure 10-1: Airport Layout Plan Drawing ..................................................................................77 

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PART I: THE PROCESS OF PREPARING MASTER PLAN STUDIES 

Chapter 1 Introduction 

101. PURPOSE AND APPLICATION 

This Advisory Circular (AC) provides guidance for the preparation of master plans for all 

airports. Its intent is to foster the development and adoption of a flexible approach to master 

planning that devotes resources and attention to critical issues. Planners should tailor an 

individual master plan to the unique conditions at the study airport. As a result, master plans for 

individual airports will vary in what elements they include and in the level of detail. 

An airport master plan is a comprehensive study of an airport and usually describes the short-, 

medium-, and long-term development plans to meet future aviation demand. The category of 

study that includes master plans and master plan updates can therefore be thought of as a 

continuum that varies by level of detail and associated effort. 

The elements of a master planning process will vary in complexity and level of detail, depending 

on the size, function, issues, and problems of the individual airport. The technical steps 

described in this AC are generally applicable, although each step should be undertaken only to 

the extent necessary to produce a meaningful product for a specific airport. However, study 

elements for large and/or complex airports may involve unique technical analyses beyond those 

detailed in this AC. The sponsor, the sponsor’s consultant, and FAA representatives must 

carefully prepare a scope of work that reflects the circumstances of the individual airport. 

102. INTENDED USERS 

This publication is intended primarily for use by members of the aviation community, especially 

those directly involved in preparing master plans: airport sponsors, airport staff, airport 

consultants, FAA representatives, and state aviation officials. It will also be useful to airport 

board members; municipal officials; state, regional, and local planning personnel; and the 

general public. 

103. NEED FOR NEW GUIDANCE 

Methods and techniques associated with airport master plan studies have evolved since the last 

version of this AC was published in 1985. This update incorporates current industry methods 

and procedures commonly employed in the preparation and documentation of master plan 

studies. 

104. FUNCTION OF MASTER PLAN STUDIES 

a. Airport master plans are prepared to support the modernization or expansion of existing 

airports or the creation of a new airport. The master plan is the sponsor’s strategy for the 

development of the airport. 

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b. The goal of a master plan is to provide the framework needed to guide future airport 

development that will cost-effectively satisfy aviation demand, while considering 

potential environmental and socioeconomic impacts. The FAA strongly encourages that 

planners consider the possible environmental and socioeconomic costs associated with 

alternative development concepts, and the possible means of avoiding, minimizing, or 

mitigating impacts to sensitive resources at the appropriate level of detail for facilities 

planning. 

c. Each master plan should meet the following objectives: 

1) Document the issues that the proposed development will address. 

2) Justify the proposed development through the technical, economic, and 

environmental investigation of concepts and alternatives. 

3) Provide an effective graphic presentation of the development of the airport and 

anticipated land uses in the vicinity of the airport. 

4) Establish a realistic schedule for the implementation of the development proposed in 

the plan, particularly the short-term capital improvement program. 

5) Propose an achievable financial plan to support the implementation schedule. 

6) Provide sufficient project definition and detail for subsequent environmental 

evaluations that may be required before the project is approved. 

7) Present a plan that adequately addresses the issues and satisfies local, state, and 

Federal regulations. 

8) Document policies and future aeronautical demand to support municipal or local 

deliberations on spending, debt, land use controls, and other policies necessary to 

preserve the integrity of the airport and its surroundings. 

9) Set the stage and establish the framework for a continuing planning process. Such a 

process should monitor key conditions and permit changes in plan recommendations 

as required. 

105. ORGANIZATION AND USE OF THE ADVISORY CIRCULAR 

a. Structure of the Advisory Circular – The Advisory Circular is presented in two parts: 

1) Part I – The Process of Preparing Master Plan Studies provides an introduction to 

the Advisory Circular, an overview of master plan studies, and a summary of the preplanning process. 

2) Part II – Elements of Master Plan Studies provides a detailed discussion of the 

various elements of master plan studies, including the components of master plan 

technical reports and the plan drawings that accompany them. 

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b. As noted above, Part II of the AC details the individual elements of a master plan study. 

Although they are presented in the order found in a typical master plan report, issues in 

some chapters may have a direct bearing on those in other chapters. Environmental and 

financial feasibility considerations, for example, must be considered throughout the 

process. These cross-linkages are explicitly identified in the relevant chapters of Part II. 

c. The AC includes several appendices of supplemental materials. Appendix A presents a 

glossary of terms that are commonly used in airport master planning. Appendix B 

provides a list of useful reference materials, including other advisory circulars, FAA 

orders, appropriate Code of Federal Regulations, Transportation Security Regulations, 

security-related publications, FAA reports, and general airport publications. Appendix C 

provides a listing of potential stakeholders in the public involvement program of the 

master planning process. Appendix D provides a discussion of environmental factors in 

airport master planning. Appendix E provides guidance on the site selection process. 

Appendix F shows the general guidelines in preparing the airport layout plan drawing set. 

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Chapter 2 Content of Master Planning Studies 

201. TAILORING STUDIES TO THE NEEDS OF INDIVIDUAL AIRPORTS 

The guidance in this AC covers planning requirements for all airports, regardless of size, 

complexity, or role. However, each master plan study must focus on the specific needs of the 

airport for which a plan is being prepared and the scope of a study must be tailored to the 

individual airport. Therefore, in a given study certain master planning elements may be 

emphasized while others may not be considered at all. Although the FAA does not require 

airports to prepare master plans, it strongly recommends that they do so. 

The intent of this AC is to foster a flexible approach in the preparation of airport master plans, 

enabling planners to focus their resources and effort on critical issues. As a scope of work is 

developed, the planners and airport sponsors must make decisions regarding two key questions: 

(1) what type of study should be conducted, and (2) what level of detail should be assigned to the 

individual elements of the study? 

202. TYPES OF MASTER PLANNING STUDIES 

a. The master planning process will vary with the size, complexity, and role of the study 

airport and may include a variety of supporting studies. However, all master planning 

studies will fall within one of two basic types: Airport Master Plans or Airport Layout 

Plan (ALP) Updates. 

b. Airport Master Plans – An airport master plan is a comprehensive study of the airport 

and typically describes short-, medium-, and long-term plans for airport development. 

Master planning studies, that address major revisions are commonly referred to as 

“Master Plans,” while those that change only parts of the existing document and require a 

relatively low level of effort tend to be known as “Master Plan Updates.” In common 

usage, however, the distinction refers to the relative levels of effort and detail of master 

planning studies. In most cases, the master plan will include the following elements: 

1) Pre-planning – The pre-planning process includes an Initial Needs Determination, 

Request for Proposal and Consultant Selection, Development of Study Design, 

Negotiation of Consultant Contract, and Application for Study Funding. 

2) Public Involvement – Once the consultant team is under contract and has been issued 

a notice-to-proceed, establish a public involvement program and identify and 

document the key issues of various stakeholders. 

3) Environmental Considerations – A clear understanding of the environmental 

requirements needed to move forward with each project in the recommended 

development program. 

4) Existing Conditions – An inventory of pertinent data for use in subsequent plan 

elements. 

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5) Aviation Forecasts – Forecasts of aeronautical demand for short-, medium-, and 

long-term time frames. 

6) Facility Requirements – Assess the ability of the existing airport, both airside and 

landside, to support the forecast demand. Identify the demand levels that will trigger 

the need for facility additions or improvements and estimate the extent of new 

facilities that may be required to meet that demand. 

7) Alternatives Development and Evaluation – Identify options to meet projected 

facility requirements and alternative configurations for each major component. 

Assess the expected performance of each alternative against a wide range of 

evaluation criteria, including its operational, environmental, and financial impacts. 

A recommended development alternative will emerge from this process and will be 

further refined in subsequent tasks. This element should aid in developing the 

purpose and need for subsequent environmental documents. 

8) Airport Layout Plans – One of the key products of a master plan is a set of drawings 

that provides a graphic representation of the long-term development plan for an 

airport. The primary drawing in this set is the Airport Layout Plan. Other drawings 

may also be included, depending on the size and complexity of the individual airport. 

9) Facilities Implementation Plan – Provides a summary description of the 

recommended improvements and associated costs. The schedule of improvements 

depends, in large part, on the levels of demand that trigger the need for expansion of 

existing facilities. 

10) Financial Feasibility Analysis – Identify the financial plan for the airport, describe 

how the sponsor will finance the projects recommended in the master plan, and 

demonstrate the financial feasibility of the program. 

c. Airport Layout Plan Updates – An update of the airport layout plan (ALP) drawing set 

should be an element of any master plan study. In fact, keeping the ALP current is a 

legal requirement for airports that receive Federal assistance. An update of the ALP 

drawing set will reflect actual or planned modifications to the airport and significant offairport development. An accompanying ALP Narrative Report should explain and 

document those changes and contain at least the following elements: 

1) Basic aeronautical forecasts. 

2) Basis for the proposed items of development. 

3) Rationale for unusual design features and/or modifications to FAA Airport Design 

Standards. 

4) Summary of the various stages of airport development and layout sketches of the 

major items of development in each stage. 

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An ALP drawing set update is an appropriate alternative to a full master plan whenever the 

fundamental assumptions of the previous master plan have not changed. If there have not 

been any major changes in airport activity or improvements that have had unanticipated 

consequences, a master plan update is not necessary. Another situation where only an ALP 

update would be appropriate is the examination of a single development item, such as 

runway safety area improvements. As indicated above, an ALP update will typically involve 

fewer elements than a full master plan study, including only the aviation demand forecasts, 

an assessment of facility requirements, a facility implementation and financing plan, and an 

airport layout plan drawing set. If additional steps are required to complete the ALP update, a 

full master plan study is probably a better choice. 

203. LEVEL OF STUDY DETAIL 

Although almost every master plan includes the full list of elements discussed above, the 

complexity of the individual elements will vary, depending on an airport’s size, function, and 

particular issues and problems. Each element should be analyzed only to the extent required to 

produce a meaningful product for that particular airport. The planning process should consider 

the facility planning needed to enable a seamless transition to subsequent projects. 

The scoping process used by the airport sponsor, the sponsor’s consultant, and the FAA to 

develop a work program for the planning study should determine the appropriate level of detail 

for each study element. The availability of planning information from Federal, state and local 

organizations may eliminate the need for developing similar information in a study effort. 

Chapter 3 contains additional information on the scoping process, while Part II provides greater 

detail on the various elements of an airport master plan. 

204. PRODUCTS OF THE MASTER PLANNING PROCESS 

a. The products of the master planning process will vary with the complexity of the effort. 

Master plans can include the following deliverables: 

1) A Technical Report contains the results of the analyses conducted during the 

development of the master plan. For complex studies, interim reports may be 

produced to facilitate coordination with various government agencies, tenants, users, 

the general public, and other interested parties. At the conclusion of the study, the 

interim reports are assembled into the final technical report. 

2) A Summary Report is useful in bringing together pertinent facts, conclusions and 

recommendations for public review. Such a report is an excellent place to highlight 

the economic benefits that flow from the airport to the communities it serves. 

3) An Airport Layout Plan Drawing Set contains a graphical representation of the 

proposed development in the master plan and is typically produced as a separate set 

of full-sized drawings. In addition, the ALP drawing set is typically included in the 

Technical Report in reduced form. 

4) A Web Page – Many airport sponsors maintain a public access web page with general 

information about the governmental unit involved and specific information regarding 

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the airport or airports operated by the sponsor. The Internet provides an excellent 

forum for the distribution of information on the progress of the study and its final 

findings and recommendations. 

5) Public Information Kit – Throughout the master plan study, airport sponsor 

representatives may be asked to speak to community associations, civic clubs, and 

other organizations with an active interest in the airport. Visual aids such as models, 

summary brochures, or computer presentations are excellent tools to use at these 

events to maintain support for the airport development program. 

b. The master plan technical report, summary report, and airport layout plan may be 

produced as paper versions and/or in an electronic format, as determined by the airport 

sponsor and FAA. The electronic format will ease distribution of the final reports after 

the initial printing is exhausted. 

c. It is again emphasized here that the level of complexity of each of these products should 

be determined during the development of the study design. The airport sponsor and the 

FAA have the flexibility to assess the level of detail that is appropriate for the individual 

airport and may identify other deliverables that should be produced to support the study 

effort. 

205. MASTER PLAN REVIEWS BY THE FAA 

a. The recommendations contained in an airport master plan represent the views, policies 

and development plans of the airport sponsor and do not necessarily represent the views 

of the FAA. Acceptance of the master plan by the FAA does not constitute a 

commitment on the part of the United States to participate in any development depicted 

in the plan, nor does it indicate that the proposed development is environmentally 

acceptable in accordance with appropriate public law. The FAA reviews all elements of 

the master plan to ensure that sound planning techniques have been applied. However, 

the FAA only approves the following elements of airport master plans:

1) Forecasts of Demand – The master plan forecast should be reviewed to ensure that 

the underlying assumptions and forecast methodologies are appropriate. Paragraph 

704.h of this guidance should be used to determine consistency of the master plan 

forecast levels and the Terminal Area Forecast (TAF). Inconsistencies between the 

master plan forecast and TAF must be resolved, and the forecast approved, before 

proceeding with subsequent planning work. 

2) Airport Layout Plan – All airport development at Federally-obligated airports must 

be done in accordance with an FAA-approved ALP. Furthermore, proposed 

development must be shown on an approved ALP to be eligible for Airport 

Improvement Program (AIP) funding. FAA approval of the ALP indicates that the 

existing facilities and proposed development depicted on the ALP conforms to the 

FAA airport design standards in effect at the time of the approval or that an approved 

modification to standard has been issued. Such approval also indicates that the FAA 

finds the proposed development to be safe and efficient. 

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Chapter 3 Pre-planning 

Planners, along with airport sponsors, must make two major decisions in tailoring a study to the 

needs of an individual airport: what type of study to conduct and what level of detail to use for 

the individual elements of the study. This chapter outlines these and other steps of the preplanning process. 

301. INITIAL NEEDS DETERMINATION 

a. Identifying General Need for Study – The airport sponsor usually identifies the need 

for a planning study, based on existing or potential shortcomings in the existing plan or 

airport. These deficiencies may be the result of demand exceeding capacity, the 

introduction of new aircraft types, or the emergence of a critical environmental problem. 

The airport sponsor’s strategic vision or business plan for the airport may drive the need 

for a planning study. In addition, national, state, or regional planners may have identified 

issues requiring the airport sponsor’s attention. Alternatively, airport users, such as the 

scheduled airlines and general aviation pilots, may have identified needs that prompted 

the airport sponsor to undertake a study. The airport sponsor should formulate priorities 

to establish which issues are most important. Periodic meetings between the airport 

sponsor and FAA representatives offer an excellent opportunity to review these issues. 

b. Determining Type of Study – Deciding whether the study in question will lead to a 

master plan or to an ALP update largely determines the elements to be included and the 

required level of effort. Even at this early stage of the process, the airport sponsor and 

the FAA should be able jointly to determine what type of study is appropriate. The 

sponsor usually will not make decisions regarding specific variations on the basic study 

type until the consultant has come on board. Although a master plan study will always 

include a technical report and an airport layout plan drawing set, supplemental products, 

which may often be related to public outreach efforts, will usually be determined during 

the scoping process. 

302. REQUEST FOR QUALIFICATIONS AND CONSULTANT SELECTION 

a. The current version of AC 150/5100-14 Architectural, Engineering and Planning 

Consultant Services for Airport Grant Projects provides important guidance for 

consultant selection, and its use is recommended. Another useful reference is 

“Guidelines to Selecting Airport Consultants” published by the Airport Consultants 

Council, an aviation industry trade association. 

b. As a general rule, airport sponsors hire a consultant to prepare planning studies. Before 

soliciting statements of qualifications (SOQs) from consultants, the airport sponsor 

should have a clear understanding of the issues that have defined the need for the study. 

This information should be provided in the Request for Qualifications (RFQ) that the 

airport sponsor will issue. 

c. The sponsor should assemble an unbiased and technically qualified selection panel to 

conduct the consultant selection. The qualifications of a firm should be judged on its 

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experience in similar work and its staff’s professional credentials. The planning team 

that is proposed by the consultant should include firms with relevant experience that can 

commit to complete the study in the amount of time specified. It is not uncommon for 

several firms to join together in a master planning effort for the purpose of providing 

specialized skills or local knowledge and expertise. 

d. The sponsor should avoid the use of elaborate submittal requirements or interviews, 

which add substantially to the cost of the selection process for both the sponsor and the 

prospective consultants. If the sponsor determines that interviews or requests for 

additional information are necessary, the sponsor should limit this activity to a short list 

of three to five firms selected by the evaluation panel. 

e. If sponsors anticipate an Environmental Assessment (EA) or Environmental Impact 

Statement (EIS), they should consult with the local FAA Airports office to determine the 

appropriate time to begin the consultant selection process. If a sponsor or the local FAA 

Airports office anticipates the need for an Environmental Assessment, the sponsor should 

select a qualified environmental contractor to prepare the EA. Sometimes, it may be 

appropriate for the sponsor to expand the scope of the master plan consultant’s 

responsibilities to include the EA. When the sponsor or the FAA have substantial 

concerns that the EA may suggest that an action may cause significant impacts, the 

appropriate FAA Airports office should select the contractor to prepare the EA. This is 

because if the EA shows that significant impacts would occur, the FAA must select the 

contractor to prepare its EIS. FAA’s selection of the EA contractor in this case saves 

time by eliminating the need for later contractor selection to prepare the EIS. 

303. DEVELOPMENT OF STUDY DESIGN 

a. The second decision in designing an effective planning study is to determine the level of 

detail or depth of analysis for each element. The airport sponsor and the selected 

consultant should negotiate these basic decisions as the work program is established. 

b. The airport sponsor, the consultant, the FAA, and others (as appropriate) begin this 

process by (1) identifying the airport development issues to be addressed in the master 

plan and (2) determining the types of analyses and level of effort needed to address each 

issue individually. Known as “scoping,” this is an important step in designing any 

planning study. 

c. The sponsor and the selected consultant should address a broad range of topics during the 

scoping process. As the scoping process proceeds, the planners must remember that each 

master plan study is unique and the appropriate scope of work will vary from airport to 

airport. The airport sponsor is encouraged to develop a scope of work that is appropriate 

to the circumstances of the individual airport. Some of the specific topics that should be 

addressed at this time include: 

1) Goals and Objectives – Discuss key airport development issues that the master plan 

will attempt to resolve. This discussion should answer questions such as: “Why is 

this master plan study being conducted?,” “What are the key issues that need to be 

addressed in the future development of the airport?,” and so forth. 

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2) Data Availability – Review the availability of activity forecasts and capacity 

assessments produced by state and regional system plans and FAA Terminal Area 

Forecasts and decide how to use them. If these data are not used, the reasons should 

be discussed with and accepted by all parties, including the FAA. This is especially 

true for low activity airports where demand/capacity relationships are usually not a 

critical consideration. Current inventory data may also be available to the consultant 

as a result of continuous planning efforts by the airport sponsor. Use of these data 

may reduce the need for new data collection efforts or surveys by the consultant. 

3) Forecast Horizons – Although 5-, 10-, and 20-year time frames are typical for short-, 

medium-, and long-term forecasts, some studies may want to use different time 

frames. For any forecast horizon, the short-term forecast should support a capital 

improvement program, the intermediate-term a realistic assessment of needs, and the 

long-term a concept-oriented statement of needs. Schedules for airport development 

that are directly related to demand levels should be tied to those demand levels, rather 

than dates, since the actual demand will often vary from that forecast, particularly as 

the time frame increases. At some airports, it may be necessary to look beyond the 

20-year time frame to protect the airport from incompatible land use development. 

The need to do longer range planning must clearly be justified during the scoping 

process. 

4) Environmental Considerations – Identify the level of environmental documentation 

that is likely to move forward with the recommendations of the completed master 

plan study. Sponsors, in consultation with the appropriate FAA Airport’s 

environmental specialist, should identify whether an Environmental Assessment (EA) 

or Environmental Impact Statement (EIS) may be required or whether categorical 

exclusions may apply. As noted previously, if sponsors anticipate an EA or EIS, they 

should consult with the local FAA Airports office to determine the appropriate time 

to begin the consultant selection process. Consideration should also be given to the 

appropriate state environmental regulations and the need to develop applicable 

documentation. 

5) Schedules – Agree upon schedules showing milestones for the completion of 

technical products and for coordination and review. The schedule should clearly 

indicate decision points beyond which work should not proceed without FAA or 

airport sponsor approval, such as FAA review and approval of the master plan 

forecast. 

Realistic schedule development is important. From a practical standpoint, adhering to 

the schedule for a complex study, such as a long-range plan for a high activity airport, 

is very difficult. Less complex studies should not have such a problem. In any case, 

the schedule for a master plan study should be firm so that all reviewers are aware of 

their responsibilities with respect to it. The airport sponsor should emphasize the 

importance of meeting planning process deadlines. 

6) Deliverables – The specific draft and final products of the planning process, and the 

general level of detail, should be listed in the scope of work and include the number, 

type, and format of paper reports, drawings, and electronic files. 

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7) Coordination and Public Involvement Program – For less complex studies, the 

FAA, the airport sponsor and the consultant may be the only participants as long as 

they coordinate with appropriate local officials, stakeholders, and ensure citizen 

participation through public information sessions. These sessions may be conducted 

separately or in conjunction with other public meetings. Often written updates for 

regional or state aviation, transportation and comprehensive planning agencies will be 

sufficient. 

For complex studies, it may be necessary to organize formal policy, technical, and 

review committees that meet regularly and use structured communications systems, 

including public hearings, public information workshops, and web-based information 

sharing tools. The committee membership may consist of representatives of local, 

state, and Federal government agencies as well as airport tenants, user groups, 

community associations, and business organizations. In addition, the active 

participation of the FAA concerning airspace management, navigational aid and 

approach aid installation, designation of instrument runways, potential financing of 

planning and development, and safety and security matters is essential. 

The local FAA Airports office can coordinate the involvement of the FAA 

organizations that are interested in the development of the airport. Advice from the 

airlines concerning aircraft types they plan to use and other operational and financial 

matters will also be essential to the development of an effective plan. 

The airport sponsors staff probably will participate in the day-to-day activities of the 

planning study. A large airport sponsor will likely have a more extensive 

management and staff structure than the sponsors of smaller airports. 

8) Budget – Development of the work scope and the associated fees is usually an 

iterative process. The work scope contemplated in early draft narratives may require 

fees that exceed a sponsor’s budget. Planners must adjust the scope of work, the 

proposed fees, or the available budget until all three components have been balanced 

to the satisfaction of the sponsor, the consultant, and the FAA. 

d. Careful attention to the development of the scope of work for the master plan study sets 

the stage for a successful study. Establishing a sound scope of work will also allow the 

sponsor, consultant, and the FAA to develop a budget that meets the goals and objectives 

of the study. Failure to do so may result in a study that is lacking vital details that affect 

the decision making process. It is important to note that Federal planning grants cannot 

be amended to cover increased costs. If additional work is needed beyond the original 

scope of work, an additional grant would probably be required. Many of the decisions 

made at this point will have an impact on the degree of difficulty that is encountered as 

the development program moves from planning to implementation. 

304. NEGOTIATING CONSULTANT CONTRACTS 

After scoping the study and negotiating a price for the consulting services, a contractual 

arrangement must be negotiated. 

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a. The recommended type of agreement between the airport sponsor and the consultant is a 

firm, fixed price contract. This is advisable whenever the level of effort can be fairly 

well predicted and where reasonable fees can be established at the outset. This type of 

contract imposes a minimum administrative burden and provides incentives for effective 

cost control and contract performance. 

b. Where the level of effort or duration of the study is uncertain, a cost plus fixed-fee 

contract or a time and materials contract may be required. Also, some airport sponsors, 

recognizing that master planning often uncovers unanticipated issues that need study, add 

an on-call component to their consultant contract, which allows the scope and fees to be 

developed as new tasks are identified. These contract provisions typically provide for 

payment on a time and materials basis, but not to exceed a specified amount. The use of 

such contracts must be well justified if Federal financial assistance will be provided. The 

FAA does not recommend contracts based on a cost-plus percentage of cost and they are 

not permitted if Federal financial assistance will be provided for the study. 

c. Advisory Circular 150/5100-14, Architectural, Engineering and Planning Consultant 

Services for Airport Grant Projects, is also a good reference for guidance on the options 

for a contract format. The procedures in this AC must be followed if Federal funds are 

involved. 

305. APPLICATION FOR FEDERAL FUNDING 

Almost all master planning studies for public airports receive Federal funding. The point at 

which a sponsor submits a grant application to the FAA varies with the individual study. For 

large and complex master plans, the sponsor should divide the total grant funding into two 

phases. The initial phase can fund early tasks such as the definition of issues, inventory of 

existing conditions, preparation of forecasts, and determination of facility requirements. The 

second phase grant application could be prepared after the study team has gained a better grasp 

of the key issues and a more precise cost estimate of the effort needed to complete the master 

plan. The FAA should be involved in the overall process as early as possible. The FAA can 

advise the sponsor on the best strategy for obtaining funding and on questions of the eligibility of 

the elements of the proposed scope of work. 

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PART II: ELEMENTS OF MASTER PLAN STUDIES 

Part II of this Advisory Circular provides detailed discussions of the elements of a typical master 

plan study. As noted in Chapter 1, the elements to be included in a particular study will vary 

depending on the size, function, and challenges facing the study airport. The following key 

elements of master plan studies are discussed in Part II of this Advisory Circular: 

 Chapter 4: Public Involvement Program 

 Chapter 5: Environmental Considerations in Airport Master Planning 

 Chapter 6: Existing Conditions 

 Chapter 7: Aviation Forecasts 

 Chapter 8: Facility Requirements 

 Chapter 9: Alternatives Development and Evaluation 

 Chapter 10: Airport Layout Plans 

 Chapter 11: Facilities Implementation Plan 

 Chapter 12: Financial Feasibility Analysis 

Each chapter in Part II ends with a section titled “Documentation Guidelines.” These guidelines 

are not mandatory, and planners should use their discretion in adopting only the guidelines that 

are consistent with their negotiated scope of work. Planners also have the flexibility to adopt 

other documentation guidelines that they feel are better suited to the particular circumstances of a 

study. Appendix B contains a comprehensive listing of other planning documents and guidelines 

that may be helpful. 

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Chapter 4 Public Involvement Program 

The first task in a master plan study, after the consultant receives a notice-to-proceed, is the 

creation of a public involvement program. The level of public involvement in airport planning 

should be proportional to the complexity of the planning study and to the degree of public 

interest. Most planning studies will fall between the minimal requirements of a small airport 

study and extensive public involvement required of a large and complex study. Particularly 

complex studies may merit the use of a consultant experienced in the public involvement 

process. 

Figure 4-1: Public Meeting 

Source: Portland Airport Project Advisory Committee 

Over the course of the study, the public involvement program will encourage informationsharing and collaboration among the airport sponsor, users and tenants, resource agencies, 

elected and appointed public officials, residents, travelers, and the general public. Collectively, 

these various groups form the stakeholders who have an interest in the outcome of the study. An 

effective public involvement program should provide these stakeholders with an early 

opportunity to comment, before major decisions are made; provide adequate notice of 

opportunities for their involvement; and should provide for regular forums throughout the study. 

401. TIMING 

Public involvement has its greatest impact during the early stages of the planning process, before 

irreversible decisions have been made and while many alternatives can be considered. When the 

stakeholders become involved before major decisions or commitments are made, the planners 

can better deal with issues of community concern and improve the chances of reaching a 

consensus on controversial matters. If stakeholders become aware that the important decisions 

were made before they were invited to participate, they may distrust the planners. In addition, 

when public involvement opportunities are not provided until late in the planning process, there 

may not be enough time to make significant changes. The tendency, instead, will be for planners 

to merely defend previously determined courses of action, rather than exploring any new 

alternatives. An effective public involvement program will usually avoid such an undesirable 

outcome. 

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402. TOOLS AND TECHNIQUES 

The study team may use a variety of forums, such as committees, public information meetings, 

small group meetings, and public awareness campaigns in a public involvement program. The 

selection of a specific platform depends on the particular complexities associated with the 

airport, the expected public interest in the master plan, the practices and policies of the airport 

sponsor, and budget considerations. In addition, it may be necessary to consider the special 

needs and sensitivities of low income and minority populations, consistent with the provisions in 

Executive Order 12898, Federal Actions to Address Environmental Justice in Minority 

Populations and Low-Income Populations. Although the public involvement program is 

important to the master plan effort, planners must balance the need for stakeholder involvement 

with the costs of such a process. Complex, large, or unfocused stakeholder groups can impede 

meaningful input, unnecessarily raise study costs, and frustrate participants as they struggle to 

communicate with the study group. 

a. Committees – Committees that facilitate the public involvement program often include a 

Technical Advisory Committee (TAC) and a Citizen’s Advisory Committee (CAC). The 

TAC is responsible for providing input and insight on technical issues. Committee 

members typically have a high level of technical competency associated with some aspect 

of aviation or airport operations and are major stakeholders in the airport’s operation. 

The CAC serves as a sounding board and information exchange group for stakeholders, 

reviews the planning team’s plans and proposals, interacts with the planning team 

members during the review, makes consensus recommendations to the planning team, 

and finally gives its recommendations on the finished plan to the airport sponsor. The 

membership of the CAC should be representative of all stakeholders. 

In reviewing the master plan, the TAC will evaluate its technical merit, while the CAC 

will weigh the recommendations against community goals, values, and needs. The 

committees are advisory, however, and have no decision making power of their own. In 

establishing these committees, the airport sponsor does not delegate its authority and 

responsibilities to them. The specific roles of such committees should be clearly defined 

at the outset and carefully explained at the initial meeting to prevent later 

misunderstandings. The size of both the TAC and CAC should be kept manageable. In 

some cases, it may be appropriate to combine the committees into a single group. 

The public involvement program should also include a management/policy/oversight 

committee to advise the planning team on policy decisions that will likely need to be 

made throughout the study. Committee members would typically include senior airport 

or airport sponsor staff that have the responsibility for decision making for the airport. 

b. Public Information Meetings – Traditional public hearings, where stakeholders are 

given the opportunity to make public statements about the study, are not a good forum in 

which to conduct a continuing discussion of issues and alternatives because of the formal 

and inflexible nature of such hearings. An “open house” format with interactive 

information stations staffed by knowledgeable staff or consultants is more informal, yet a 

very effective method by which to engage the public and stakeholders in soliciting their 

opinions on development options. A public information meeting using the open house 

format will permit stakeholders to visit a meeting site at their convenience and visit with 

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planners on an informal one-on-one basis. A short slideshow or videotape, which all 

attendees can view upon arrival at the open-house site, may be a useful introduction to 

the study process. If a more formal meeting is desired, starting with an open house and 

moving into a more formal forum can be effective. 

The number of public information meetings to be held over the course of the study can 

vary depending on the complexity of the study. It may also be necessary to hold 

meetings in more than one location to provide adequate geographic coverage for 

communities affected by the planning proposals. Public information meetings are 

typically held in the evening to provide most people the opportunity to attend. In some 

unique conditions, such as with a large elderly population, a day meeting may be needed. 

Complex projects may require that these meetings be scheduled throughout the day. 

c. Small Group Meetings and Briefings – Small group meetings may be held throughout 

the study to provide opportunities for detailed discussions of plan alternatives. These 

informal sessions allow study team members to learn about local concerns. Such 

meetings may be scheduled with community boards, elected officials, civic organizations, 

and other interested organizations. 

d. Public Awareness Campaign – An effective public awareness campaign is an essential 

part of the public involvement program. It is instrumental in generating initial 

stakeholder involvement, in maintaining stakeholder interest throughout the program, and 

in keeping the general public informed of the progress of the study. 

1) Informational and Educational Materials – Informational materials designed to 

educate a broad audience about all aspects of the study may be distributed to 

stakeholders. These materials might include fact sheets, flyers, press releases, 

newspaper ads, and general information packets. Planners should provide translations 

of this material if the airport is located in an area where English is not the first 

language for a large percentage of the residents. A mechanism should be provided 

for individuals or organizations to add their names to a mailing list to receive these 

materials. 

2) Web Pages – Web pages, with interactive or self-guided presentations, as well as 

electronic copies of study documents, are increasingly used as part of a public 

awareness campaign. Planners often link the master plan web page to the airport’s 

web site. 

e. Public involvement programs can place special requirements on an airport planning team. 

The team must be sensitive to the interests of stakeholders and have a positive attitude 

toward their participation in the planning process. The members of the team must also be 

aware of the extra time and personal effort that will be required, since they will have to 

meet regularly with the stakeholders at committee and public information meetings. 

The same planners who work with the stakeholders at the various stakeholder forums 

should do the actual planning. Experience shows that planners must gain the confidence 

of the stakeholders and overcome their initial concerns before any real progress can be 

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achieved. Extensive public involvement from start to finish in the planning process 

enhances all plans and proposals and satisfies the goals of long-range planning. 

403. IDENTIFY THE STAKEHOLDERS 

The types of stakeholders will vary at each airport, depending on the size of the airport and the 

complexity of the planning issues. The following is a list of the general categories of potential 

stakeholders, from which a list of appropriate participants can be developed: 

 Users and tenants 

 Groups and individuals from within the sponsor’s organization 

 FAA personnel from the appropriate Regional and Field offices 

 Resource agencies and other governmental units with regulatory or review authority 

 Other interested groups 

The individuals from a particular stakeholder group must be able to effectively represent their 

interests in discussions with the master plan preparation team. Furthermore, they should present 

the consensus view of the stakeholder group and not a special interest minority opinion. 

Although planners should make every effort to identify and communicate with all appropriate 

stakeholders early in the master plan process, it may also be necessary to add stakeholders as the 

study progresses. They must also be able to take study information back to their group to keep 

them informed throughout the planning process. Appendix C contains a more detailed list of 

potential stakeholders. 

404. IDENTIFY KEY ISSUES 

a. The identification of key issues is an early product of a well-designed public involvement 

program. Recall that the pre-planning activities identified in Chapter 3 included 

establishing which issues are of greatest concern to the airport. The results of that effort 

are essential in determining the type of study to be completed and in developing the 

scope of work. These will probably not include all issues that are of concern to each of 

the stakeholders. Discussions with the stakeholders (through use of the tools and 

techniques described earlier in this chapter) will help identify a broader set of problems, 

challenges, and opportunities that should be examined. These key issues will shape 

policy decisions, influence technical criteria and standards, and help identify 

development alternatives. 

b. Once the key issues are identified, the sponsor may want to modify the study approach to 

address any important issues that had not been previously included in the proposed study. 

Some issues may be raised during this process that are not appropriate to include in the 

master plan study; these should be addressed outside of the master plan effort. The 

airport sponsor may establish a separate forum to handle such issues. 

405. DOCUMENTATION GUIDELINES 

a. Document Key Issues – Accurate documentation of the key issues is essential, because 

stakeholders will track how the planning team addresses them throughout the study. 

Grouping the critical issues into major functional categories, such as facilities, business, 

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operational, properties, and environmental issues, will help planners understand the 

stakeholders’ concerns. The documentation should divide issues into those that will be 

addressed by the master plan study and those that will be addressed in a different forum. 

b. Document Public Involvement Program – Documentation of the public involvement 

program should appear in an appendix to the Master Plan. Copies of committee rosters, 

meeting minutes, advertisements, newsletters, and other elements of the Public 

Awareness Campaign can be placed in an appendix as the official record of the public 

involvement program. This documentation should be revised regularly over the course of 

the study rather than being prepared at the end of the process. 

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Chapter 5 Environmental Considerations 

501. GENERAL 

a. The purpose of considering environmental factors in airport master planning is to help the 

sponsor thoroughly evaluate airport development alternatives and to provide information 

that will help expedite subsequent environmental processing. By using existing maps of 

the airport area, prior environmental documents, and the Internet, planners and 

environmental specialists can get an excellent overview of sensitive environmental 

resources in and around the airport. The planner should understand that the consideration 

of environmental factors in the evaluation of alternatives should be tailored to each 

airport’s size, unique setting, and operating environment, and will typically not be as 

detailed as that in subsequent environmental reviews. The consideration of 

environmental factors in the planning process will typically result in an inventory 

(overview) of the airport’s environmental setting, the identification of potential 

environmental impacts of airport development alternatives, and the identification of 

environmentally related permits that may be required for recommended development 

projects. 

b. The FAA recommends that the planning process consider the needs of subsequent 

environmental review processes. The master plan should include thoroughly supported 

project justifications and thorough documentation of alternatives that meet the planning 

need and are reasonable and feasible (environmentally as well as technically); and should 

note any affects of the airport development alternatives on sensitive environmental 

resources. Considering environmental factors in master planning provides useful 

information and planning principles that will help expedite the environmental review of 

projects. 

c. Planners should develop each chapter of the master plan with environmental 

considerations in mind. Normally the environmental considerations should not be in a 

stand-alone chapter, but should be incorporated into the appropriate chapters, such as 

existing conditions and alternatives development and evaluation. 

d. When considering environmental factors in master planning, the planner and 

environmental specialist do not need to follow the specific impact categories outlined in 

FAA Order 5050.4, FAA Airports guidance for complying with NEPA. Rather, FAA 

Order 5050.4 should be consulted as a guide to help planners identify potential 

environmental impacts specific to the study airport that should be considered as planning 

continues. 

e. During the master plan scoping process, planners and environmental specialists should 

attempt to identify key environmental issues that will be involved in analyzing airport 

development alternatives to ensure that the master plan budget provides enough resources 

to analyze them. If such early identification is not possible, planners should propose an 

initial budget for the issues that may be identified during the master planning inventory 

and data collection process. If additional environmental issues are uncovered later in the 

planning process, the planner can prepare a separate scope and budget for a more detailed 

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analysis. However, sponsors and planners should be aware that Federal planning grants 

cannot be amended and the more detailed analysis would need to be accomplished in a 

separate study. 

f. Planners, in consultation with environmental specialists, should consider appropriate 

Federal environmental laws and regulations when analyzing proposed airport 

development alternatives. There are approximately 40 Federal laws, executive orders, 

and regulations protecting particular parts of the environment, such as the Clean Air, 

Clean Water, Endangered Species Acts, and an Executive Order on Protection of 

Wetlands. There are also many state and local environmental laws and regulations that 

should be considered in the master planning process. 

g. During the master plan scoping process, planners should try to identify any potential 

short-term capital development projects that might be recommended in the master plan 

that are known to trigger additional environmental processing, such as safety related 

projects. For such projects, the airport sponsor should consider beginning the 

environmental processing before the master planning process is completed. Otherwise, 

the various agencies and public involved may perceive that the NEPA analysis is biased 

because a recommended alternative was selected in the master plan before the NEPA 

process began. This guidance can be extended to longer-term projects in the case of new 

airports or major reconfigurations of existing airports. 

h. Planners should recognize the need to achieve a balance between the manmade and the 

natural environment. Although every proposed development project will have some 

impact on the natural environment, the use of prudent planning criteria, along with sound 

environmental data and analysis, will help minimize unavoidable environmental impacts 

and the delay of project design and construction. 

502. ENVIRONMENTAL CONSIDERATIONS IN MASTER PLANNING 

ALTERNATIVES ANALYSIS 

a. In the airport master planning process, the planner, along with an environmental 

specialist, should identify potential key environmental impacts of the various airport 

development alternatives so that those alternatives that avoid or minimize impacts on 

sensitive resources are considered. The planner should understand that the consideration 

of environmental factors in the evaluation of alternatives should be tailored to each 

airport’s size, unique setting, and operating environment, and will typically not be as 

detailed as that in subsequent environmental reviews. The evaluation of potential 

environmental impacts should only be done to the level necessary to evaluate and 

compare how each alternative would involve sensitive environmental resources 

b. Project justifications and the analysis and selection of alternatives, including an 

explanation of why certain alternatives were not carried forward, should be completed 

and documented in the master plan before the NEPA process is started. Only those 

alternatives that could solve the identified problems and have aeronautical utility should 

be forwarded for NEPA analysis. (See Appendix E, “Consideration of Environmental 

Factors in Airport Master Planning,” for additional discussion of this topic.) 

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c. Environmental factors should be considered during the development and analysis of 

airport project alternatives. This can help an airport sponsor propose recommended 

alternatives that FAA may eventually select as its preferred alternative during the NEPA 

processes. This in turn greatly facilitates the decision making process FAA must 

complete as part of its project approval process. It also reduces or eliminates the prospect 

of having to later update the Airport Layout Plan if the sponsor’s recommended 

alternatives are not selected as the preferred alternative during the NEPA processes. 

1) The facility requirements and alternatives analysis chapters of the master plan should 

provide sufficient documentation regarding the justification for each project so that 

these chapters may serve as the basis for the purpose and need section of any 

environmental document. 

2) Planners and environmental specialists should identify the potential key 

environmental impacts of each development project as part of the master plan 

alternatives analysis. Categories of potential impacts are defined in FAA Order 

1050.1, Environmental Impacts: Policies and Procedures and FAA Order 5050.4, 

FAA Airports guidance for complying with NEPA. A matrix showing each 

alternative and its potential environmental impacts may be useful for subsequent 

environmental processing. 

3) For some airports, only a few of the environmental impact categories will need to be 

discussed in the alternatives analysis (such as noise, wetlands, and social impacts), 

based on location-specific environmental issues identified in the environmental 

overview. Planners do not need to list each specific impact category mentioned in 

FAA Order 5050.4, but only those resources the alternatives would likely affect. In 

many cases, a simple environmental screening will be sufficient to identify those 

impacts. Detailed impact analyses will be conducted in any Environmental 

Assessment or Environmental Impact Statement that follow the master plan. 

d. Permits that may be needed for each proposed project should be identified in the 

alternatives analysis. Although such requirements can vary greatly from state to state and 

within each locality, some of the permits that are usually necessary include: 

 Clean Water Act, Section 404 Dredge and Fill Permit 

 Air Quality Permit for on-site batch plants or other construction-related activities 

 Local government construction permits 

 Growth Management Permits 

 United States Fish and Wildlife Service, National Marine Fisheries Service opinions, 

or State Wildlife and Game Commission Permits, if protected and endangered species 

could be impacted 

 Clean Water Act, National Pollution Discharge Elimination System Permits 

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503. FURTHER GUIDANCE ON CONSIDERATION OF ENVIRONMENTAL 

FACTORS IN AIRPORT MASTER PLANNING 

Appendix D, “Consideration of Environmental Factors in Airport Master Planning,” contains 

recommendations on how to evaluate environmental factors for large or complex projects in 

airport master planning. It contains a discussion of the interaction of the airport planning and 

environmental processes and recommendations on how to effectively integrate these processes. 

The appropriate treatment of environmental factors in airport master planning can make 

subsequent detailed environmental processing more efficient and speed the completion of airport 

development. Although Appendix D is primarily intended for large and complex projects, many 

of the techniques in the guide can be applied to all levels of master planning. 

504. DOCUMENTATION GUIDELINES 

a. The existing conditions chapter should document the airport’s environmental setting. 

The alternatives analysis chapter should document the potential environmental impacts 

associated with each development project alternative. In addition, the master plan should 

identify potential Federal, State, and local permits that may be required for each project 

alternative. Planners, with the help of environmental specialists, should include a matrix 

in the alternatives analysis chapter of the master plan that lists each development project 

alternative and its associated potential environmental impacts and required permits. This 

will be beneficial in subsequent environmental processing. 

b. Planners should use appendices for the majority of the technical documentation, such as 

noise analysis, wetland mapping, and threatened and endangered species reports to 

improve the readability and organizational flow of the alternatives analysis chapter. 

c. The potential environmental impacts of the proposed airport development alternatives 

should be addressed in a candid manner and written so that the public easily understands 

them. 

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Chapter 6 Existing Conditions 

601. GENERAL 

a. Most data gathering for a master plan study takes place when planners evaluate existing 

conditions. Typical broad categories of information to be collected include: the history of 

the airport; physical facilities on the airport; the regional setting of the airport and 

surrounding land uses; the environmental setting of the airport; socioeconomic and 

demographic data for the airport service area; historical aviation activity; and airport 

business affairs. 

b. To initiate data collection, planners should carefully review the scope of work and verify 

the type and quantity of data needed for subsequent analyses. It is easy to collect 

information that is not really necessary or to fail to gather critical information needed for 

later analyses. Planners can avoid these mistakes by carefully reviewing the scope of the 

study. 

c. To avoid unnecessary data gathering, planners should use existing data as much as 

possible. Previous master plans, other recent planning studies, and regional planning 

agencies can provide useful information that should be reviewed before any data 

gathering begins. However, planners should ensure the validity of the existing data 

before using them for the master plan study. 

602. BACKGROUND SECTION 

a. The background section should provide a brief overview of the history of the airport, 

describe its aeronautical role in the national aviation system, and identify its role in the 

community’s infrastructure. Many sponsors periodically assemble information about the 

economic benefits of their airport, such as employment, direct salaries, and air service, 

which can be summarized in the background section. 

b. Major milestone events in the history of the airport, such as ownership changes, 

construction of significant facilities, and the introduction of air service can be identified. 

A timeline, like that shown in Figure 6-1, may be used to present this information. 

603. INVENTORY AND DESCRIPTION OF EXISTING FACILITIES 

a. A significant portion of the inventory will be devoted to identifying the existing physical 

facilities at the airport. Drawings and other documents in FAA databases and on file with 

airport management are a good source of data and should be reviewed early in the 

inventory effort. These data may need to be supplemented with field observations, 

personal interviews with tenants and users, Internet searches, and surveys of passengers 

and employees. 

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Figure 6-1: Timeline of Events 

1934 – Airport 

officially opened

1928 – Original 

land donation

1937 – First commercial 

airline flight

1960 – VORTAC installed

1970 – Passenger 

terminal expanded

1941 – Additional 

40 acres donated

1953 – Dedication of new 

terminal building and ATCT

1975 – New ATCT

constructed

1987 – Airport 

Authority established

1990 – Airport master 

plan updated

1998 – Terminal 

expansion began

1998

1975

1934

1934 – Airport 

officially opened

1928 – Original 

land donation

1937 – First commercial 

airline flight

1960 – VORTAC installed

1970 – Passenger 

terminal expanded

1941 – Additional 

40 acres donated

1953 – Dedication of new 

terminal building and ATCT

1975 – New ATCT

constructed

1987 – Airport 

Authority established

1990 – Airport master 

plan updated

1998 – Terminal 

expansion began

1998

1975

1934

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b. Classifications that are commonly used to organize this information include the 

following: 

1) Airfield/Airspace – The functional use and geometry of runways, taxiways, and 

holding aprons; lighting, marking, and signing of runways and taxiways; navigational 

aids; visual approach aids, and instrument approach procedures. Information on the 

use of the airspace and how air traffic is managed should also be collected, including 

operational limitations resulting from traffic interaction with other airports or 

reserved airspace, obstructions to air navigation, noise abatement procedures, and 

airfield or navigational aid shortcomings. Planners should also compile historical 

data on weather conditions, such as prevailing wind direction and speed, as well as 

the occurrence of critical combinations of ceiling and visibility. The existence of, and 

the need for, Remain-Overnight-Parking (RON) should also be determined. 

2) Commercial Passenger Terminal Facilities – Inventory of terminal building space 

by functional use and size: ticket counters, number of gates, lineal feet of gate 

frontage, aircraft parking apron area, restaurants and other concession space, and 

passenger security screening procedures. Surveys conducted in hold rooms are often 

used to gather information about passenger characteristics that can be useful in 

determining future facility requirements. 

3) General Aviation Facilities – The quantity and type of hangars; transient aircraft 

parking apron areas, tie-down positions; general aviation terminal facilities; aircraft 

parking aprons; fixed base operators; flight schools; pilot shops; and the number and 

mix of based aircraft. 

4) Cargo Facilities – The quantity and area of air cargo buildings and aircraft parking 

aprons. At airports with significant air cargo activity, freight forwarders and other 

support functions are often located in areas adjacent to the airport. These should be 

identified on the airport layout plan. 

5) Support Facilities – The quantity and type of support facilities at an airport that 

encompass a broad set of functions that ensure smooth and efficient airport operation, 

include Aircraft Rescue and Fire Fighting stations, airport administrative areas, 

airport maintenance facilities, airline maintenance hangars, flight kitchens, aircraft 

fuel storage, heating and cooling systems, FAA facilities. For airport towers, 

determine their hours of operation. 

6) Access, Circulation and Parking – The quantity and type of ground access systems 

and commercial areas that serve the airport, or are served by it, such as on-airport 

access roads, circulation and service roads, parking and curb space, including 

information on their alignment, condition and capacity. Also include information on 

public transportation services, such as bus, rail, taxi and limousine, and the split 

between personal and public transportation. Consultation with state and local 

transportation agencies responsible for planning and operating surface transportation 

systems should produce data on proposed highway and transit plans, as well as traffic 

density statistics relative to surface systems leading to and from the airport. 

Furthermore, include information on rental car facilities and activity. It may difficult 

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to obtain information from rental car companies, but rental car facility planning is 

typically a critical element of planning for the terminal area and parking facilities, 

even at smaller airports. 

7) Utilities – Description of major elements of the infrastructure that service the airport’s 

utility demands for water, sanitary sewer, communications, heating and cooling, and 

power. Historical consumption data may be necessary to quantify future utility loads. 

Storm-water drainage, deicing and industrial waste disposal systems should also be 

included. 

8) Other – Non-aeronautical uses such as recreational facilities and parks, industrial 

parks, agricultural or grazing leases, and retail businesses. 

c. The inventory of existing facilities need not include all the classifications described 

above. That list is a general outline that should be modified to conform to the specific 

circumstances of an individual airport. For example, a general aviation master plan does 

not need a section on commercial passenger terminal facilities. Similarly, a plan for a 

large commercial service airport with little general aviation or air cargo activity could 

include the inventory of those facilities in a subsection describing support facilities. 

d. Whatever format is used to describe existing conditions should be followed in subsequent 

chapters, using a parallel structure, to describe demand/capacity and determination of 

facility requirements, identification and evaluation of alternatives, presentations of 

estimated capital costs, and the airport plans chapter. 

e. The inventory of existing conditions at an airport is a critical task in a master plan study, 

so this effort must be closely managed. Data should be collected only when there is a 

clear understanding of the need for the information to support the demand/capacity 

analyses and determination of facility requirements. 

604. DESCRIBE REGIONAL SETTING AND LAND USE 

a. A master plan study should examine the regional setting of an airport and the land use 

patterns around it. This is a critical task, because the impact of airport planning decisions 

can extend well beyond the airport property line. 

b. Collect information on the political boundaries of the airport and the political entities 

with jurisdiction over the operation of the airport and adjacent land uses. Identify the 

airport service area and the presence and role of airports that might compete with the 

study airport. 

c. Collect all applicable documents, such as official maps, the latest area-wide 

comprehensive land use and transportation plan, applicable municipal zoning ordinances 

and other land use controls and unusual building code provisions, including height zoning 

ordinances, noise overlay zones, and airport overlay districts. The development of 

practical land use strategies requires an understanding of the political context and local 

preferences regarding land use. 

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d. Identify the land uses in areas that will be exposed to airport operations. Land use is a 

continuously changing process, particularly in urban environments, so the land use 

inventory should collect information on planned and proposed land uses, as well as on 

existing uses. Note if there are any governmental programs designed to direct land use 

patterns in the area under review. For example, if the airport sponsor has completed a 

noise compatibility-planning program, it should contain valuable information on land use. 

e. Identify land uses that may affect the safe operation of the airport or influence its 

expansion. Structures that could obstruct air navigation, or the presence of other airports 

that may interfere with the study airport, are the principal safety concern. Also identify 

areas located near the airport that may represent a potential hazard to aircraft, such as 

flood control areas, stockyards, and sanitary landfills. 

f. Use geographic information systems (GIS), aerial photographs, topographical maps, 

obstruction charts, aeronautical charts, approach plates and other mapping tools to 

examine and display land use details. Many local governments have comprehensive GIS 

systems that contain electronic files for land use analysis and zoning. 

g. Consider off-airport drainage and flood control issues, which may be affected by airport 

development. 

605. ENVIRONMENTAL OVERVIEW 

a. The principal objective of an environmental overview is to document environmental 

conditions that should be considered in the identification and analysis of airport 

development alternatives. In the past, master plan studies often focused only on the 

environmental consequences of the recommended development plan. In those cases, 

much of the environmental overview would be conducted while other technical analyses 

were already underway and the environmental data would not be considered in the 

formulation of alternative development concepts. Current practice is to develop the 

alternatives with the subsequent environmental processes in mind and to consider 

environmental data in the evaluation of the alternatives. As a result, the master plan may 

aid in the formation of the purpose and need statements in subsequent environmental 

documents. 

b. Noise levels and air and water quality are the most common environmental concerns. 

However, other environmental conditions in and around the airport should also be 

examined, including: solid waste generation and disposal; toxic material disposal; 

floodplains and wetlands; endangered and threatened species of flora and fauna; biotic 

communities; parklands and recreational areas; historic, architectural, archaeological and 

cultural resources; and prime and unique farmland. Planners should refer to the current 

version of FAA Order 1050.1, Environmental Impacts: Policies and Procedures, for a 

complete list of environmental impact categories that may need to be examined. In 

addition to NEPA requirements, planners should consider appropriate state environmental 

regulations. Past and current uses of airport property should be examined to identify 

areas that may be contaminated, including fuel farms, chemical or agricultural aerial 

application refilling stations, and hangar areas used for various industrial processes such 

as aircraft maintenance and plating. 

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c. Planners should ask local resource agencies to provide any information they think should 

be considered in the process of identifying and evaluating alternative development 

options. 

d. Any existing airport noise or environmental programs should be discussed in the 

environmental overview. 

e. When cost effective, data collected in the environmental inventory can be placed in a GIS 

database for better data visualization, communication, and analysis. 

606. DEVELOP SOCIOECONOMIC DATA 

a. Socioeconomic data serve two purposes in a master plan study: to ascertain the nature of 

the community and market the airport serves and to provide specific inputs for the 

preparation of aviation demand forecasts, particularly econometric demand models. 

b. An effective understanding of the community is helpful in ensuring that the planning is 

responsive to its long-term needs. Planners should focus on those socioeconomic factors 

that affect the community’s need for air transportation. For example, an economy based 

on tourism would have air transportation needs that would be quite different from those 

of an agricultural region. 

c. A vast array of socioeconomic data are available from many different sources, including 

a number of commercial vendors; the U.S. Bureau of the Census; metropolitan planning 

commissions; and state, county, or local agencies. Planners should be careful when using 

different sources of socioeconomic data to ensure compatibility. 

607. ASSEMBLE HISTORICAL AVIATION ACTIVITY 

a. The historical data necessary for forecasting aviation demand are generally available in 

the records maintained by the airport. At airports with control towers, FAA records of 

operations by commercial service, air taxi, military, and general aviation aircraft and 

revenue passenger enplanements are available in the Air Traffic Activity Data System 

(ATADS) on the FAA Policy Office’s data system website at 

http://www.apo.data.faa.gov/. At airports without control towers, airport records, FAA 

Form 5010, Airport Master Record, and airport system plan study are a good source of 

information. 

For commercial service activity, planners should collect data that identify the air carriers; 

the proportion of operations and enplanements by each; markets served; the number of 

originating, terminating, and connecting passengers; the proportions of domestic and 

international passengers; and air cargo activity. It will also be useful to have a 

breakdown of the fleet mix of aircraft using the airport. 

For general aviation activity, planners should collect data that identify the category and 

class of aircraft, types of fuels those aircraft use, the type of airport services used, and the 

availability of hangars for tenant and transient aircraft. 

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b. Master plans for large airports often involve the use of computer simulation models. For 

an airfield simulation, planners will need a detailed schedule of arrival and departure 

times for all commercial operations. Records for average or peak days can often be 

obtained from airport tower records, radar tapes, or noise monitoring systems. 

Commercial vendors such as the Official Airline Guide can also be helpful. For terminal 

and landside simulations, planners will need the passenger flow volumes in each terminal 

associated with the aircraft schedules. 

608. FINANCIAL DATA 

Airport master planners must examine an airport’s financial resources, including its basic 

business model, operating revenues and expenses, and sources and uses of capital funds. 

a. Airport Business Model – Summarize the airport’s basic business model to help 

planners organize the vast amount of financial data available at most airports. The 

business model summary should describe the financial operations of the airport, including 

how its costs and revenues are charged or credited to airport users and how any 

operational surplus or deficit is handled. In addition, the business model summary should 

outline how the airport typically funds capital projects (i.e., with AIP and other grants, 

Passenger Facility Charges, airport revenue bonds, and so forth). If the airport sponsor 

owns and operates a multi-airport system, the business model summary should discuss 

how the financials for the study airport are addressed in relation to the whole airport 

system. For instance, AIP funds may be proportioned among airports, based on funding 

priorities rather than by the ratios of activity. 

b. Operating Revenues and Expenses – Summarize broad categories of operating 

revenues and expenses. The FAA requires all commercial service airports to submit 

financial information to the FAA annually on FAA Form 127 and these reports may 

provide a good starting point. Airport managers often divide operating revenues into 

airline revenues and non-airline revenues. Non-airline revenues are often subdivided into 

categories such as terminal concessions; rental car; parking; hangar, land, and other 

rentals; other; and tax revenues. Operating expenses are often divided into broad 

categories such as personnel, maintenance, utilities and supplies, other, and debt service. 

c. Capital Funding – Summarize the airport’s ongoing capital improvement program and 

how it funds its capital development program. The capital improvement program can be 

funded from many sources, including revenues from the airlines, concessionaires, other 

airport tenants, tax levies (if applicable), passenger facility charges, AIP grants, other 

federal and state grants-in-aid, and airport revenue bond proceeds. 

The financial feasibility of the capital improvement program will be determined largely 

by the magnitude and reasonableness of the charges, rents, and taxes paid by airport 

users, tenants, and others. The information collected in this inventory will be used to 

prepare a financial plan for the recommended development program. 

Much of the information discussed in the preceding paragraphs relates primarily to the 

financial data for commercial service airports and larger general aviation airports. Many 

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smaller general aviation airports will not have such data readily available; however, such 

information may be part of the financial records of the sponsor. 

609. DOCUMENTATION GUIDELINES 

a. The documentation of existing airport conditions should make liberal use of drawings, 

tables, aerial photographs, and exhibits produced from geographic information system 

databases. Presented in this manner, such information is easy to understand, interpret, 

and locate for later reference. 

b. Planners do not need to include all collected information in the report. Some should 

simply remain in work files until needed to support the technical analyses. 

 

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Chapter 7 Aviation Forecasts 

701. GENERAL 

a. Purpose of aviation forecasts – Forecasts of future levels of aviation activity are the 

basis for effective decisions in airport planning. These projections are used to determine 

the need for new or expanded facilities. In general, forecasts should be realistic, based 

upon the latest available data, be supported by information in the study, and provide an 

adequate justification for airport planning and development. Any activity that could 

potentially create a facility need should be included in the forecast. 

Planners should prepare a reliable activity baseline, select an appropriate forecast 

methodology, develop a forecast, compare it to other forecasts for reasonableness, and 

submit the forecasts to the FAA for approval. The planning agency should use 

appropriate statistical techniques to estimate activity where actual operations counts are 

not available. 

Figure 7-1: Sample of FAA Forecast Graphs 

U.S. REGIONAL/COMMUTER

INTERNATIONAL ENPLANEMENTS

0

1

2

3

4

5

6

7

8

9

96 98 00 02 04 06 08 10 12 14 16

Fiscal Year

Passengers (Mil)

U.S. REGIONAL/COMMUTER 

SYSTEM ENPLANEMENTS 2004-2016

3.9

9.9

15.4

18.7

3.9

9.3

13.7

18.9

0

5

10

15

20

2004 2005 2006 2007-16

Year

ANNUAL PERCEN

T

GROWTH

FY CY

U.S. REGIONAL/COMMUTER

INTERNATIONAL ENPLANEMENTS

0

1

2

3

4

5

6

7

8

9

96 98 00 02 04 06 08 10 12 14 16

Fiscal Year

Passengers (Mil)

U.S. REGIONAL/COMMUTER 

SYSTEM ENPLANEMENTS 2004-2016

3.9

9.9

15.4

18.7

3.9

9.3

13.7

18.9

0

5

10

15

20

2004 2005 2006 2007-16

Year

ANNUAL PERCEN

T

GROWTH

FY CY

Source: FAA Aerospace Forecasts, Fiscal Years 2005-2016, U.S. Department of 

Transportation, Federal Aviation Administration, Office of Aviation Policy & Plans, March 2005 

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b. Level of forecast effort – The level of effort required to produce a planning forecast will 

vary significantly from airport to airport. Considerable effort, including the use of 

elaborate forecasting tools and techniques, may be warranted in the case of more complex 

projects. An existing forecast, on the other hand, may be all that is required for simpler 

projects. Planners should determine the appropriate level of forecasting effort in the 

course of pre-planning and scoping the study. 

A number of forecasts are readily available for use in developing and evaluating the 

master plan forecast. These include the Terminal Area Forecast (TAF), state aviation 

system plans, and other planning efforts. 

c. Use of the forecasts – Prior to use in the master plan, the proposed forecasts must be 

submitted to the FAA for review and approval. Once approved, the forecasts may be 

used to provide an initial timetable for facility improvements, as a basis for the 

development of alternatives to meet the projected demand, and as a basis for 

environmental analyses and economic and financial plans 

702. FORECAST ELEMENTS 

a. Types of aviation activity – To establish the demands likely to be placed on airport 

facilities, forecasts should include all relevant aviation demand elements, including both 

the type and level of aviation activity expected at the airport over the planning horizon. 

The specific activity elements to be forecast will vary depending on the size and category 

of an airport and the objectives of the master plan study. Planners should note if the 

forecast projects the introduction of jet aircraft at the study airport, since this will be 

important to the future environmental review process. 

Aviation demand forecasts typically include aircraft operations and identify the critical 

aircraft. Forecasts for commercial service airports will also include, at a minimum, 

passenger enplanements, while forecasts for general aviation airports will include the 

number and type of based aircraft. The aviation demand elements to be forecast are 

shown below in Figure 7-2. 

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Figure 7-2: Aviation Demand Elements 

Required Included Where Appropriate 

Operations (annual) 

 Itinerant 

 Air Carrier 

 Air Taxi and Commuter 

 (Regional) 

 General Aviation 

 Military 

 Local 

 General Aviation 

 Military 

Domestic vs. International 

Annual Instrument Approaches 

IFR vs. VFR Operations 

Air Cargo Aircraft Operations 

 Touch and Go Operations (Training) 

Helicopter Operations 

 Average Load Factor 

 Fuel Use 

Passengers (annual) 

 Enplanements 

 Air Carrier 

 Commuter 

 Enplanements 

 Originating 

 Connecting 

Passenger and Cargo Data 

Domestic vs. International 

General Aviation Passengers 

Helicopter 

Air Taxi 

Other 

 Number of Student Pilots 

 Number of Hours Flown 

Aircraft 

 Based Aircraft 

 Aircraft Mix 

 Critical Aircraft 

Average Seats/Aircraft 

b. Term of aviation forecasts – Prepare forecasts for short-, medium- and long-term 

periods and specify the existing and future critical aircraft. Short-term forecasts, for up to 

five years, are used to justify near-term development and support operational planning 

and environmental improvement programs. Medium-term forecasts (a 6- to 10-year time 

frame) are typically used in planning capital improvements and long-term forecasts 

(beyond 10 years) are helpful in general planning. 

c. Peak period forecasts – Forecasts of annual aircraft operations or passenger activity may 

not adequately describe the needs of individual airport facilities. Because they average 

demand levels over the course of an entire year, annual metrics are only useful when 

activity tends to be evenly distributed over the hours, days, and months of a particular 

airport facility’s operation. However, most airports have peak periods where demand far 

surpasses those averages. Stresses arising from activity peaks are critical at commercial 

service airports serving as hubs or that have substantial international traffic. Master plan 

forecasts must include appropriately defined peak period activity levels for facilities 

planning, such as terminal buildings and ground access systems. 

703. FACTORS AFFECTING AVIATION ACTIVITY 

Planners preparing forecasts of demand or updating existing forecasts should consider 

socioeconomic data, demographics, disposable income, geographic attributes, and external 

factors such as fuel costs and local attitudes towards aviation. 

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a. Economic Characteristics – The economic characteristics of a community will affect 

the demand for air traffic. In addition to national and regional economic activity, these 

include specific, identifiable, local activities that distinguish the geographic area served 

by the airport. The type of industry in an airport’s service area also will affect aviation 

demand, with manufacturing and service industries tending to generate more aviation 

activity than resource industries such as mining. 

b. Demographic Characteristics – The demographic characteristics of an area’s population 

also affect the demand for aviation services. Demographic characteristics influence the 

level, composition, and growth of both local traffic and traffic from other areas. Factors 

such as leisure time and recreational activity are important in estimating activity, but can 

be difficult to measure. Another important demographic characteristic is the level of 

disposable income, usually measured on a per capita basis, which is a good indicator of 

the propensity to travel and general aviation aircraft purchases and use. 

c. Geographic Attributes – The geographic distances between populations and centers of 

commerce within the airport’s service area may have a direct bearing on the type and 

level of transportation demand. The existence of populations and centers of commerce 

beyond an airport’s service area may indicate the need for additional airports that serve 

transportation demand. The physical characteristics of the area and the local climate may 

also be important, since they may stimulate holiday traffic and tourism. The role of the 

airport within the airport system and its relationship to other airports may also have an 

effect on the services that are demanded at the airport. 

d. Aviation-related Factors – Business activity, changes in the aviation industry, and local 

aviation actions can markedly affect the demand for airport services. Business 

developments in the airline industry, such as consolidations, mergers, and new marketing 

agreements, can affect airline operations at a particular airport, while fractional 

ownership can affect others. Wider industry trends, such as the introduction of new lowfare service, the introduction of new classes of aircraft, and the growth or curtailment of 

airline hubbing, may also alter the level and pattern of demand. To the extent that such 

actions affect all aviation activity in a region or the country, their effects will be captured 

in the FAA’s forecasts. If, however, only the demand at a particular airport is affected, 

appropriate adjustments should be made in that airport’s forecast. Actions taken by local 

airport authorities, such as changes in user charges, ground access policies or their 

support services can also stimulate or hinder the demand for airport services. Investment 

decisions made as a result of the planning process itself can also produce change by 

removing physical constraints to airport growth, which should be reflected in the 

forecasts. 

e. Other Factors – External factors may also influence the demand for airport services. 

These include economic actions such as fuel price changes, availability of aviation fuels, 

currency restrictions, and changes in the level and type of aviation taxes. Political 

developments, including rising international tensions, changes in the regulatory 

environment, and shifting attitudes toward the environmental impacts of aviation, may 

also impact future demand and should be considered in developing or updating airport 

forecasts. 

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704. STEPS IN THE FORECAST PROCESS 

The forecast process for airport master plan studies consists of a series of basic steps that may 

vary from airport to airport, depending on the issues to be addressed and the level of effort 

required to develop the forecast. Steps in this process include the identification of parameters 

and measures to forecast, review of previous forecasts, determination of data needs, 

identification of data sources, collection of the data, selection of the forecast methods, 

preparation of the forecasts, and evaluation and documentation of the results. 

Planners should refer to a report prepared by the FAA’s Office of Aviation Policy and Plans 

(APO-110), Forecasting Aviation Activity by Airport, dated July 2001, to help them determine 

what approach to use. That report can be accessed at 

http://www.faa.gov/data_statistics/aviation_data_statistics/. The APO data systems web site, at 

http://www.apo.data.faa.gov, provides historical traffic counts, forecasts of aviation activity, and 

delay statistics. The forecast process can be summarized as follows: 

a. Identify Aviation Activity Measures – The aviation activity measures that planners 

need to forecast are the level and type of activities that are likely to affect facility needs. 

For airfield planning, the most important activities are aircraft operations and the fleet 

mix, since these define the runway and taxiway requirements. As a general rule, plans 

for general aviation airports require forecasts of aircraft operations and based aircraft. 

Airports with commercial service require forecasts of aircraft operations, fleet mix, and 

passenger enplanements. Passenger levels are particularly important, since they 

determine the size of the terminal building and other important elements of airport 

infrastructure such as parking facilities and access roads. Planners should forecast 

instrument operations and instrument approaches, since these data will be needed if they 

expect to add or upgrade navigational aids and instrument landing systems. For some 

airports, additional forecast elements may be required, including peak hour operations 

and peak hour passenger flows. 

b. Review Previous Airport Forecasts – Planners should review the latest published FAA 

Terminal Area Forecast for the study airport and any forecasts from an earlier master 

plan. Contact regional planning bodies and state aviation agencies to determine whether 

they have conducted airport system planning studies that included forecasts of demand 

for the study airport. 

c. Gather Data – Determine what data are required to prepare the forecasts, identify the 

data sources, and collect historical and forecast data. What data to gather, and for what 

time period, will depend not only on the parameters to be forecast but also on what data 

are available from previous airport forecasts. In some cases, it may be necessary to 

conduct additional activity counts. 

d. Select Forecast Methods – There are several appropriate methodologies and techniques 

for forecasting aviation activity at a specific airport. The selection and application of 

appropriate methodologies and techniques requires professional judgment. A forecast 

effort may involve a number of different techniques. The FAA report referenced above 

provides a detailed discussion of several forecasting techniques. The most common 

techniques include the following: 

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1) Regression analysis – A statistical technique that ties aviation demand (dependent 

variables), such as enplanements, to economic measures (independent variables), such 

as population and income. Regression analysis should be restricted to relatively 

simple models with independent variables for which reliable forecasts are available. 

2) Trend analysis and extrapolation – Typically uses the historical pattern of an activity 

and projects this trend into the future. This approach is useful where unusual local 

conditions differentiate the study airport from other airports in the region. 

3) Market share analysis or ratio analysis – This technique assumes a top-down 

relationship between national, regional, and local forecasts. Local forecasts are a 

market share (percentage) of regional forecasts, which are a market share 

(percentage) of national forecasts. Historical market shares are calculated and used as 

a basis for projecting future market shares. This type of forecast is useful when the 

activity to be forecast has a constant share of a larger aggregate forecast. 

4) Smoothing – A statistical technique applied to historical data, giving greater weight 

to the latest trend and conditions at the airport; it can be effective in generating shortterm forecasts. 

e. Apply Forecast Methods and Evaluate Results – After the list of activities to forecast 

has been identified, the appropriate forecast methods have been selected, and necessary 

data have been assembled, the actual forecasts can be prepared. If several methods are 

used to project specific aviation activities, they will probably produce different estimates. 

Therefore, an evaluation of the reasonableness of the results and their consistency with 

other forecasts should be conducted. 

A useful procedure in such an evaluation is to prepare a time line showing both forecast 

results and historical trends. Similarly, one might compare the history and forecast for 

the airport with the FAA national history and forecast for the same activity parameter. If 

the comparison of the growth rates shows a significant difference, the planners must be 

able to explain it. Forecast results may also be evaluated by comparing them with other 

forecasts prepared for the airport, such as those contained in state or regional aviation 

system plans. One might also review the operational factors and events implicit in the 

forecast to determine if differing assumptions regarding those factors have affected the 

forecast results. For example, a constraint on operations associated with runway and 

apron limitations at the airport could affect the results. Therefore, it is useful to evaluate 

forecasts both with these constraints and with the constraints removed, i.e., a constrained 

and an unconstrained forecast. 

If demand levels are likely to be particularly sensitive to one or more factors, the planner 

should estimate the impact of reasonable changes in the underlying assumptions about 

those factors. For example, if expected growth in aircraft operations is highly dependent 

on the continued operation of a fixed base operator (FBO) and there is a reasonable 

possibility that the FBO will close, the planner should estimate how much that closing 

would change the predicted demand. The planner should also examine general aviation 

hangar activity, including the airport hangar waiting list, and estimate how much 

increased hangar space would change predicted demand. 

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If the timing of important demand-generating factors (specific local or national events or 

activities resulting in an increased demand for aviation services) is uncertain, the 

forecaster can construct a time line showing the period of uncertainty, during which 

demand constraints or the diversion of traffic to another airport may be needed. In this 

respect, the actual number of operations or enplanements in any specific future year is 

less important than the certainty that a particular threshold will be reached during the 

planning period. This approach acknowledges that demand is expected to exceed the 

airport’s capacity, but that there is a range of time (with a range of forecast error costs, 

i.e., costs in terms of delays and reduced service levels as a result of airport capacity not 

keeping up with aviation demand because of forecast inaccuracy) during which this 

problem needs to be considered. 

When preparing forecasts for airports with declining activity, the forecast should identify 

the underlying cause for the decline, including a review of national and local trends. A 

sudden decrease in activity may be temporary, particularly if local income and population 

are steady or advancing. If the drop in activity takes place more gradually and is 

sustained, the decline is more likely to continue during the forecast period. 

To document an expected upward trend in activity, planners should get letters of support 

from airlines, fixed base operators, or other users; information from the Official Airline 

Guide, general aviation associations, news articles that document changes at nearby 

airports, survey data for aircraft activity, and trend data for based aircraft. Such letters 

should state that the writers plan changes in their operations at the study airport. 

Most forecasts should include a sensitivity analysis to measure likely variations in 

activity if the factors influencing activity change. One method of measuring the 

uncertainty in the forecast is to use a number of alternative assumptions in preparing it. 

The use of alternative scenarios should be discussed with FAA staff during master plan 

study scoping. 

It is often useful to provide a range of activity forecasts, that is, to forecast a high level of 

activity as well as a lower level and to try to determine where within this range the most 

likely forecast will be found. If a plan uses scenario forecasting and other techniques that 

develop alternative projections, the airport sponsor can then provide the most likely 

forecast projections to the FAA for its approval. Having a range of forecast activity 

allows airport planners to develop flexibility in facilities to accommodate different 

activity levels. 

It may also be useful to develop Planning Activity Levels (PALs) based on the forecast. 

PALs are selected activity levels that the planner believes may trigger the need for 

additional airport capacity or other development and may be used for analyzing the 

benefits of proposed development alternatives. They may also be used to establish 

thresholds for the implementation of airport development projects. The use of PALs 

focuses the airport sponsor and the public on the need to plan for aviation activity levels 

rather than specific timelines. 

f. Compare Forecast Results with the FAA’ s Terminal Area Forecasts – Planners 

should compare their forecast results with those contained in the most recent Terminal 

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Area Forecast. To facilitate this comparison, the FAA recommends completing the 

template in Appendix C of the document titled Forecasting Aviation Activity by Airport. 

g. Approval of the Forecasts – The general requirement for FAA approval of the master 

plan study’s forecasts is that they are supported by an acceptable forecasting analysis and 

are consistent with the TAF. Master plan forecasts for operations, based aircraft, and 

enplanements are considered to be consistent with the TAF if they meet the following 

criteria: 

1) Large, Medium, and Small Hub Airports 

a) Forecasts differ by less than 10 percent in the 5-year forecast and 15 percent in 

the 10-year period, or 

b) Forecasts do not affect the timing or scale of an airport project. 

2) Other Commercial Service Airports 

a) Forecasts differ by less than 10 percent in the 5-year forecast and 15 percent in 

the 10-year period, or 

b) Forecasts do not affect the timing or scale of an airport project, or 

c) Forecasts do not affect the role of the airport as defined in the current version of 

FAA Order 5090.3, Field Formulation of the National Plan of Integrated Airport 

Systems. 

3) General Aviation and Reliever Airports 

Where the 5- or 10-year forecasts exceed 100,000 total annual operations or 100 

based aircraft: 

a) Forecasts differ by less than 10 percent in the 5-year forecast and 15 percent in 

the 10-year period, or 

b) Forecasts do not affect the timing or scale of an airport project, or 

c) Forecasts do not affect the role of the airport as defined in the current version of 

FAA Order 5090.3, Field Formulation of the National Plan of Integrated Airport 

Systems. 

When the 5- or 10-year forecast is for less than 100,000 total annual operations or 100 

based aircraft, the forecast does not need to be reviewed at FAA Headquarters, but the 

data should be provided to the FAA for the annual update of the TAF. 

Further guidance on FAA review and approval of aviation forecasts is defined in a memorandum 

dated December 23, 2004 that can be found at 

http://www.faa.gov/airports_airtraffic/airports/planning_capacity/. 

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Any substantial differences between the master plan forecasts and the TAF must be resolved 

before moving onto subsequent parts of the master plan. If the planner expects the master plan 

forecasts to be inconsistent with the TAF for any reason, the FAA’s Project Manager should be 

contacted early in the forecast development process to discuss the implications of the variance. 

Locally prepared forecasts may contain a more detailed analysis of local economic conditions or 

development that is not considered in preparing the TAF. Therefore, airport sponsors should 

review the FAA’s TAF for their airport on a regular basis and notify their FAA Planner/Planning 

Program Manager when they believe local conditions merit a revision to the TAF. When 

requesting a change to the TAF, the airport sponsor should provide reliable historical data and 

letters from individuals with the authority to affect operations, which document planned changes 

in operations. 

705. DOCUMENTATION 

Present the results of the forecast process and a description of the process itself as a separate 

chapter in the master plan report. The forecast chapter should contain extensive documentation. 

The level of detail provided should be sufficient to enable both the FAA to analyze the results, 

for planners to use them later in the planning and environmental process, and so the forecast can 

be adapted for future planning efforts. 

The master plan report should summarize each forecast element, explain the forecast methods 

used, highlight significant assumptions, clearly and concisely present the forecast results, and 

provide an evaluation of the forecast. Tabulations of historical and forecast data should be 

included for each forecast element; graphical presentations of key time series and forecasts are 

usually helpful. FAA recommends completing the template in Appendix B of the report titled 

Forecasting Aviation Activity by Airport. Explanations should be provided if major variances 

from historic trends are forecast. For complicated forecasts, an appendix to the technical report 

should provide detailed documentation of the methodology. 

706. SOURCE DATA 

The following sources may provide assistance for planners in preparing forecasts for master plan 

studies: 

a. Terminal Area Forecasts – The FAA’s Terminal Area Forecast (TAF) contains 

historical data for at least the past 10 years and forecast data for the next 15 years. The 

TAF summary report for each airport includes, as appropriate: aircraft operations 

(landings and takeoffs, local and itinerant; total operations; and air carrier, commuter/air 

taxi, general aviation, and military operations), enplanements (total, air carrier and 

commuter), and total instrument operations. The TAF presumes an unconstrained 

demand for aviation services. 

b. National Forecasts – The FAA’s Office of Aviation Policy and Plans publishes two 

other major forecasts, the FAA Aerospace Forecasts and the FAA Long-Range 

Aerospace Forecasts. The FAA Aerospace Forecasts are estimates of national aviation 

demand for the next 12 years. 

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Figure 7-3: Sample Table from Terminal Area Forecast Summary Report 

Count 2003 2010 2020 2003-2010 2010-2020

Large Hubs 33 460,486,763 623,735,048 832,432,922 4.43 2.93

Medium Hubs 35 113,930,143 146,148,406 191,273,310 3.62 2.73

Small Hubs 66 43,914,690 63,050,236 80,139,022 3.69 2.43

Non Hub Towers 351 17,122,217 19,602,930 23,380,002 1.95 1.78

Total 485 635,453,813 852,536,620 1,127,225,256 4.17 2.83

Count 2003 2010 2020 2003-2010 2010-2020

Large Hubs 33 14,356,535 17,766,287 22,010,896 3.09 2.17

Medium Hubs 35 6,972,068 7,846,402 9,413,334 1.70 1.84

Small Hubs 66 8,217,052 8,788,618 9,838,151 0.97 1.13

Non Hub Towers 351 33,230,486 35,369,207 40,008,626 0.90 1.24

Total 485 62,776,141 69,770,514 81,271,007 1.52 1.54

Summary of Enplanements and

Airport Operations at FAA Towers and Contract Towers

Annual Compound

Growth Rate

Annual Compound

Growth Rate

Enplanements at Towered Airports

Operations at Towered Airports

Source: Terminal Area Forecast Summary Report, Fiscal Years 2004 – 2020, 

Prepared March 2005, U.S. Department of Transportation, Federal Aviation 

Administration, FAA-APO-05-1 

c. Historical Data – The FAA’s Air Traffic Activity Data System (ATADS) contains 

historical aviation operations data for operations at Air Route Traffic Control Centers and 

FAA- and contract-towered airports. Monthly and annual counts of aircraft operations 

and instrument operations by user group are available at the facility, state, regional, and 

national level. These data can also be accessed at the APO website. 

d. Historical Data at Non-towered Airports – Estimating current activity at non-towered 

airports can be difficult. The traditional method of using operations data from a similar 

towered airport to estimate the activity at a non-towered airport has been found to be 

unreliable. Records of fuel sales at the non-towered airport may be a more reliable 

indicator. However, the most reliable method has been found to be using a relatively 

inexpensive acoustical aircraft activity counter to obtain a series of cluster samples 

systematically drawn throughout the year and estimating the annual activity from these 

samples. The samples not only provide information on total annual operations, but also 

on the seasonal variability and peaking characteristics of the activity. For further 

information on this subject, see Transportation Research Record 958: “Ford-Shirack 

Study,” Estimating Aircraft Activity at Non-towered Airports: Results of the Aircraft 

Activity Counter Demonstration Project. 

The characteristics of operations at a non-towered airport, such as whether the operations 

are local or itinerant and what type of aircraft are using the airport, are as important as the 

number of operations. Visual surveys to determine these and other observable 

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characteristics can be expensive. A statistical sample can greatly reduce the cost. In 

1987, the Oregon Department of Transportation published the results of a study in which 

the characteristics of operations at non-towered airports were determined through 

statistical sampling. See Statistical Sampling and Estimating Procedure for Aircraft 

Activity Characteristics, Oregon Aeronautics Division, Oregon Department of 

Transportation, April 1987. 

e. State and Regional Airport System Planning Data – State and regional airport system 

plans can provide information, direction, and policy guidance for airport master planners. 

An airport system plan (at least for all NPIAS airports) provides forecasts and describes 

the roles of the various airports in the area and the distribution of traffic among them. 

f. Socioeconomic Data – Planners should use recognized sources of socioeconomic data 

available from local, regional, state, and federal planning organizations. Key data 

elements include population, employment, income, and other measures. If possible, data 

should be presented on an historical basis and projected into the future. 

g. Other Data Sources – Additional sources of data that should be reviewed are the Official 

Airline Guide (OAG), FAA Form 5010, Airport Master Record, and other existing studies 

or reports. 

The local FAA Airports office can provide additional guidance on using forecasting tools, 

techniques, and methods. Whether the aviation forecasts are being prepared by the airport 

planning staff or by consultants, early consultation and periodic discussion with FAA airports 

and forecasting staff are encouraged. Such discussions are particularly important when planners 

are considering using significantly different forecast assumptions and methods in developing the 

basis for a specific airport master plan or where there are differences between existing forecasts. 

These early discussions will be especially useful when the forecasts indicate that federal grants 

for airport improvements at the study airport would be justified sooner than called for in the 

existing TAF. 

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Chapter 8 Facility Requirements 

801. GENERAL 

a. Planners should determine what, if any, additional facilities will be required to 

accommodate forecast activity. This task begins with an assessment of the ability of 

existing facilities to meet current and future demand. If they cannot, planners must 

determine what additional facilities will be needed to accommodate the unmet demand. 

In some cases, the airport sponsor may decide that it is in the community’s best interest 

for the airport not to continue to grow to accommodate forecast activity, or to 

accommodate forecast activity only up to a point. In these cases, the master plan should 

document this decision and indicate the probable consequences of the decision (e.g., 

demand will be capped, the demand will go unmet, or the demand will be diverted to 

another airport). 

This analysis needs to clearly define the aviation problems and why the airport needs to 

resolve them. Findings supporting a problem, and the potential solutions to that problem, 

must be clearly documented. Planners should ensure that this needs analysis provides 

information sufficient to provide a basis for describing the purpose and need for proposed 

Federal actions. Care should be taken that the facility requirements are not so narrowly 

defined that they point to a single solution. 

b. Although this AC provides guidance on the facilities commonly found at airports of all 

sizes, planners should limit their efforts to those elements that are applicable to the study 

airport. Preparation of an appropriate scope of work in the pre-planning process will 

ensure that both the airport sponsor and the planners understand what elements should be 

studied. 

c. The requirements for new or expanded facilities reflect the unique circumstances of each 

airport, such as, but not limited to the following: 

1) Capacity shortfalls, which are commonly driven by growing demand. 

2) Enhanced security requirements mandated by the Transportation Security 

Administration, including the flexibility to respond to changes in threat levels. 

3) Updated standards developed and adopted by the FAA or other regulatory agencies, 

to correct existing non-standard conditions and eliminate existing modifications to 

standards. If there are approved modifications to standards, planners should review 

the reasoning that led to those adjustments. The facility requirements chapter should 

indicate if those deviations will continue or will be eliminated in the new master plan. 

4) The airport sponsor’s strategic vision for the airport. Such needs are typically 

associated with a sponsor’s strategic business plan, mission statement, or similar 

plans that will require modification of the airport. 

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5) The outdated condition, arrangement, or functionality of existing facilities. 

d. At some airports, planners can use simulation models to help determine facility 

requirements. For large airports, simulations can model major components of an airport, 

including the airfield system, airspace environment, passenger and baggage flows in the 

terminal, and ground access networks. For smaller airports, simulations can model usage 

projections, passenger flows, and other support requirements including fixed base 

operator, maintenance, flight school, and fuel support requirements. 

e. Many of the significant improvements needed at an airport are actually driven by the 

demand level, not a time frame or a specific year. Therefore, planners should identify 

what demand levels will trigger the need for the expansion or improvement of a specific 

facility. In this way, the sponsor can monitor growth trends and expand the airport as 

demand warrants. (For a discussion of the use of Planning Activity Levels, see 

Section 704.e.) 

f. The findings of the capacity analyses and facility requirement determinations form the 

foundation for the identification of development alternatives and the selection of the 

alternatives that can best meet future demand. Since critical investment decisions will be 

based on these analyses, the planner, airport sponsor, and FAA should consider the cost 

of inadequate analysis in determining the level of effort and sophistication of the capacity 

and delay analyses. If the analyses are not sophisticated enough, development funds 

could be wasted on alternatives that do not meet future demand. On the other hand, 

planning funds can be wasted by capacity and delay analyses that are more sophisticated 

than they need to be. Future facility needs are to be based on these analyses and it is 

critical that these analyses be adequate, supportable, and defendable. Therefore, this is a 

critical issue to discuss during master plan scope of work development. 

802. EMERGING TRENDS 

a. The aviation industry is changing rapidly and the changes may have a significant impact 

on the size, quantity, and type of facilities needed to accommodate future demand. For 

example, airfield and airspace capacity may be affected by the implementation of free 

flight, the use of global positioning systems for navigation, the continued use of regional 

jets, the introduction of new aircraft types (large commercial and very light jets), and 

changes in air traffic procedures. Airline mergers, the introduction of self-serve kiosks, 

advances in information technology, and new security procedures will affect terminal 

facility requirements. Cargo facility needs have been changed by the improved logistics 

of the distribution industry. 

b. The rapid pace of change in the aviation industry is expected to continue for years to 

come. All master planning efforts should examine industry trends and identify those that 

will influence their capacity needs. An important consideration in airport planning is to 

encourage flexible concepts that can be adapted to the rapidly changing environment. 

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803. DESIGN HOUR DEMAND 

a. For many master plan studies, estimates of annual demand for air passengers, aircraft 

operations, cargo, or vehicle trips will be sufficient to identify future facility needs. 

Planners should be aware, however, that such general estimates can mask substantial 

seasonal and time-of-day variations in demand; failing to consider these can result in high 

congestion and low levels of service during peak hours. 

b. In the U.S., the evaluation of peak hour demand is often based on the peak hour of the 

average day of the peak month. This approach provides sufficient facility capacity for 

most days of the year, but recognizes there will be some very busy days that experience 

congestion, queues, and delays and that it is important that facilities are neither undernor overbuilt. However, for some critical airport systems, the peak hour of the average 

day of the peak month can substantially understate the demand at peak times, resulting in 

unacceptable levels of service or overloading of systems to a point that may approach 

gridlock. Some components of the passenger terminal complex, such as baggage 

handling systems and security checkpoints, are particularly sensitive to this issue. 

c. To address these problems, planners may wish to consider alternate methodologies for 

determining peak hour demand, such as the percentile of busy hours throughout the year 

(for example, 90th or 95th percentile). A facility sized to meet such demands should 

have sufficient capacity and service levels during 90 percent or 95 percent of the hours 

throughout the year. The specific percentile will depend on the facility being evaluated, 

the desired level of service, and the unique demand characteristics of the study airport. 

804. SECURITY CONSIDERATIONS 

Security requirements have become very important in planning airport facilities. Planning for 

security early in the development process can produce designs that accommodate security 

requirements in a more efficient, less costly, and less intrusive manner. However, specific 

measures for implementing security requirements will vary in response to shifting threats, 

evolving technology, and the physical and operational circumstances of individual airports. 

Planners should meet with representatives of the Transportation Security Administration (TSA) 

early in the process and be familiar with the current versions of applicable documents, including 

TSA’s Recommended Security Guidelines for Airport Planning, Design, and Construction and 

relevant sections of the Transportation Security Regulations (TSRs). Appendix B, Useful 

Reference Materials, has a list of applicable TSRs and other security-related publications. 

Security requirements will vary depending on the role and service provided at the airport. The 

information contained in 49 CFR Part 1542, Airport Security, describes the security rules and 

requirements for commercial service airports. Operators of general aviation airports are 

encouraged to use the recommended guidelines in appropriate TSA publications discussing 

security at general aviation airports to enhance the security of their facilities. Both commercial 

service and general aviation airports are extremely diverse and appropriate security measures can 

only be determined only after careful examination of an individual airport. 

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Terminal facilities also have extensive security requirements, particularly with regard to the 

location of passenger and baggage screening. Ground access facilities, such as roadways and 

parking structures, may be subject to security-based siting considerations, including terminal 

proximity limitations. Security requirements are also becoming an increasingly important 

element in planning air cargo and general aviation facilities. 

805. AIRFIELD AND AIRSPACE REQUIREMENTS 

The determination of airfield and airspace requirements includes an assessment of the airports’ 

ability to handle forecast activity levels, analysis of its compliance with design and safety 

standards, and a determination of design standards for new facilities or the improvement of 

existing facilities. 

FAA Advisory Circular 150/5300-13, Airport Design, is a key resource for the planner in 

virtually all analyses to determine airfield requirements and is frequently referenced in this 

chapter. 

a. Airfield Capacity Analysis – Airfield capacity is expressed in terms of the number of 

aircraft operations that can be conducted in a given period of time. Capacity is most 

often expressed as annual capacity (or annual service volume) and hourly capacity (or 

throughput capacity) for a particular runway and taxiway configuration. 

At low activity airports, airfield capacity often exceeds the anticipated level of demand 

and only a minimal analysis is necessary. For airports with higher activity levels, several 

techniques for determining airfield capacity are available to airport planners. The 

methodology in FAA Advisory Circular 150/5060-5, Airport Capacity and Delay, 

commonly referred to as the “handbook methods,” yields hourly capacities and annual 

service volumes (ASV) and permits the estimation of aircraft delay levels as demand 

approaches and exceeds the throughput capacity of each airfield configuration. The 

handbook methods are typically used for long range planning and the results should be 

discussed with FAA representatives. 

Although the handbook methodology is adequate for many master plans, congested 

airports may incur higher levels of delay than are typically used in the ASV definitions. 

ASVs may not be appropriate to use at airports with a 24-hour operation, such as late 

night cargo operations. For such airports, computer simulation modeling may be 

necessary to provide the depth of analysis necessary to support major airfield investment 

decisions. There is no universally adopted simulation tool that must be used in airfield 

capacity analyses. The FAA’s Technical Center supports the simulation engine for the 

most current version of the FAA Airport and Airspace Simulation Model, which is 

available to the public free of charge. Both public domain software and proprietary 

software developed by the private sector are also available for modeling. If simulation 

modeling is employed, planners must be careful to explain modeling capabilities and 

limitations, and review key assumptions, inputs, operating configurations and results with 

appropriate representatives of the FAA. 

Aircraft operational delay costs or savings are often used as the measure for comparing 

various airfield development alternatives. Delay is typically expressed in minutes per 

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aircraft operation, which can be translated into hours of annual delay and easily converted 

into dollar estimates to be used as a basis for comparison. Traditionally, four to six 

minutes of average delay per aircraft operation is used in ASV calculation. This can be 

considered as an acceptable level of delay. When the average annual delays per aircraft 

operation reaches four to six minutes, the airport is approaching its practical capacity and 

is generally considered congested. 

The selection of a particular airfield capacity analysis technique should be made in the 

pre-planning phase of the master plan study. The selected technique should be clearly 

defined in the negotiated scope of work. At the conclusion of the airfield capacity 

analysis, planners will have a sense of whether an additional runway or taxiway should 

be included in the alternatives analysis. 

b. Runway Requirements – Existing and future runways should be examined with respect 

to dimensional criteria, orientation, length, width, and pavement design strength: 

1) Dimensional Criteria – FAA guidance on dimensional standards is based on a coding 

system known as the Airport Reference Code (ARC). This system is used to relate 

airport design criteria to the operational and physical characteristics of the aircraft 

that will operate at the airport. Existing and future ARC classifications are 

determined from a review of the aviation demand forecasts and an understanding of 

the airport’s existing and future role in the air transportation system. While an ARC 

classification is assigned to the overall airport, it is sometimes advisable to apply a 

less demanding ARC to particular areas of the airport that will not be used by the 

primary critical aircraft. See FAA AC 150/5300-13, Airport Design, for more 

information on appropriate ARC codes and dimensional criteria requirements. 

2) Orientation – Runway orientation is primarily a function of wind coverage 

requirements for the existing and projected aircraft fleet mix. Historical wind and 

weather data can be obtained from the National Oceanic and Atmospheric 

Administration (NOAA). This analysis is used to determine if additional runways are 

needed to provide the necessary wind coverage. See FAA AC 150/5300 13, Airport

Design, for guidance on wind coverage analysis techniques. 

Planners should also review runway designation. Periodic changes in magnetic 

declination may necessitate renumbering the runways. A declination calculator can 

be found at http://www.ngdc.noaa.gov/seg/geomag/jsp/Declination.jsp. The 

existence of obstructions and environmental and physical features, either man-made 

or natural, in approach and departure routes should also be considered in determining 

runway orientation. 

3) Length – The length of a runway is a function of many factors, the most notable of 

which are the selection of an appropriate design aircraft and the longest nonstop 

distance to be flown by the design aircraft from the airport. Aircraft-specific runway 

length requirements are a function of aircraft physical characteristics at time of flight, 

weather conditions, and runway conditions. See FAA AC 150/5325-4, Runway 

Length Requirements for Airport Design, for guidance on this analysis. Other 

common resources for runway length assessments are the aircraft characteristics 

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information published by aircraft manufacturers, consultation with aircraft operators 

at the airport, and the FAA document, Best Practices: Planning Airports for Business 

Jets. Aircraft manufacturers may be able to provide airport-specific runway length 

requirements for their aircraft, especially at airports with severe conditions such as 

high temperatures or high airport elevations. 

4) Width – The required width of a runway is a function of the approach minimums, 

airplane approach category, and airplane design group for the design aircraft using the 

runway and is discussed in FAA AC 150/5300-13, Airport Design. 

5) Pavement Design Strength – What aircraft types and the critical aircraft expected to 

use the airport should be used to determine the required pavement design strength, or 

weight bearing capacity, of airfield surfaces. The required pavement design strength 

is an estimate based on average levels of activity, and is expressed in terms of aircraft 

landing gear type and geometry (i.e., load distribution). The pavement design 

strength is not the maximum allowable weight. Limited operations by heavier aircraft 

than the critical aircraft may be permissible. Pavement design and load distribution 

assumptions can be found in FAA AC 150/5320-6, Airport Pavement Design and 

Evaluation. 

c. Taxiway Requirements – The taxiway system must provide safe and efficient aircraft 

movement to and from the runways and the aprons that serve passenger terminals, cargo, 

and general aviation facilities. The ARC designations from the runway requirements also 

apply to appropriate dimensional criteria for taxiways. As traffic increases, the taxiway 

system can become the limiting operational factor, especially if the airfield configuration 

results in frequent runway crossings by taxiing aircraft, or does not provide sufficient 

access or bypass capability. The location of taxiway exits may also reduce runway 

occupancy time, thereby increasing capacity. Planners should examine the location and 

type of runway exit taxiways as well as the location of parallel taxiways, crossover 

taxiways, bypass taxiways, perimeter taxiways, and holding pads. At congested airports, 

computer simulation can aid this analysis. 

d. Electronic, Visual, and Satellite Aids to Navigation – Aids to navigation provide pilots 

with information to assist them in locating the airport and to provide horizontal and/or 

vertical guidance during landing. Navigational aids also permit access to the airport 

during poor weather conditions. The need for new or additional navigational aids is a 

function of the fleet mix, the percentage of time that poor weather conditions are present, 

and the cost to users of not being able to use the airport when it is not accessible. 

Important navigational aids include instrument landing systems (ILS), approach lighting 

systems (ALS), Precision Approach Path Indicators (PAPI) or other visual approach 

slope indicators, and global positioning systems (GPS), such as the Wide Area 

Augmentation System (WAAS). Airport users can assist planners in identifying the need 

for navigational aids and the development of WAAS approaches. The installation of new 

navigational aids may require airspace coordination. 

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e. Air traffic control facilities include air surveillance radars, airport surface detection 

equipment, remote transmitters and receivers, wind shear detectors, weather observing 

equipment, and others. The general siting of future air traffic control facilities should 

take place during the master plan process so that adequate space is reserved for them and 

their critical areas are protected from development that would interfere with their 

operation. 

f. Airspace Requirements – For complex master plans, particularly for a commercial 

service airport located near another commercial service airport, determining airspace 

requirements may require a detailed investigation, often using computer simulations. 

Such efforts need to be carefully coordinated with FAA air traffic representatives so as to 

reach agreement regarding key modeling assumptions. In addition, if the airfield capacity 

analyses call for new runways or major airfield reconfigurations, significant airspace 

changes or redesign may be required and FAA air traffic representatives should 

participate in the discussions. 

In most master plan studies, however, the focus will be on reviewing the airport’s 

existing airspace classifications and determining if growth at the study airport or at 

neighboring airports could require an upgrade to a higher airspace classification. 

At non-towered airports, the master plan should determine if the growth in aircraft 

operations will exceed threshold values for the establishment of an airport traffic control 

tower. For towered airports, line of sight investigations may reveal that the airport traffic 

control tower should be relocated. See FAA Order 6480.4, Airport Traffic Control Tower 

Siting Criteria, for help in making such a determination. 

Planners should identify penetrations of imaginary surfaces (as defined in 14 CFR Part 

77, Objects Affecting Navigable Airspace) to determine their disposition. Obstacle 

clearance surfaces associated with United States Standard for Terminal Instrument 

Procedures (TERPS), and obstacle clearance requirements found in FAA AC 150/5300-

13, Airport Design, should be evaluated as appropriate. In some cases, the TERPS 

surface may be the controlling airspace surface. 

806. COMMERCIAL SERVICE PASSENGER TERMINAL COMPLEX 

a. The commercial service passenger terminal complex extends from the aircraft parking 

positions on the airside interface to the vehicle curbfront on the landside interface. 

1) Gates and Apron Frontage – Planners should establish requirements that identify the 

number of aircraft parking positions that will be needed to handle future activity. The 

mix of aircraft expected during the design hour will determine the lineal feet of apron 

frontage and the dimensions of the required gates. The parking and storage of ground 

servicing equipment should also be considered in determining apron frontage 

requirements. 

2) Passenger Terminal Building – Within the terminal building itself, requirements are 

commonly expressed in terms of square feet for major functional elements such as 

ticket counter area, security checkpoints, departure lounges, concessions, airline 

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operations, baggage claim, baggage makeup, circulation and public space, mechanical 

space, and the Federal Inspection Services (FIS). Understanding the space 

requirements of these elements will help planners in designing the configuration of 

the terminal complex. Planners should prepare estimates of the number of processing 

units needed for ticket counters, baggage claims, and security checkpoints. In some 

master plans, where terminal building expansion is projected for the long-term, it may 

be appropriate for the master plan to provide only a general location and footprint of 

the future terminal building, rather than specific functional area requirements. 

3) Curbfronts – The length of curbfront required is a function of the modal splits of 

arriving and departing passengers, dwell time assumptions for the vehicles at the 

curbfront, and the assignment of different types of vehicles to the curbfront 

(management of the curbfront). The availability of convenient and inexpensive shortterm parking, public transit, and door-to-door shuttles will reduce the amount of 

curbfront required.). To facilitate the flow of traffic in front of the terminal, an 

assessment of the number of lanes should be conducted. 

The role of the study airport in the air transportation system will of course determine 

what passenger terminal facilities it needs. A major connecting hub, for example, will 

need terminals that are different from those of an origin and destination airport. 

Similarly, airports serving major tourist destinations will have special needs. The 

terminal building area requirements may be too specific for a master plan and it may be 

appropriate to provide only the general location and footprint of a future terminal 

complex. Figure 8-1 shows a typical passenger terminal at a large commercial airport. 

Figure 8-1: Commercial Service Terminal Complex 

Source: Philadelphia International Airport, Terminal F (opened in 2001), 

www.phl.org (Photo by Richard McMullin, Philadelphia Airport System) 

b. Methodologies – Information on methodologies that can be used to determine passenger 

terminal facility requirements is available from several sources, including: 

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1) FAA Advisory Circulars 150/5360-13, Planning and Design Guidelines for Airport 

Terminal Facilities, and 150/5360-9, Planning and Design of Airport Terminal 

Facilities at Non-Hub Locations 

2) Airport Development Reference Manual, published by the International Air Transport 

Association 

3) Measuring Airport Landside Capacity, published by the Transportation Research 

Board 

Proprietary computer simulation modeling tools are also available and can be used to 

evaluate passenger and baggage flow through airport terminals. . 

807. GENERAL AVIATION REQUIREMENTS 

a. General Aviation (GA) includes a variety of users and activities, such as corporate flight 

departments, cargo operators, recreational users, business flying, flight training, 

agricultural applications, law enforcement, and fixed base operators. These users need 

aircraft storage facilities, transient parking aprons, terminal facilities, auto parking, and 

vehicle access from adjacent roads. 

1) Aircraft Storage Facilities – GA users’ physical requirements vary from unpaved tiedown aprons to large conventional hangars with major maintenance services and 

aircraft aprons. Conventional hangars and T-hangars provide aircraft with protection 

from the weather and security against vandalism or theft. In general, aircraft owners 

prefer hangars. The demand for hangars is understandably higher in northern 

climates with severe winter weather conditions. 

2) Transient Aircraft Parking Aprons – Temporary parking for visiting aircraft may be 

provided on a transient apron adjacent to the general aviation terminal building, or on 

aprons managed or leased by an FBO. 

3) Terminal Facilities – General aviation terminal buildings range from very modest 

structures with little more than a waiting room and a telephone to multi-story 

buildings with extensive amenities such as pilot briefing rooms, restaurants, gift 

shops, pilot’s lounges, conference and training rooms, and rental car counters. At 

general aviation airports, the terminal building may also house administrative offices. 

At commercial service airports, general aviation terminal facilities are often provided 

by one or more FBO. In such cases, the facilities are provided principally for 

customers of the FBO and access for the general public is limited. 

b. The planner should identify future requirements for general aviation facilities, which will 

be primarily a function of the forecasts of aircraft to be based at the airport and of 

transient aircraft operations. The role of the airport in the region’s transportation network 

will also influence facility requirements, as will the airport sponsor’s vision of the 

strategic and economic value of the airport. 

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c. Planners should also be aware of factors that may influence the existing demand for these 

facilities. For example, if the facilities are in disrepair compared to facilities at 

neighboring airports with overlapping service areas, demand may shift away from the 

study airport. The airport sponsor’s pricing policies may also affect the demand. A 

useful barometer of facility needs, particularly short-term needs, is the existence of 

waiting lists for hangars, T-hangars, or aircraft tie-down positions. 

d. The number of business jets is increasing at a more rapid rate than other general aviation 

aircraft. This growth will become more pronounced with the introduction of the very 

light jets (VLJ) or micro jets. No matter their size, business jets have notable impacts on 

the facilities and services of a general aviation airport. 

808. AIR CARGO REQUIREMENTS 

a. For commercial service airports and larger general aviation airports, air cargo activity 

includes a diverse collection of companies with differing business strategies and market 

roles, including the following: 

1) Integrated Carriers transport freight from door-to-door using their own fleet of 

trucks and aircraft. 

2) Freight Forwarders act as brokers that link shippers with freight carriers; they 

coordinate the shipment of freight but do not transport it. 

3) All Cargo Operators sell space to freight forwarders or individual companies and 

ship the air cargo on their aircraft. 

4) Combination Carriers carry both passengers and freight on a single aircraft, typically 

with a reconfigured cabin. 

5) Belly Freight Carriers carry cargo in the baggage compartment or belly of a 

passenger aircraft. 

Airport planners should assess the capacity of existing cargo processing facilities and determine 

future requirements for buildings, aircraft parking aprons, and ground access facilities. Each 

type of cargo operation has somewhat different site requirements, so a range of spaces will need 

to be provided for cargo development. In planning for future air cargo facilities, planners should 

consider: (1) the type of cargo companies expected to expand or initiate operation; (2) annual air 

cargo operations projected for all operators; (3) the number of existing apron parking spaces; (4) 

projected growth in annual enplaned tonnage; (5) the availability of ground access for the heavy 

commercial trucks associated with cargo activity; and (6) any security needs and requirements. 

Planners should consider providing a means of separating cargo trucks from other airport traffic 

for security purposes. 

b. For most general aviation airports, air cargo facilities are included in the broad category 

of general aviation facilities. Air cargo-related activities are accommodated in the 

hangar, apron, and ground access facilities of the general aviation tenants and operators. 

In those cases, an independent analysis of air cargo needs is unnecessary. 

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809. SUPPORT FACILITIES 

a. Support facilities at an airport provide a broad set of functions that ensure the smooth, 

efficient, and safe operation of the airport. As applicable, the future requirements of the 

following support facilities should be examined: 

1) Aircraft Rescue and Firefighting – For airports that require Part 139 certification, 

planners should review the forecast of aircraft operations to determine if the airport’s 

Aircraft Rescue and Firefighting (ARFF) index will change during the planning 

period. If Part 139 certification is not currently provided at the study airport, but will 

be required at some time during the planning period, the applicable ARFF building 

and equipment requirements should be defined in the master plan. See 14 CFR Part 

139 Certification of Airports, particularly sections 139.315 to 139.319, for ARFF 

Index definitions; and FAA AC 150/5210-15, Airport Rescue and Firefighting Station 

Building Design, for standards and guidance in planning an ARFF station. Planners 

should also consider if multiple ARFF stations will be required to meet response time 

requirements as defined in Part 139. For airports that do not require Part 139 

certification, planners should identify any existing agreements with local authorities 

for emergency response services, or the lack thereof. 

2) Airport Maintenance – The airport provides a wide variety of services to ensure that 

airport tenants and users have a safe, efficient, and reliable environment. The 

facilities needed to support these services include administrative offices; buildings for 

storage and maintenance of airport equipment; shop space; and buildings for supply 

storage. Northern airports, of course, need equipment for snow removal operations, 

see also AC 150/5220-18 Buildings for Storage and Maintenance of Airport Snow 

and Ice Control Equipment and Materials. 

3) Fuel Storage – FBOs often provide fuel storage and supply at general aviation 

airports. At some airports, unattended self-serve facilities may be provided when 

activity levels do not warrant full-time attendants. For commercial service needs, fuel 

storage facilities ensure that jet fuel is available if supply services through pipelines 

or tanker trucks are interrupted. To support general aviation, planners should address 

the types of approved aviation fuels needed to meet current and future public demand, 

since new engine technologies permit the use of auto fuel and diesel in today’s 

aircraft. 

4) Aircraft Maintenance – For the general aviation community, aircraft maintenance is 

typically provided by an FBO. The types of services provided include, but are not 

limited to, airframe and power plant repair by an FAA-certified repair station. The 

facilities required to sustain these services include: (1) an aircraft maintenance 

hangar with sufficient work space for any aircraft upon which maintenance is being 

performed; (2) suitable storage and shop space for equipment and tools; (3) office 

space, customer lounge, restrooms, and telephone; (4) apron area with pavement type 

and strength adequate to support the expected aircraft; (5) auto parking and ground 

access to provide customers with adequate vehicle parking; and (6) proximity to the 

engine run-up area to limit taxi times and fuel cost. At larger airports, a tenant airline 

may have established a maintenance base for the periodic inspection and maintenance 

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of their aircraft. To determine the space requirements for such a maintenance facility, 

planners should ask airline representatives what types of aircraft they plan to service 

at the airport and their expected facility needs. 

5) De-Icing - Airports with exposure to winter weather conditions that can cause 

accumulation of frost, snow, slush, or ice on aircraft surfaces must have aircraft 

deicing facilities. These airports should provide de-icing pads to maintain departure 

flow rates and avoid unacceptable delays. Any new aircraft deicing facility must 

have runoff mitigating structures to collect fluid runoff. See FAA AC 150/5300-14, 

Design Of Aircraft Deicing Facilities, for standards and guidance in planning deicing 

facilities. 

Guidance for assessing the future needs of aviation support facilities is available from the 

referenced ACs. In many cases, the planner should rely on interviews with tenants and users, in 

combination with observation of the methods and procedures used at existing airport facilities. 

810. GROUND ACCESS, CIRCULATION, AND PARKING REQUIREMENTS 

One of the keys in choosing a mode of travel is the total trip time between points of origin and 

destination. If total trip time is under three hours, travelers are particularly sensitive to the 

duration of the ground access portion of an air travel trip. The regional roadway network, onairport circulation roadways, and parking facilities are the principal components of the ground 

access system. The capacity and reliability of this system will determine the level of service 

provided to air travelers on the ground access segment of their trip. 

a. Regional Transportation Network – With the exception of the busier commercial 

service airports where access is often a capacity constraint, airport access planning by 

local transportation agencies has historically been effective and probably will not emerge 

as a critical constraint of airport capacity expansion. Coordination with local 

transportation planning authorities during the review of existing conditions should 

produce enough information to allow an assessment of surface access capability, and to 

confirm whether the existing and planned network can accommodate projected aviation 

demand. 

At airports where ground access may be an issue, detailed discussions with local 

transportation planners may be needed to quantify the shortfalls in the capacity of the 

regional roads. A variety of analytical computer models and simulation models can be 

used by airport planners to assist with those determinations. As a general rule, large 

airports try to develop strategies that reduce the number of single-person private vehicle 

trips and to encourage greater use of high-occupancy vehicles. In major urban areas, the 

Metropolitan Planning Organization (MPO) may be able provide assistance to airport 

planners. Light rail systems, intermodal stations, or other alternate modes of 

transportation are often examined in these efforts. 

b. On-Airport Circulation Roadways – This access system is shared by a wide range of 

users having different trip purposes, which include: 

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1) Originating and terminating air travelers most often arrive at the airport in a private 

vehicle, but may also use a taxi, limousine, courtesy bus, mass transit, charter bus, 

door-to-door van, or rental car. 

2) Employees travel to and from the airport each day using private vehicles or public 

transportation. 

3) Delivery vehicles supply the goods and materials consumed or purchased at the 

airport. 

4) Other vehicles may require access to air cargo facilities, general aviation facilities, 

support facilities, and other activity centers. 

Each user group has a different pattern of arrival and departure times for their airport 

trips. Analytical methods and computer models may be used to evaluate roadway 

capacities and the levels of service they provide. Such an analysis should also identify 

possible capacity increases in the form of additional lanes or operational modifications. 

Security provisions for vehicle screening may need to be provided. Other users of the 

roadway facilities that should be evaluated may include: 

1) Taxi/Limo/Courtesy Van Staging Areas – Locations where vehicles can be parked 

and dispatched as needed to pick up passengers at the terminal curbfronts. A staging 

area is a critical resource at busy airports where terminal curbfront is scarce. 

2) Rental Car Facilities – At smaller airports, the ready and return parking spaces for 

rental cars are often located in lots immediately adjacent to the terminal building or in 

the public parking garage. At larger airports, ready and return spaces may be 

provided in a consolidated rental car facility or at remote locations that are reached 

via courtesy vans or buses. Rental car operations also require space for cleaning, 

fueling, maintenance and vehicle storage. 

3) Courtesy Vans and Buses – Courtesy buses and vans serving on- and off-airport 

rental cars, hotels, and parking facilities are major users of on-airport roadways. At 

the larger commercial airports, these are often provided with dedicated curbfront to 

pick up and drop off passengers. 

4) Charter Bus Operations – Airports that are major tourist destinations must 

accommodate significant charter bus operations. Cruise ships, for example, impose 

extraordinary surges on facilities used by charter buses to transfer passengers between 

the air terminal and the marine port. 

Planners should also pay attention to airport signing. Poor signing can reduce the level of 

service provided to the airport’s patrons and cause increased traffic volumes because of 

recirculation. See AC 150/5360-12 Airport Signing and Graphics for instructions on 

obtaining the industry reference manual, Guidelines for Airport Signing and Graphics, 

which was jointly developed by the American Association of Airport Executives 

(AAAE), the Airports Council International-North America (ACI-NA), the Air Transport 

Association of America (ATA), and the Airport Consultants Council (ACC). Also see 

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Report No. DOT/FAA/PP/96-3, Intermodal Ground Access to Airports: A Planning 

Guide. 

b. Public Parking Facilities – Public parking facilities at general aviation airports are 

generally small surface lots located next to the terminal building, while parking facilities 

at commercial service airports range from free surface lots next to the passenger terminal 

to a complex combination of garages and surface lots. Close-in parking may include 

separate areas for hourly and daily parking. At larger airports, remote parking lots with 

shuttle buses may need to be considered. The development of “cell phone lots” is gaining 

popularity at many commercial service airports. 

c. Employee Parking – For most airports, employee parking is provided within individual 

tenant leasehold areas and is not a critical concern for planners. At small commercial 

service airports, parking for employees whose worksite is inside the commercial 

passenger terminal building can usually be accommodated in small surface lots near the 

terminal. At larger airports, however, public parking in surface lots or garages usually 

displace terminal area employee parking. In these cases, the planner should include an 

evaluation of terminal area employee parking and remote area employee parking in the 

future facility requirements. 

811. UTILITIES 

The master plan study should also address future need for utilities such as water, sanitary sewer, 

drainage and deicing, industrial waste, communications, and power supply. Existing systems 

should be evaluated and their capacity verified at the airport boundary. Historical ratios of utility 

demand to the level of enplanements or aircraft operations can form the basis for projecting 

future demand. Since an airport can be a large consumer of utility services, planners should 

discuss their projections with local utility providers to ensure that the airport’s needs are included 

in their long-term service plans. 

812. OTHER REQUIREMENTS 

Many airports have significant acreage devoted to non-aeronautical uses, such as industrial 

parks, recreational uses, agricultural or grazing leases, or retail businesses. Some uses are 

considered temporary, to remain only until a higher aviation use materializes, while others are 

expected to remain as surplus to anticipated aviation needs. In either case, the revenue from 

these activities provides supplemental revenue to the airport and improve the airport’s overall 

financial position. The planner should review the infrastructure needs of such activities and 

identify improvements that preserve the revenue-generating performance of a valuable asset. 

813. DOCUMENTATION GUIDELINES 

a. A stand-alone chapter of the technical report should describe the analyses and techniques 

used to determine future facility requirements. A summary at the beginning or end of the 

chapter and in the report’s executive summary should highlight findings for key 

components. 

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b. Planners should use appendices to improve the readability and organizational flow of the 

documentation. However, they should avoid making the appendices a depository for 

unnecessary information, which can result in massive reports that may confuse and 

discourage the reader. 

c. It is not necessary for the chapter documentation to mirror the outline of major sections 

provided in this chapter of the AC. However, it should follow the structure of the chapter 

of the technical report that describes existing conditions. 

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Chapter 9 Alternatives Development and Evaluation 

901. GENERAL 

a. This chapter brings together many different elements of the planning process to identify 

and evaluate alternatives for meeting the needs of airport users as well as the strategic 

vision of the airport sponsor. Airports have a wide variety of development options, so an 

organized approach to identifying and evaluating alternative development options is 

essential for effective planning. The key elements of this process are: 

1) Identification of alternative ways to address previously identified facility 

requirements. 

2) Evaluation of the alternatives, individually and collectively, so that planners gain a 

thorough understanding of the strengths, weaknesses, and other implications of each. 

3) Selection of the recommended alternative. 

Planners should carefully organize the analysis because it is easy to consider alternatives 

that do not meet the airport’s needs, or fail to consider certain long-term development 

options, particularly if one highly visible issue seems to overshadow other planning 

elements. Both of those outcomes can be avoided by the careful review of the scope of 

work, and by verifying that the facility requirements (including timing) are complete; that 

other considerations, such as the sponsor’s strategic development objectives, unusual site 

or environmental consideration and other factors are documented and understood; and 

that there has been sufficient stakeholder participation. 

b. Planners should also review the scope of work to ensure that the alternatives process 

conforms to the overall study design. In simple master plans, alternatives development 

may be limited. In these instances, facility improvements are simply an extension of 

existing land use patterns and can be best addressed in the Airport Layout Plan. 

c. Planners should meet the airport’s development needs in order to improve the airport as a 

system, while remaining responsive to environmental, fiscal, and other objectives. To do 

so, the planner must balance competing needs among the airport’s various functional 

elements. Although the process varies by airport, planners typically consider the airside 

first; terminal, general aviation, and cargo facilities next; and then airport access. Since a 

master plan covers a 20-year time frame, planners should recognize that the 

recommended alternative should be functional through various stages of the plan. For 

example, it would not be a good idea to develop a new location for general aviation 

operations early on if the airside improvements needed to support it would not be 

provided until a later phase. A 20-year plan should also have the flexibility to meet 

unforeseen future conditions. 

In some cases where it is appropriate to identify major development alternatives, such as 

a new runway, that meet demand beyond a 20-year time frame. For example, if an 

airport is experiencing urban encroachment that would lead to land use incompatibility, 

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planners should assess alternatives that would help protect aviation assets from that 

encroachment, or to plan for long-term land acquisition. However, planning beyond the 

20-year period should be general in nature and in much less detail than that for the shortor even mid-term development. For example, if planning for a future runway, the master 

plan might only indicate the general location and potential length of the runway. The 

alternatives analysis would only consider key evaluation criteria and would be at a low 

level of detail. 

d. Effective facility planning must consider environmental issues in the alternatives 

identification, evaluation, and selection effort. The early consideration of the potential 

environmental impacts of alternatives can avoid later problems. Some master planning 

efforts will produce short-term recommendations that will require an Environmental 

Assessment or Environmental Impact Statement. In these situations, the master plan 

must provide a good technical foundation for the subsequent environmental process. In 

some complex situations, it may be helpful to include an environmental consultant or 

FAA Airports Environmental Specialist as an advisor to the master plan. However, the 

planner should carefully review the master plan scope of work to avoid undertaking tasks 

better suited for the follow-on environmental analysis, such as wetland delineation or 

cultural resources surveys. To better understand how a master plan alternatives analysis 

fits within the overall development process, planners should concurrently review the 

following FAA guidance: 

1) FAA Order 5050.4, FAA Airports guidance for complying with NEPA, 

2) FAA Order 1050.1, Environmental Impacts: Policies and Procedures

3) AC 150/5300-13, Airport Design 

4) Chapter 5 of this AC, Consideration of Environmental Factors in Airport Master 

Planning 

Master plans that address controversial undertakings, such as capacity projects at larger 

airports, should pay particular attention to environmental factors and the National 

Environmental Policy Act (NEPA) process during alternatives identification, analysis, 

and selection. The plan’s environmental evaluation is intended to support the NEPA 

process. The planning and environmental review will be less likely to experience delays 

if the master plan supports the subsequent NEPA analysis. 

Although master planning is not part of the NEPA process, the master plan alternatives 

development and evaluation can provide an important component of an efficient NEPA 

process. In complex cases, the careful scope of work preparation (with assistance from 

an environmental consultant or FAA Airports Environmental Specialist) can ensure that 

the master plan provides information useful to subsequent environmental analyses under 

NEPA. Items of particular interest during planning include the types of reasonable 

alternatives that the sponsor and FAA can implement. The analysis of these alternatives 

must be consistent and well documented. 

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e. The alternatives effort should also consider fiscal issues. Planners must be aware of the 

practical fiscal limitations imposed on the airport by the availability of FAA funding, 

passenger facility charges (PFCs), user fees and other sources of development dollars and 

their development options should reflect the fiscal capabilities of the airport. Cost should 

not be a factor in rejecting an alternative it makes the alternative infeasible. A plan that is 

not realistic in terms of what can be funded will not provide much benefit to the sponsor 

or airport users. Note, however, that under NEPA, cost alone is not necessarily a valid 

reason for rejecting an alternative. 

f. The alternatives identification, evaluation, and selection process should be the most 

collaborative portion of the master plan study as part of an effective public involvement 

program. The foundation for a successful effort in the alternatives analysis process is 

careful consideration of this task in the pre-planning activities. The level of detail to be 

undertaken in this task will greatly affect the cost of the master plan study. 

902. ALTERNATIVES ANALYSIS PROCESS IN AIRPORT MASTER PLANNING 

a. A general process of identifying, analyzing, and recommending alternatives is illustrated 

in Figure 9-1. The steps shown are an example of a comprehensive process that can be 

used on large and complex projects. For many airport planning projects, some of the 

steps may not be applicable. The process should be adapted to the needs of the study 

airport and the level of detail may vary considerably from study to study. The 

alternatives analysis process may be adapted in several ways, but variations should be 

clearly described in the study’s scope of work; they may include changes such as: 

1) What airport elements are included in the process 

2) How the elements are ranked in the planning hierarchy 

3) What type and level of analysis will be used to differentiate among the alternatives 

b. Where a particular functional element does not exist, it can be eliminated from the 

alternatives analysis process; for example, planners need not consider an airline 

passenger terminal at general aviation airports. In addition, if there are no facility needs 

associated with a functional element, it is not appropriate to consider alternatives for that 

element. Thus, it is possible, if there are no facility improvements for primary elements 

and those for secondary elements are simply extensions of existing land use patterns, that 

the alternatives analysis process can be materially reduced or even skipped altogether. 

c. The alternatives analysis process planning hierarchy that addresses the primary analysis 

first examines recommended alternatives for those elements that require large land areas 

and must be considered as a functional whole. For most airports, this will include the 

airside. For larger airports, airline passenger terminal and ground access elements may 

be included. For smaller airports, general aviation facilities may be included in the 

primary analysis. 

The secondary analysis addresses elements that have greater planning flexibility, 

however, not all airport planning will have secondary analysis. For example, the support 

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facilities at some airports will include an Aircraft Rescue and Fire Fighting (ARFF) 

building. While an ARFF building will have specific size, location, and functional 

requirements, these requirements are significantly easier to satisfy than those for a new 

runway or passenger terminal. 

The order of the elements in the planning hierarchy may vary by airport. For example, at 

an airport with particularly complex airside, airline passenger terminal, and cargo 

situations, but a very simple ground access element, the alternatives analysis process 

would be adapted to make the ground access element a secondary analysis element while 

making the cargo element a primary analysis element. 

d. Planners may also adapt the analysis to the unique circumstances of the study airport. 

For example, an airport may have ample airfield capacity, but significant terminal and 

ground access congestion. In such a case, planners might conduct a relatively simple 

airfield capacity analysis, or none at all, while the airline passenger terminal and ground 

access elements would get a more intensive analysis, including computer simulation. 

e. The alternatives analysis process is an iterative process, intended to be flexible enough to 

permit creative thinking about the future of the airport, but sufficiently structured to 

ensure consideration of all pertinent factors. The planner, in following this process, 

should focus on issues that shape how the airport will function as a system, as well as on 

narrower technical analyses. 

f. The alternatives analysis process should incorporate the public involvement program. 

Although the appropriate level of public involvement will vary, a meaningful 

involvement program is important and will provide a number of important benefits. 

g. As shown in Figure 9-1, the alternatives analysis process should start with a broad group 

of alternatives for the primary elements and progressively screen them to produce 

reasonable alternatives that meet the planning need. The sponsor may identify a 

recommended single alternative. 

1) Determine Primary and Secondary Elements (Step 1) – Determine which functional 

elements (airside, airline passenger terminal complex, cargo, general aviation, ground 

access, and support) should be considered in the primary analysis and which ones can 

be in the secondary analysis. Primary elements require large, contiguous land areas. 

Secondary elements have greater planning flexibility, can often be subdivided, and 

fill-in around the primary elements. 

2) Identify Preliminary Primary Element Alternatives (Step 2) – After the principal 

elements for primary and secondary analysis are identified, select preliminary 

alternatives for the primary elements. 

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Figure 9-1: Alternatives Analysis Process Example 

Intermediate

List

Intermediate

List

Intermediate

List

Short

List

Short

List

Short

List

Merge Elements Into Combined Alternatives

etc

Quantitative Analysis of

Combined Alternatives

Recommended Recommended Recommended

2

3

4

5

6

7

8

12

Recommended 

Alternative

Refined Recommended

Alternative goes to ALP 

for development

13

9

10

11

Quantitative Analysis – By Element

ID Preliminary

Alternatives

ID Preliminary

Alternatives

ID Preliminary

Alternatives

Preliminary Screening - By Element

Mostly Subjective

1 2 3 4 ... ...

Evaluate Alternatives – By Element

ID Alternatives

If Needed

ID Alternatives

If Needed

ID Alternatives

If Needed

PRIMARY ELEMENTS SECONDARY ELEMENTS

1 Determine which airport functional elements (Airside, Airline Passenger Terminal Complex, Cargo, General Aviation, 

Ground Access, and Support) will be analyzed as Primary Elements and Secondary Elements. 

Secondary

Analysis Needed?

Intermediate

List

Intermediate

List

Intermediate

List

Short

List

Short

List

Short

List

Merge Elements Into Combined Alternatives

etc

Quantitative Analysis of

Combined Alternatives

Recommended Recommended Recommended

2

3

4

5

6

7

8

12

Recommended 

Alternative

Refined Recommended

Alternative goes to ALP 

for development

13

9

10

11

Quantitative Analysis – By Element

ID Preliminary

Alternatives

ID Preliminary

Alternatives

ID Preliminary

Alternatives

Preliminary Screening - By Element

Mostly Subjective

1 2 3 4 ... ...

Evaluate Alternatives – By Element

ID Alternatives

If Needed

ID Alternatives

If Needed

ID Alternatives

If Needed

PRIMARY ELEMENTS SECONDARY ELEMENTS

1 Determine which airport functional elements (Airside, Airline Passenger Terminal Complex, Cargo, General Aviation, 

Ground Access, and Support) will be analyzed as Primary Elements and Secondary Elements. 

Secondary

Analysis Needed?

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3) Screen Alternatives for Intermediate List of Primary Element Alternatives (Steps 3 

and 4) – Screen the preliminary alternatives, using a mostly subjective, qualitative 

analysis, to make an intermediate list of alternatives. This screening will eliminate 

some alternatives for each of the primary elements, and may introduce others. Any 

subsequent environmental analysis will be aided by clear documentation of this 

screening, focusing on why alternatives were eliminated. 

4) Quantitative Analysis for Short List of Primary Element Alternatives (Steps 5 

and 6) – As appropriate, subject the selected alternatives to a more rigorous, and 

often quantitative, analysis to get a short list of alternatives by element. Again, clear 

documentation of this analysis will help in any subsequent environmental analysis. 

5) Combine and Analyze Primary Element Alternatives (Steps 7 and 8) – Identify 

combined alternatives, consisting of the logical matching of the individual primary 

element alternatives, and subject them to a further analysis, based on previous work. 

6) Select Preferred Primary Element Alternative (Step 9) – Select and document the 

recommended alternative for the primary elements. Note that subsequent 

environmental processing will materially benefit from clear documentation of this 

selection with a focus on why alternatives were eliminated. 

7) Identify Alternatives for the Secondary Elements (Step 10) – Identify alternatives or 

options for the secondary elements. In some cases, the simplicity of the situation may 

eliminate the need for some or all of the secondary component alternatives. 

8) Evaluate and Select Recommended Alternatives for Secondary Elements (Steps 11 

and 12) – As appropriate, evaluate secondary elements alternatives, typically using a 

mix of qualitative and quantitative analysis, and select and document reasonable 

alternatives or options. Note that subsequent environmental processing will 

materially benefit from clear documentation of this analysis. It provides a focus on 

why some alternatives were eliminated and why reasonable alternatives were retained 

for consideration and environmental analyses. 

9) Prepare Refined Recommended Alternative (Step 13) – The final step in the process 

is the combination of the recommended alternatives for the primary and secondary 

elements. 

h. During the alternatives analysis process, planners will get new information and input that 

will help refine the alternatives or result in the introduction of new alternatives. 

Therefore, planners should view the alternatives analysis process as an iterative one. 

903. IDENTIFICATION OF ALTERNATIVES 

a. The alternatives identification (steps 2 and 10 in Figure 9-1) should consider only those 

alternatives meeting the sponsor’s planning need and that the FAA or the airport sponsor 

will be able to implement. Planners should examine each identified alternative’s 

technical feasibility, economic and fiscal soundness, and aeronautical utility (i.e., build 

and operated safely). Alternatives not meeting those criteria should be dismissed, while 

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providing reasons for their respective dismissals. The master plan should include reasons 

why planners rejected any alternative that would avoid environmentally sensitive 

resources or that would require extensive mitigation. This planning information is 

critically important to efficient project development. It is also critical to streamlining the 

subsequent NEPA process, since that process must consider the above master plan 

alternatives and those outside the FAA’s or sponsor’s jurisdiction. 

b. To avoid an unnecessarily complex alternatives analysis process, the planner should 

carefully select different ways of addressing the identified need that are not simply 

variations on the same basic approach. Alternatives should have discrete, measurable, 

and materially different impacts on the established alternative evaluation criteria. Early 

work should consider a number of ideas, but these should be reduced to a manageable 

number of true alternative approaches through the initial steps of the process, taking care 

to adequately document what concepts were examined and why certain ones were 

dismissed. The need to work with a manageable number of alternatives in the master 

plan must be balanced with NEPA requirements to consider all reasonable planning 

alternatives to avoid or minimize impacts to environmental resources. 

Planners should understand the condition of the airport, the business relationships 

between the airport and tenants, the future vision of the airport sponsor, the 

environmentally sensitive features of the airport, and other factors that make each airport 

unique. 

c. There should be a direct link between the facility requirements and the development 

alternatives. Not all facility requirements are related to capacity shortfalls, as some will 

improve operations, comply with standards, or meet the sponsor’s strategic objectives. 

However, the basis for all facility requirements should be clearly documented. 

d. The alternatives should address those airport elements that are the focus of the particular 

master plan (airside, airline passenger terminal, or ground access) and de-emphasize 

functional elements that are less important to the airport’s overall function. 

e. The process of identifying alternatives should be iterative. It should begin with the 

identification of a broad range of possibilities, often generated by using a collaborative 

brainstorming approach. The focus should be on the primary elements. The elements 

should be reviewed to ensure that necessary interrelationships are considered (i.e., make 

sure there is a ground access option and airside option that supports each terminal 

option). The elements may conflict (i.e., a terminal option may conflict with an airside 

option). Initial screening should narrow the range of possibilities to those reasonable 

alternatives that meet the planning need for each element, which will then undergo more 

intensive development and evaluation. 

f. As the alternatives are evaluated, planners may need to apply more specialized skills. In 

some cases, they may need to conduct airspace reviews to determine an alternative’s 

aeronautical utility. In very complex cases, they may need to conduct preliminary 

engineering studies and prepare cost estimates. 

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g. In many cases, the secondary element may not require the formulation and analysis of 

alternatives, but may be integrated directly into the recommended primary element 

alternative. This is particularly true when the secondary element can follow an extension 

of an existing land use pattern and no environmental resources are affected. 

904. EVALUATION OF ALTERNATIVES 

The evaluation of alternatives (steps 3, 5, 8 and 11 in Figure 9-1) should be adapted to each 

airport’s unique situation. Sophisticated and expensive analyses should be done only when 

deemed necessary to differentiate among alternatives. In all cases, the analysis should follow 

generally accepted planning practices, be replicable, consistently applied, and well documented. 

The alternatives analysis process uses increasing levels of detail as the evaluation of alternatives 

proceeds. The initial rounds of evaluation should be qualitative and more subjective, based on a 

combination of good planning judgment, relatively simple-to-use models and simplified 

calculations. However, subsequent rounds of analysis should be more rigorous. 

Evaluation criteria should be determined in advance, but may be adjusted based on information 

uncovered as part of the alternatives analysis process. Since the selection of appropriate 

evaluation criteria involves a significant degree of subjectivity, planners must be careful to 

achieve a balanced evaluation, while still being responsive to the various study participants’ 

points of view. The planner must carefully consider factors of particular importance at the study 

airport, but make sure that the evaluation addresses all aspects of the alternatives. Therefore, the 

planner should include a broad range of evaluation criteria to ensure the adequate consideration 

of all aspects of the alternatives. 

Evaluation criteria are divided into four broad categories: operational performance, best planning 

tenets and other factors, environmental factors, and fiscal factors. For most airports with 

relatively straightforward planning issues, a simple analysis across a broad range of evaluation 

categories will be sufficient. The following evaluation criteria should be adapted for each airport 

to achieve a balance between the need for a thorough evaluation and the inefficiency of overanalysis: 

a. Operational Performance – How well the airport functions as a system can be evaluated 

from several perspectives, including capacity, capability, and efficiency. 

1) Capacity – Test for the capability of accommodating future activity levels. Various 

capacity techniques can be applied to the airside, terminal, and ground access 

elements. Consistent application of the technique to each alternative will permit the 

planner to compare them. 

2) Capability – Test for the capability of meeting specific functional objectives, such as 

accommodating the design aircraft, providing the required number of aircraft parking 

positions or gates, or allowing space for the runway length requirement. 

3) Efficiency – Test how well the alternatives work as a system by examining combined 

alternative elements. For example, airfield taxiing efficiency can be evaluated by 

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combining terminal and airside alternatives to measure which combination yields the 

lowest weighted average aircraft taxiing time and the fewest runway crossings. 

Several FAA offices have a role in assessing the aeronautical utility of various alternatives. 

These include the FAA’s Air Traffic Organization (generally the terminal, technical operations, 

and planning units), Flight Procedures, and Flight Standards. Questions to be addressed may 

include the feasibility of approach procedures, navigational aid siting, and airspace interaction. 

b. Best Planning Tenets and Other Factors – Planners should determine the relative 

strengths and weaknesses of the alternatives. The following best planning tenets will 

apply to the evaluation of alternatives at most airports, but others may be applicable at a 

specific airport: 

1) Conforms to best practices for safety and security 

2) Conforms to the intent of applicable FAA design standards and other appropriate 

planning guidelines 

3) Provides for the highest and best on- and off-airport land use 

4) Allows for forecast growth throughout the planning period 

5) Provides for growth beyond the planning horizon, as applicable 

6) Provides balance (typically capacity) between elements 

7) Provides the flexibility to adjust to unforeseen changes 

8) Conforms to the airport sponsor’s strategic vision 

9) Conforms to appropriate local, regional, and state transportation plans and other 

applicable plans 

10) Technically feasible (limited site constraints) 

11) Socially and politically feasible 

12) Satisfies user needs 

c. Environmental Factors – The potential environmental effects of the alternatives are an 

important consideration. The impact categories defined in FAA Order 1050.1, 

Environmental Impacts: Policies and Procedures and FAA Order 5050.4, FAA Airports 

guidance for complying with NEPA, offer significant insight about the likely impacts of 

various alternatives. At some airports, only a few of the items will be applicable, such as 

noise, wetlands, or social impacts and a simple approach will be sufficient to differentiate 

among the alternatives. Where an Environmental Assessment or Environmental Impact 

Statement is likely to be prepared, a more detailed evaluation of environmental factors 

will be useful. An environmental consultant may provide significant insight in such 

cases. 

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Early consideration of the environmental effects of the alternatives can help ensure that 

they remain responsive to the overall environmental objectives of the airport sponsor. If 

early examination indicates that the principal alternatives are likely to have extensive 

environmental effects, it may be appropriate to develop additional alternatives. If there 

are no additional alternatives, the decision to move forward with the existing alternatives 

should be made only after careful consideration by the airport sponsor. 

d. Fiscal Factors – Preparing rough cost estimates is a very effective way to compare 

alternatives and should be done in all alternatives analyses. Cost estimates should 

account for any special differences among alternatives. For example, in comparing a 

green-field site versus the redevelopment of an existing site, the evaluation should 

consider the respective cost advantages and disadvantages. A green-field site might have 

cost premiums associated with site work, installation of support infrastructure, and access 

roadways. At the same time, redevelopment might have cost premiums associated with 

demolition, phasing, and relocations. 

Early fiscal analysis may also be necessary to determine if the alternatives are responsive 

to the fiscal constraints of the study airport. The identification of likely funding sources 

and their funding potential are important factors in determining the feasibility of the 

alternatives. If early estimates indicate that the principal alternatives are beyond the 

realistic fiscal capability of the airport, planners should include that information in the 

master plan and develop more fiscally responsible alternatives. 

Planners may also prepare a preliminary benefit-cost analysis, following the current 

benefit/cost analysis guidance from the FAA Office of Airports. However, for most 

alternatives reviews, a summary analysis using reasonable estimates and judgment will be 

sufficient. Planners should conduct any required benefit-cost analyses in accordance with 

FAA guidelines when the development and financing plans are sufficiently refined to 

allow a more accurate estimate of the costs, benefits, and other factors. 

905. SELECTION OF A RECOMMENDED ALTERNATIVE 

a. The selection of an airport sponsor’s recommended alternative (steps 9 and 12 in 

Figure 9-1) will usually be based on a combination of efforts, including: summation of 

the alternative evaluation criteria, supplemental analyses and evaluations, stakeholder 

input through the public involvement process, and sponsor preferences. The level of 

complexity of the selection process typically reflects the complexity of the airport’s 

situation. However, in all cases the reasons for the selection of the recommended 

alternative should be clearly documented. 

b. Summation of the alternative evaluation criteria can take many forms. Because this effort 

typically relies heavily on the judgment of the planning team, particular care must be 

taken to ensure that the summation process is clear and understood by the airport sponsor 

and study participants. In simple situations with relatively few evaluation criteria, a 

recommended alternative can often be selected with little or no summation of the 

evaluation criteria. In more complex settings, a matrix of findings can be effective in 

selecting a recommended alternative. In addition, a matrix of findings can document 

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matters of judgment; facilitate the sponsor’s, FAA’s, and others’ participation in the 

decision making process; and build consensus regarding the recommended alternative. 

In master plans that are controversial or will lead to an Environmental Assessment or that 

may require an Environmental Impact Statement, the planner should ensure that the 

process used to select a recommended alternative is comprehensive, logical, well 

documented, and has meaningful public participation. The public involvement process 

during a master plan serves an important function, but it does not replace the public 

involvement process required by NEPA and described in FAA Order 1050.1, 

Environmental Impacts: Policies and Procedures and FAA Order 5050.4, FAA Airports 

guidance for complying with NEPA. If the master plan contains short-term development 

projects that are known to require additional environmental processing, the airport 

sponsor should consider beginning the environmental processing prior to selecting a 

recommended alternative. Selecting a recommended alternative prior to beginning the 

environmental processing may complicate the NEPA process because the various 

agencies and public involved may perceive that the NEPA analysis is biased. 

906. AIRPORT SITE SELECTION 

The emphasis in airport planning is normally on the expansion and improvement of existing 

airports. Sometimes, however, an existing airport cannot be expanded to meet the future demand 

and a new or supplemental airport is required. In these cases, a new airport site may be selected 

as part of the airport planning process. The process of identifying, evaluating, and selecting a 

potential site for a new airport is similar to the process of identifying, evaluating, and selecting 

alternatives for individual airport projects. Appendix E contains guidance on the airport site 

selection process. If planners want to use Federal financial assistance under the AIP for followon planning or site acquisition and development, the FAA must approve the selected site before 

any additional planning work is started. 

907. DOCUMENTATION GUIDELINES 

a. The documentation of the alternatives identification, evaluation, and selection process 

should be a separate chapter in the master plan technical report. The planner should 

provide a summary at the beginning of the chapter that describes the recommended 

alternative and its principal benefits. 

b. Planners should move technical information to appendices to improve the readability and 

organizational flow of the documentation. 

c. Since this documentation may be heavily relied upon in a subsequent Environmental 

Assessment or Environmental Impact Statement, the planner should ensure that the 

documentation is logical and thorough. It should make clear what alternatives were 

considered, why particular alternatives were discarded, and why the recommended 

alternative was selected. 

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Chapter 10 Airport Layout Plans 

1001. GENERAL 

a. This chapter provides guidance in the preparation of the drawings that make up the 

Airport Layout Plan (ALP) drawing set. The ALP depicts existing airport facilities and 

proposed developments as determined from the planners’ review of the aviation activity 

forecasts, facility requirements, and alternatives analysis. The process outlined in this 

chapter also applies to ALPs that are prepared without a master plan. 

b. FAA Order 5100.38, Airport Improvement Program Handbook, provides supplemental 

guidance for the preparation of an ALP. United States Code (USC) 47107(a) requires, in 

part, a current ALP approved by both the sponsor and FAA prior to the approval of an 

airport development project. USC 47107(a)(16) requires that the airport sponsor 

maintain an ALP that ensures the safety, utility and efficiency of the airport. Grant 

assurance number 29 requires that the sponsor keep the ALP up to date at all times. As 

stated in Order 5100.38, an ALP remains current for a five-year period, or longer, unless 

major changes at the airport are made or planned. 

c. The minimum elements of the ALP drawing set are defined in Appendix F, Airport 

Layout Plan, of this AC. This chapter complements the ALP drawing set requirements in 

Appendix F. 

d. The ALP preparer must work closely with the airport sponsor, the responsible FAA 

office, and if appropriate, the applicable state agency, to define the requirements, 

standards, and criteria to be employed. To ensure that the ALP is comprehensive, all 

parties must agree to its content and standards. 

e. The ALP graphically depicts current and future airport facilities. The remaining 

drawings included in the ALP drawing set are considered appended to the ALP and are a 

part of it. 

f. The five primary functions of the ALP that define its purpose are: 

1) An approved plan is necessary for the airport to receive financial assistance under the 

terms of the Airport and Airway Improvement Act of 1982 (AIP), as amended, and to 

be able to receive specific Passenger Facility Charge funding. An airport must keep 

its ALP current and follow that plan, since those are grant assurance requirements of 

the AIP and previous airport development programs, including the 1970 Airport 

Development Aid Program (ADAP) and Federal Aid Airports Program (FAAP) of 

1946, as amended. While ALPs are not required for airports other than those 

developed with assistance under the aforementioned Federal programs, the same 

guidance can be applied to all airports. 

2) An ALP creates a blueprint for airport development by depicting proposed facility 

improvements. The ALP provides a guideline by which the airport sponsor can 

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ensure that development maintains airport design standards and safety requirements, 

and is consistent with airport and community land use plans. 

3) The ALP is a public document that serves as a record of aeronautical requirements, 

both present and future, and as a reference for community deliberations on land use 

proposals and budget resource planning. 

4) The approved ALP enables the airport sponsor and the FAA to plan for facility 

improvements at the airport. It also allows the FAA to anticipate budgetary and 

procedural needs. The approved ALP will also allow the FAA to protect the airspace 

required for facility or approach procedure improvements. 

5) The ALP can be a working tool for the airport sponsor, including its development and 

maintenance staff. 

g. The ALP drawing set is a set of planning drawings and is not intended to provide design 

engineering accuracy. Individual items such as runway coordinates, obstruction survey 

data, and application of airport design standards must comply with Federal survey 

standards. The ALP preparer will need to define accuracy requirements for specific 

elements of the ALP in cooperation with the airport sponsor and approving agencies. 

h. Airport Layout Plans are prepared either as first time ALPs, formal revisions based on 

changes to the airport, or informal revisions based on minor improvements to the airport. 

Informal revisions, often referred to as pen-and-ink revisions, can be made to individual 

sheets of the ALP drawing set, although the responsibility for review and approval must 

still be coordinated with the FAA. These and other requirements are discussed in FAA 

Order 5100.38, Airport Improvement Program Handbook. 

1002. AIRPORT LAYOUT PLAN DRAWING SET 

a. The individual sheets that comprise the Airport Layout Plan drawing set will vary with 

each planning effort. The ALP preparer, airport sponsor, FAA and any other approving 

agency must determine which sheets are necessary during the project scoping activities. 

b. The required content of individual sheets is defined in Appendix F, Airport Layout Plan. 

Many state aviation agencies also have specific ALP requirements. Drawings that might 

be included in the Airport Layout Plan drawing set are described below and those that are 

required as minimum ALP drawings are identified as such: 

1) Cover Sheet – A separate cover sheet, with approval signature blocks, airport location 

maps, and other pertinent information as required by the local FAA Airports office. 

2) Airport Layout Plan – (Required) A drawing depicting the existing and future airport 

facilities. The drawing should include required facility identifications, description 

labels, imaginary surfaces, Runway Protection Zones, Runway Safety Areas and 

basic airport and runway data tables. It may be necessary to include the data tables 

on a separate sheet. Figure 10-1 is an example of an ALP drawing. 

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77 

Note: This is a draft airport layout plan and has not yet been reviewed or approved by FAA.

Figure 10-1: Airport Layout Plan Drawing Airport Layout Plan Drawing

Source: Santa Maria Airport (SMX), prepared by Sypher:Mueller.

Note: This is a draft airport layout plan and has not yet been reviewed or approved by FAA.

Figure 10-1: 
AC 150/5070-6B 7/29/05

3) Data Sheet – A separate sheet containing basic airport and runway data tables. 

4) Facilities Layout Plan – A drawing that depicts existing and future facilities, and 

only critical, non-overlapping clearance criteria, with minimal text. It is essentially a 

simplified ALP. 

5) Terminal Area Plan(s) – This plan consists of one or more drawings that present a 

large-scale depiction of areas with significant terminal facility development. Such a 

drawing is typically an enlargement of a portion of the ALP. At a commercial service 

airport, the drawing would include the passenger terminal area, but might also include 

general aviation facilities and cargo facilities. 

6) Airport Airspace Drawing – (Required) 14 CFR Part 77, Objects Affecting Navigable 

Airspace, defines this as a drawing depicting obstacle identification surfaces for the 

full extent of all airport development. It should also depict airspace obstructions for 

the portions of the surfaces excluded from the Inner Portion of the Approach Surface 

Drawing. 

7) Inner Portion of the Approach Surface Drawing – (Required) Drawings containing 

the plan and profile view of the inner portion of the approach surface to the runway 

and a tabular listing of all surface penetrations. The drawing will depict the obstacle 

identification approach surfaces contained in 14 CFR Part 77, Objects Affecting 

Navigable Airspace. The drawing may also depict other approach surfaces, including 

the threshold-siting surface, those surfaces associated with United States Standards 

for Instrument Procedures (TERPS), or those required by the local FAA office or 

state agency. The extent of the approach surface and the number of airspace 

obstructions shown may restrict each sheet to only one runway end or approach. 

8) On-Airport Land Use Drawing – A drawing depicting the land uses within the 

airport property boundary. 

9) Off-Airport Land Use Drawing – A drawing depicting land uses and zoning in the 

area around the airport. At a minimum, the drawing must contain land within the 65 

DNL noise contour. For general aviation airports or low activity commercial service 

airports, where noise issues are less important, on-airport land use and off-airport land 

use drawings may be combined. 

10) Airport Property Map – A drawing depicting the airport property boundary, the 

various tracts of land that were acquired to develop the airport, and the method of 

acquisition. This drawing is only required for those airports that have acquired land 

with Federal funds or through an FAA-administered land transfer program; however, 

it may be useful to all airport sponsors. If any obligations were incurred as a result of 

obtaining property, or an interest therein, they should be noted. Obligations that stem 

from Federal grant or an FAA-administered land transfer program, such as surplus 

property programs, should also be noted. The drawing should also depict easements 

beyond the airport boundary. An airport property map is not a substitute for an 

Exhibit A unless it is prepared in accordance with AC 150/5100-17, Land Acquisition 

and Relocation Assistance for Airport Improvement Program Assisted Projects.

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11) Runway Departure Surface Drawing – This drawing depicts the applicable departure 

surfaces as defined in Appendix 2 of FAA AC 150/5300-13. The surfaces are shown 

for runway end(s) designated primarily for instrument departures. The one-engine 

inoperative (OEI) obstacle identification surface (OIS) should be shown for departure 

runway end(s) supporting air carrier operations. 

12) Utility Drawing – This drawing depicts the location and capacity of major utilities on 

the airport and in the surrounding area. 

13) Airport Access Plans – If access to the airport is a significant issue, a separate airport 

access drawing should be created, depicting the major routes of various modes of 

transportation that serve the airport. Such a drawing could also include proposed 

improvements to the system. 

14) Other Plan(s) – Drawings that address a specific, unique need at the airport. The 

sponsor, FAA and other approving agencies must discuss and agree to include them. 

1003. COMPUTER-AIDED DESIGN STANDARDS 

a. ALP drawings may be produced electronically using design software. The sponsor and 

responsible reviewing agency will select what program to use. Design standards should 

be established and may include defined line types, line weight/thickness, lettering styles, 

symbols, and file-naming conventions. The sponsor, FAA and/or state agency must 

determine which standards must be followed in development of the Airport Layout Plan 

drawing set. 

b. Following computer design standards will facilitate the review and approval of the 

drawings by the responsible agency, reduce the chance of someone misunderstanding the 

drawings, produce drawings that are useful for the reviewing agency and the airport 

sponsor, and produce drawings that may be used in subsequent planning and design 

efforts. 

1004. GEOGRAPHIC INFORMATION SYSTEMS APPLICATIONS 

a. Geographic Information Systems (GIS) are computer-based software that links 

geographic features on a map with various databases. GIS may be used by the airport 

sponsor for a number of purposes, including the inventory and maintenance of airport 

facilities, preparation for emergency services, planning for airport improvements, the 

inventory of airport property, and the inventory of sensitive environmental areas. 

b. The ALP may be linked to an existing GIS or the airport sponsor may implement a new 

GIS incorporating the ALP. The ALP preparer should understand the intended use of the 

GIS and the associated ALP standards and requirements. The ALP standards may 

include specific computer aided design standards for GIS compatibility and ALP 

requirements may include specific facility and data needed for GIS applications. For 

example, a GIS database including the airfield lighting and signing will define a portion 

of the inventory and mapping effort. Similarly, a GIS used for emergency services or 

analysis of airport access may require mapping of the local road network.

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1005. BASE MAPPING AND DATA SOURCES 

Base mapping and data source issues should be discussed as part of the master plan scoping, 

since they may affect not only the ALP drawings, but also subsequent environmental matters. 

These issues might include the following: 

a. Base Mapping – The level of detail required for the base mapping of the ALP must be 

determined by the airport sponsor, FAA, state agency, and the ALP preparer. Although 

some sponsors may already have the necessary data, new base mapping will often be 

required. Base mapping is typically done at the outset of the planning effort and is used 

in the facility requirements determination and alternatives analysis and selection. Since 

these processes ultimately establish the total area that will be depicted on the drawings, 

the preparer should establish the area that must be mapped by considering the following: 

 Potential airport expansion beyond the existing boundaries 

 The extent of noise contours 

 Location of other potential environmental impact areas 

 The area required to address ground access issues 

 The area to be depicted on the Approach Surface Drawing 

 Implications of the use of GIS 

The ALP preparer will need to determine, based on topography, budget, and future uses 

of the base mapping, what intervals of topographical contours to use on the maps. 

Topographic issues may be important in the alternatives analysis, which may require that 

reduced contour intervals be used. The ALP preparer should also consider how to 

analyze airspace obstructions and violations. If aerial photogrammetry is used for the 

obstruction analysis, mapping can be paired with it, but parameters for both products 

must be established. 

b. Airspace Obstruction Identification and Analysis – An assessment of airspace 

obstructions near the airport should be included on the Approach and Departure Surfaces 

Drawings and the Airspace Drawing. The ALP preparer and reviewing agency must 

establish data sources and parameters for this assessment. Obstruction data sources 

include airport obstruction removal programs, previous obstruction survey data, the 

airport’s Obstruction Chart, and the FAA Digital Obstacle File. Numerous methods may 

be used for inventorying new obstructions or for verification of identified obstructions, 

including a physical site survey using traditional methods, aerial photogrammetry; and 

laser mapping. Obstruction analysis parameters include the extent of the approach 

surfaces to be surveyed and analyzed, and the survey of areas off the sides of the 

runways. Existing obstruction clearing and maintenance programs at the airport may 

minimize the need for extensive obstruction surveying. Conversely, development of a 

new airport, construction of new runways, and the extension, reclassification, or approach 

procedure revisions to existing runways may require additional surveying. Surveys 

should be done in accordance with FAA Advisory Circulars 150/5300-16, 17, and 18. 

c. Off-Airport Property – The airport property map will identify the parcels that were 

acquired to develop the airport. The airport alternatives analysis may benefit from an 

inventory of parcels surrounding the airport boundary, particularly in areas of anticipated 

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airport development. Being able to identify these parcels by size and use may also 

benefit potential subsequent environmental studies. The ALP preparer, the responsible 

agency, and airport sponsor should determine if expanding the property map to include 

these areas is necessary. 

1006. CHECKLISTS 

a. The primary guideline for development of the ALP and drawing set is the FAA checklist 

in Appendix F, Airport Layout Plan. 

b. Checklists from FAA Regional and District Offices and state aviation offices may 

supplement the FAA checklist. The ALP preparer should identify applicable checklists at 

the outset of the project. 

c. For airports not included in the National Plan of Integrated Airports System (NPIAS), the 

FAA’s checklist may not apply; states may have separate requirements. 

d. Planners must verify that checklists are current, since they are continually revised to 

reflect changing Federal and state standards. 

e. Once the applicable checklists have been identified, the ALP preparer should consult 

with the reviewing agencies to define the specific items on the checklists that are 

applicable to the project. Checklists are comprehensive and not all items are applicable 

to a specific project. 

1007. APPROVALS 

a. The ALP drawing set approval process will vary, depending on the requirements of the 

local FAA Region and District office and those of the state aviation agency. The airport 

sponsor, FAA, state, and ALP preparer need to identify which approval process will be 

used at the outset of ALP preparation. 

b. FAA Order 5100.38, Airport Improvement Program Handbook, states that FAA review 

and coordination of the ALP will cover Federal interests and must consider any required 

coordination that was not completed at the local or state level. 

c. The review of the Airport Layout Plan drawing set will typically be completed through 

multiple submittals. Milestones must be determined by the reviewing agency, but 

typically include: 

1) Preliminary ALP submittal – The drawing set should be submitted to the sponsor for 

review and comment to ensure that the graphic depictions correctly present the 

sponsor’s goals. 

2) Draft ALP Submittal – The drawing set and support documentation should be 

submitted to the FAA and state aviation agencies for review and comment. 

Supporting documentation might include ALP checklists and must be predetermined 

with reviewing agencies. Review comments may be addressed prior to submittal of 

the Draft ALP drawing set for airspace review. 

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3) Draft ALP Airspace submittal – The Draft ALP drawing set should be submitted to 

the reviewing agency for distribution to various FAA offices for airspace review. As 

noted above, in some cases the FAA or state may require that the Draft ALP drawing 

set be submitted for review and comment and then resubmitted for airspace review 

after their comments have been addressed. In other cases, the FAA may conduct the 

airspace review at the same time as its general review of the Draft ALP drawing set. 

4) Final ALP submittal – The ALP drawing set should be revised, as needed, based on 

the airspace determination and review comments if these were not addressed prior to 

submitting the Draft ALP drawing set for airspace review. The final ALP drawing set 

and accompanying narrative (Master Plan Report or ALP Narrative Report) should be 

sent to the reviewing agency for distribution. 

d. Conditional Approval – The FAA may approve the Airport Layout Plan drawing set 

conditionally, based on specific components that will be subject to further review and 

approvals prior to funding and implementation. See Chapter 5 for additional information 

regarding master plan environmental review and ALP approval. 

e. Unconditional Approval – The FAA may unconditionally approve the Airport Layout 

Plan drawing set when all proposed development projects are either categorically 

excluded from additional environmental processing, have received a Finding of No 

Significant Impact resulting from an Environmental Assessment, or have received a 

Record of Decision resulting from an Environmental Impact Statement. 

1008. DOCUMENTATION GUIDELINES 

a. The requirements for documentation of the Airport Layout Plan drawing set must be 

determined with the airport sponsor and the reviewing agency or State agency. 

Documentation will typically include a complete reduced-size set of the Airport Layout 

Plan drawing set and the accompanying text. The master plan will provide the narrative 

if the ALP is prepared as part of a master plan. If the ALP is prepared separately as an 

ALP Update, an ALP narrative is required. The narrative will typically describe ALP 

development criteria and the rationale for the development shown on the ALP. Examples 

of these include airport reference code-related design criteria unique to specific areas of 

the airfield, or known or proposed modifications to FAA design standards. (See Section 

202.c of this AC for further guidance on the ALP Narrative Report.) 

b. The quantity and form of ALP drawing sets must also be defined by the airport sponsor, 

FAA and state agencies. A reproducible, signed original copy and multiple paper copies 

of the drawings set may be required. Distribution requirements should be established 

during the project scoping. 

c. Electronic files of the Airport Layout Plan drawing set may be prepared. These files are 

typically provided to the reviewing agency and may also be provided to the sponsor. 

d. Once approved by the sponsor and approving agency, the ALP becomes a legal document 

and the sponsor should consider placing security controls on the ALP drawing set to 

prevent unauthorized changes to the drawings. 

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Chapter 11 Facilities Implementation Plan 

1101. GENERAL 

a. The facilities implementation plan provides guidance on how to implement the findings 

and recommendations of the planning effort. Facility implementation plans will vary 

considerably, depending on the complexity of the projects and the airport sponsor’s 

preferences. In some cases, a simple schedule, listing of key projects, project 

descriptions, timing of key activities, estimated development cost, interrelated projects, 

and any special considerations will be sufficient. Other situations may warrant a detailed 

implementation plan that includes a comprehensive master schedule for the 

implementation of the major projects, a detailed coordination plan outlining key activities 

and responsibilities, and detailed project descriptions in the form of project data sheets or 

project booklets for each major project. In all cases, an implementation plan should 

provide the airport sponsor and FAA with the information they will need to integrate the 

master plan’s recommendations with the daily activities of the airport. 

The airport sponsor, FAA, and other involved parties may use similar terms to describe 

somewhat different components of the facility implementation plan, particularly in regard 

to what makes up a Capital Improvement Plan (CIP). Airport sponsors maintain a 

“capital improvement program” or a “capital improvement plan” that includes all of their 

airport planning and development projects, both eligible and ineligible for AIP funding. 

The FAA places AIP eligible projects from the airport capital improvement plan into the 

planning module of the FAA’s System of Airport Reporting (SOAR) (formerly known as 

the NPIAS) for the airport. The FAA then develops an Airports Capital Improvement 

Plan (ACIP) in SOAR by applying a priority system and expected funding levels to these 

projects and selecting those that it expects to be able to fund. 

Regardless of the terms used, the facilities implementation plan must address all of the 

airport’s planned capital projects (even those projects that are not associated with the 

recommendations of the master plan) to ensure that adequate fiscal, staff, scheduling, and 

other resources are available. In addition, all documentation should be prepared so that it 

will be clearly understood by all parties. 

The facilities implementation plan must balance funding constraints; project sequencing 

limitations; environmental processing requirements; agency and tenant approvals and 

coordination processes; business issues, such as leases and property acquisition; and 

sponsor preferences. The plan must also be coordinated with the master plan ALP and 

the airport’s financial plan. 

The facilities implementation plan may change from year to year in response to changing 

conditions. Therefore, the facility implementation plan should be prepared so that it is 

easy to update after the master plan is completed. For example, future aviation activity 

may grow more quickly than the initial facilities implementation plan anticipated, 

requiring modification of the plan to allow earlier implementation of projects. It should 

be more detailed in its early years than in the later years to reflect the imprecise nature of 

long-range facility planning. 

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1102. FORMULATION OF THE CAPITAL IMPROVEMENT PLAN 

a. A new or revised Capital Improvement Plan (CIP) is a key element of the facility 

implementation plan. The projects illustrated on the ALP should be more precisely 

described in the sponsor’s CIP. While the ALP illustrates facility improvements for 

broad time periods, (5, 10, and 20 years), those descriptions must be refined into specific 

projects for the CIP. The airport sponsor will then be able to integrate the master plan 

projects into its overall program of facility improvement projects, repair projects and 

maintenance projects. In some cases, planners may need to significantly revise the 

sponsor’s existing CIP if it includes projects that are no longer relevant to the airport’s 

development as a result of changes in the master plan. At large airports, where there may 

be many ongoing development projects, it can be difficult to integrate the projects 

identified in the master plan into the sponsor’s existing CIP. The planner should work 

with the sponsor to define ongoing projects with regard to schedule, scope, and sources 

and uses of funds in order to integrate the master plan projects into a realistic CIP. 

b. Given the wide variability in project descriptions and CIP processes, the planner needs to 

understand the requirements of the sponsor, FAA, and other applicable agencies before 

undertaking this task. Effective coordination among the planner, FAA, and the sponsor is 

essential. The airport’s CIP contains all projects including those that may not be 

reflected in the FAA’s planning module of SOAR. The level of detail in the sponsor’s 

CIP may also vary considerably, depending on the complexity of the study airport and 

sponsor preference. 

Specific projects, based on the ALP, should be divided into smaller projects that reflect 

how projects are approved, designed, and constructed. Planners should maintain an 

appropriate project scope in designing individual projects. For example, if the master 

plan recommends the extension of a runway, the project would include extending the 

runway, as well as associated projects such as extending the parallel taxiway and adding 

associated navigational aids, electrical systems, and service roadways. However, if the 

master plan recommends the relocation of a passenger terminal, the subsequent projects 

associated with that could be extensive in themselves, including projects to address 

access roadway modifications, terminal area parking, terminal curb and roadway, 

terminal building and concourse, terminal apron, access taxiways, and miscellaneous 

support infrastructure. In all cases, however, the standard descriptions outlined in the 

SOAR planning module should be used for projects submitted to the FAA for funding 

consideration. Each component of an overall project should be described. For example, 

the land acquisition that is part of a runway extension should be described as “Extend 

Runway – Land Acquisition, Phase 1.” 

Specific projects can be described as project listings on a master table, on individual 

project data sheets, or in projects booklets. The approach used will vary with the level of 

detail needed to support the sponsor’s needs. Project descriptions may include the 

following types of information: 

 Project identification (name and project number) 

 Project scope (detailed project description and illustrations) 

 Concise project purpose or objective (why the project is needed) 

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 Project schedule (begin/end dates for pre-design, design, construction, close out, and 

start-up) 

 Prerequisites, dependent, and interrelated projects 

 Project budget (construction cost estimate, including quantities and unit costs, soft 

costs, and contingencies) 

 Environmental processing required 

 Funding information (AIP grant and PFC estimates, other funding source), 

 Special considerations (lease considerations, property acquisition requirements, 

known environmental mitigation requirements, and site constraints) 

 Identification of responsibilities (key activities and when they must be completed, by 

agency, organization, position, or person) 

 Benefit/cost information (see Chapter 12 for a discussion of the FAA’s Airport 

Benefit Cost Analysis Guidance) 

1103. PROJECT SEQUENCING AND THE COMPREHENSIVE MASTER SCHEDULE 

a. Airport projects may be complex, so the implementation plan should consider the 

interrelationships among the projects in the sponsor’s existing and revised CIP. Planners 

should examine all projects to establish interrelationships, determine a sequence to 

minimize conflicts, and establish a master schedule to ensure the sequence is maintained 

throughout the implementation plan. 

The facility implementation plan should cover the same years as the forecasts in the 

planning effort. Typically, detailed information should be provided for the five-year 

horizon, with less detail provided for the longer planning periods. 

In addition to the technical aspects of designing and constructing the projects, the project 

sequencing plan or master schedule should reflect the sponsor’s overall financial, 

environmental, and strategic plans. Developing the project-sequencing plan is an 

iterative process and may result in the reformulation of projects or revisions to the 

airport’s financial, environmental, and strategic plans. 

Since activity rarely grows exactly as forecast in the master plan, establishing triggers for 

key improvements, such as an aircraft apron expansion, additional aircraft storage 

hangars, or additional runway capacity, is recommended to allow a sponsor to respond to 

actual activity levels as they occur. The project-sequencing plan should document these 

triggers along with the year in which planners expect them to be reached. Such an 

approach will be particularly useful for the longer-range part of the implementation plan. 

Preparation of the project-sequencing plan should be undertaken with a full 

understanding of how the airport sponsor will use the implementation plan. Given the 

high levels of complexity associated with such an effort, planners should ensure that 

planning resources are efficiently used to meet the sponsor’s needs. In many cases, a 

plan that simply highlights the order of the projects and key activity triggers will be 

sufficient. In more complex situations, an implementation plan should include the 

preparation of an actual master schedule that incorporates project sequencing, key 

activities, and the identification of the responsible parties. 

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1104. KEY ACTIVITIES AND RESPONSIBILITIES 

a. The implementation plan should provide information regarding key activities and 

responsibilities. Because the lead-time associated with many projects is significant, the 

early identification of key activities and responsibilities can help ensure that essential 

preparatory activities are completed on a timely basis. As with other elements of the 

implementation plan, the level of detail regarding key activities and responsibilities will 

vary, depending on the sponsor’s needs and the complexity of the program. 

The key activities and responsibilities will vary from airport to airport, but will include 

many of the following: 

1. Sponsor-specific project approval activities, such as airport board, 

council, or other administrative body approvals; various budgetary 

approvals and funding appropriations; and similar sponsor-specific items 

2. Airline and other tenant approvals and lease modifications 

3. Project funding activities, such as FAA and other agency grant 

applications, PFC application, and long-term debt financing. 

4. Environmental processing activities, as appropriate, under current 

versions of FAA Order 1050.1, Environmental Impacts: Policies and 

Procedures and FAA Order 5050.4, FAA Airports guidance for complying 

with NEPA. 

5. Land acquisition activities 

6. Sponsor-specific project implementation process activities

associated with designing and constructing the projects 

7. Agency coordination activities, including the FAA, local metropolitan 

planning organization or its equivalent, Transportation Security 

Administration, Department of Defense, and other agencies that may have 

direct involvement with the airport

8. Public Coordination activities that carry the public involvement process 

into the project implementation phase

At a minimum, the listing of key activities and responsibilities should include what 

activities should be undertaken, by what party, and when. In more complex situations, it 

may be useful to provide a schedule of activities or to incorporate the key activities and 

responsibilities into the overall sponsor’s CIP master schedule. 

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1105. DOCUMENTATION GUIDELINES 

a. The documentation of the facilities implementation plan will vary, depending on the 

complexity of the study airport and sponsor objectives. Because the implementation plan 

may be read as a stand-alone document, planners should provide enough source 

documentation so the plan can be independent of the master plan. Planners should use 

appendices to improve the readability and organizational flow of the documentation, 

particularly if project data sheets, project booklets, or benefit/cost analyses are included. 

The documentation should include any electronic spreadsheets and files so as to facilitate 

the modification of the facilities implementation plan as needed. Prior coordination with 

the local FAA Airports office will facilitate the integration of the sponsor’s CIP into the 

planning module of SOAR. 

b. The documentation of the facilities implementation plan should normally include a new 

or revised CIP for at least the short-term airport development projects. Planners should 

address major developments in sufficient detail so the sponsor will know how to fund 

each project in the CIP. The plan should clearly indicate other agencies that are 

anticipated to provide grants-in-aid so they can determine the appropriate level of their 

involvement. 

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Chapter 12 Financial Feasibility Analysis 

1201. GENERAL 

a. This chapter provides guidance on what will be required to demonstrate the airport 

sponsor’s ability to fund the projects in the master plan. Planners should emphasize the 

projects that they expect to implement over the near-term, as presented in the capital 

improvement plan (CIP). A more general discussion of the funding of the medium- and 

long-term projects is more appropriate because of the uncertainty of future funding and -

possible shifts in the importance of those projects. 

b. The sponsor’s ability to fund the recommended projects should be a major consideration 

in preparing the CIP and facilities implementation plans. The financial feasibility 

analysis should take place concurrently with the development of the CIP and the facilities 

implementation plan. 

c. The level of effort necessary to conduct a financial feasibility analysis will vary 

considerably, based on the size of the airport. In general, items to consider are: the 

funding sources for the CIP, a projection of revenues and expenses (pro forma cash flow 

analysis) for each year of the CIP, and methods to enhance airport revenues. 

d. During the scoping process for the master plan, planners may determine that the financial 

feasibility analysis need not be a stand-alone chapter. The CIP and facilities 

implementation plan should provide adequate information on how the projects in the CIP 

will be funded. 

1202. SOURCES OF FUNDING 

a. Airport development can be financed from several sources, including Federal and state 

grants-in-aid, private financing or third party development, passenger facility charges, 

customer facility charges, a variety of bonds, and local funds. 

Federal Funding – Some airport projects are eligible for FAA funding through the 

Airport Improvement Program (AIP), which provides entitlement funds for primary and 

all-cargo airports based upon their annual enplaned passengers and pounds of landed 

cargo weight. Other distributions of AIP funds include states, general aviation airports, 

and non-primary commercial service airports. Some AIP funds are distributed directly to 

states that are in the block grant program. The states then allocate the funds to individual 

airport projects. Additional AIP funds, designated as discretionary, may also be used for 

eligible projects, based on the FAA’s national priority system. 

Although the AIP has been reauthorized several times and the funding formulas have 

been periodically revised to reflect changing national priorities, the program has 

remained essentially the same. Public use airports that serve civil aviation may receive 

AIP funding for eligible projects, as described in FAA Order 5100.38, Airport 

Improvement Program Handbook. The airport sponsor must fund the remaining project 

cost, using a combination of the funding sources discussed in this section. 

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State Funding – Many states have programs to assist in airport capital development. 

The administration of these funds depends on the mechanisms established in each state. 

The most common source is a state aeronautics commission or department. State funds 

are often used to provide some part of the non-Federal share of projects supported by the 

FAA and for other projects that have been included in the state airport or aviation system 

plan. Most states have established a priority system for the allocation of state funds. 

Some states also provide limited funding to airports to support local economic 

development. 

Third Party Development – Third party financing may be appropriate in a case where 

an airport sponsor uses a third party developer or a tenant to finance a construction 

project. Only projects with a strong positive cash flow can support this type of financing. 

Generally, the third party would lease the structure for a period of years to the tenant 

paying the airport ground rents. According to the terms of the agreement, the airport 

sponsor receives ownership of the asset upon expiration of the lease. This method of 

financing preserves the airport sponsor’s cash to fund higher priority projects. Examples 

of projects that are funded in this manner include the development of passenger 

terminals, general aviation hangars, corporate hangars, and cargo facilities. 

Passenger Facility Charge – The Aviation Safety and Capacity Expansion Act of 1990 

authorized the Secretary of Transportation to grant public agencies the authority to 

impose a Passenger Facility Charge (PFC) to fund eligible airport projects. PFC revenue 

may be used on a “pay-as-you-go” basis or leveraged to pay debt service on bonds or 

other debt used to pay for PFC-eligible projects. Although the FAA is required to 

approve the collection and use of PFCs, the program permits local collection of PFC 

revenue through the airlines operating at an airport and provides more flexibility to 

airport sponsors than AIP funds. 

To be eligible for PFC funding, a project must preserve, enhance, or make a significant 

contribution to the safety, security, or capacity of the national air transportation system; 

reduce noise or mitigate noise impacts resulting from an airport; improve local air quality 

in accordance with the Voluntary Airport Low Emission program; or furnish 

opportunities for enhanced competition between or among air carriers; reduce current or 

anticipated congestion; or other qualification that may be added to the program over time. 

Allowable project costs include only those incurred on or after November 5, 1990. 

Regulations associated with the imposition of a PFC are described in 14 CFR Part 158, as 

implemented through FAA Order 5500.1, Passenger Facility Charge. 

Customer Facility Charge – A customer facility charge (CFC) is a fee paid by airport 

customers for the use of some non-aeronautical service at the airport. These charges are 

commonly collected from on-airport rental car agencies. The funds are collected by the 

rental car agency from their customers and then paid to the airport for use in paying the 

debt service on, for example, a consolidated rental car facility. The airport constructs the 

facilities on behalf of the agency, allowing them to finance major projects, but keeping 

the debt off their balance sheets. 

Bonds – A variety of bonds can be issued to support airport development projects. 

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1) General obligation bonds are backed by the creditworthiness and taxing power of the 

municipality operating the airport. They usually bear low interest rates because of 

their high degree of security. However, state laws may limit a municipality’s overall 

debt, and competition from other community financing requirements may preclude 

their use for an airport project. Some states have an exemption from the debt 

limitation rule for general obligation bonds because they are used for a revenue 

producing enterprise. 

2) Revenue bonds pledge the revenues of an airport sponsor to the repayment of debt 

service. These are the most common source of funding at larger commercial service 

airports. Revenue bonds are popular because they do not burden the taxpayer or 

affect the bonding capacity of the municipality. However, their use is limited to 

airports with a sufficient operating surplus to cover the debt service. Projected Net 

Revenues must exceed debt service requirements by at least 1.25 times and up to 2.0 

times, depending on the strength of the bond issuer and the underlying assumptions 

with respect to the market risk for the bonds. Interest rates are dependent on the 

coverage ratio, but in any case will be higher than for general obligation bonds. 

Other factors that may affect the interest rates on revenue bonds are the strength of 

the local passenger market and the financial condition of the airlines serving the 

market. 

3) Special facility revenue bonds are normally issued by the airport sponsor for the 

construction of a facility for a third party and backed by the revenues generated from 

that facility. This method of funding can be used for such facilities as maintenance 

hangars, airline reservation centers, terminal buildings, and air cargo terminals. 

4) Industrial development bonds can be issued by states, local government, or an airport 

authority to fund the construction of an airport industrial park or other facilities that 

may attract business and increase non-aeronautical leasing revenues at the airport. 

Local Funds – The remaining portion of project costs must be funded from local sources. 

The local share of project costs can come from the annual cash flow at the airport or with 

unrestricted cash balances available to the airport sponsor. The local municipality may 

provide the local share from its annual cash flow or available cash reserves. 

1203. FINANCIAL FEASIBILITY 

a. Prepare CIP Funding Plan – The CIP and development-phasing plan for the CIP 

prepared in the facilities implementation plan should be summarized, with the potential 

funding sources clearly identified for each year of the financial plan. The planner should 

use realistic assumptions about the amount of external funding available so an accurate 

plan of finance can be carried forward in the financial feasibility analysis. 

If the airport sponsor needs to issue debt for projects included in the CIP, it should 

identify the financing assumptions for the amount of bond proceeds needed to cover the 

local share and annual debt service requirements. 

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b. Review Airport’s Financial Structure – Planners should analyze the financial structure 

of the airport to determine the composition of the airport’s management, relevant airport 

leases, and other operating issues that will affect future cash flow at the airport. 

1) Airports are typically operated under the jurisdiction of city or county government, 

with airport or aviation departments or public authorities dedicated either to airports 

or aviation, or with a department responsible for aviation or airports. The ability of 

the airport to finance capital improvement projects depends upon the political, 

management, and financial structure under which these entities operate. The airport’s 

ability to support development is based on the likelihood of obtaining Federal and 

state aid, its ability and willingness to issue a financial instrument to fund a portion of 

the costs, and the amount of revenue from airport operations. 

2) Revenue-producing areas, or direct cost centers, for a high activity commercial 

service airport typically include the landing area (airfield), aircraft aprons, terminal, 

(both space rental and concessions), parking and ground transportation, cargo 

buildings, aircraft maintenance facilities, fixed base operator facilities, and other 

leased areas. Many of these revenue-producing facilities will not exist at smaller 

airports. 

Airports commonly use two mechanisms for the recovery of airport operating costs 

from airlines and other tenants in the airport terminal: the compensatory cost method 

and the residual cost method. The compensatory approach allocates all airport costs 

to cost centers and the rates and charges are assigned to airport tenants based upon 

recovering these costs in proportion to the tenant’s use of these facilities and services. 

A residual methodology has one or more signatory airlines agree to pay the net costs 

of operating the airport not recovered from other tenants or other sources of airport 

revenue. One of the basic differences in these two funding mechanisms is the 

assignment of risk. In the compensatory cost method, the airport sponsor assumes the 

financial risk, whereas in the residual cost method the signatory airlines assume the 

risk. These two methodologies represent either end of the airline rate-setting 

methodology spectrum. Many “hybrid” allocation methodologies are used at 

commercial service airports. 

3) Planners should examine the budgeting process used by the airport to establish the 

financial management plan for operating revenue, operating and maintenance (O&M) 

expenses, and capital expenditures. 

4) At larger airports where the complexity of the financial analysis increases, the planner 

should recognize that constraints may occur because of the various legal documents 

relating to the airport, including any bond ordinance, airline use and lease 

agreements, and other operating agreements at the airport, such as: 

a) A Bond Ordinance or Trust Indenture limits the amount of additional debt that 

an airport sponsor can issue to fund capital projects and may include the 

application of revenue, rate covenant, and additional bonds test. The application 

of revenue refers to the priority of the flow of funds of the airport’s gross 

revenues. A rate covenant requires the airport sponsor to set rates, fees, and 

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charges at the airport at a level that will produce net revenues that will satisfy the 

debt service coverage requirement. An additional bonds test is the documentation 

the airport sponsor must produce to prove that the airport can generate the 

necessary coverage before it can issue additional bonds. 

b) The Airline Use and Lease Agreement (AULA) is the contractual relationship 

between the airport and the airlines serving the airport. Normally this agreement 

would specify the airfield facilities available to each airline, the terminal space 

leased by each airline, and the rates and charges for use of the various facilities, 

landing fees, apron fees and any other charges. In a residual cost center 

arrangement, the airlines often have majority-in-interest (MII) approval, which is 

a weighted “vote” to construct capital projects that are included in the airline rate 

base. This allows an airport sponsor to include the net cost of a capital project in 

the airlines’ rate base if a majority of the airlines approves that project, based on 

the terms of the AULA. 

c) Lease documents are established between the airport and aeronautical and nonaeronautical tenants, such as fixed based operators, concessionaires, and airport 

service providers. Normally these lease agreements specify the term of the lease, 

the specific assignment of space for these business enterprises, the rental rate or 

fees for use of the facilities, and a concession fee. 

d) Analyze Historical Cash Flow – The planner should examine both the airport 

revenues and O&M expenses by cost center, where applicable, for the prior threeto-five years and a historical cash flow profile for the airport that describes 

financial operating trends. The planner may decide to exclude non-cash 

expenditures such as depreciation and amortization. The historical cash flow will 

be useful in projecting future revenues and O&M expenses. 

e) Prepare Pro Forma Cash Flow Analysis – The planner should prepare a pro 

forma cash flow analysis that projects airport revenues, O&M expenses, existing 

and new debt service requirements, and other non operating revenues and 

expenses for each year of the CIP. The general test of financial feasibility applied 

throughout the planning process is the ability of the airport sponsor to cover the 

local cost of the CIP through airport cash flow. 

(1) Planners for low activity airports should recognize their dependence on 

Federal and state aid for improvements, but should not rely on the availability 

of such funds. Instead, they should consider alternative strategies for 

financing in an effort to become more self-sufficient, in accordance with AIP 

grant assurances. The master plan should discuss the investment requirements 

and the benefits of the proposed development, so the airport sponsor can make 

practical decisions predicated on availability of funds and public investment 

priorities. 

(2) High activity commercial service airports usually generate sufficient revenue 

to support revenue bond financing for capital improvements. Such airports’ 

need to supplement bond financing with Federal aid will vary in degree, 

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usually depending on activity levels. High activity commercial service 

airports are usually self-sufficient and produce adequate cash flow from 

setting rates, fees, and charges at the airport in accordance with the Bond 

Ordinance, airline use and lease agreements, and other operating agreements. 

(3) In conducting the pro-forma cash flow analysis, the planner should focus on 

the three to five year time frame that coincides with the CIP. The planner 

should also emphasize the first 10 years of development, since the CIP is 

generally better defined during that period. Discuss development during the 

10 to 20 year horizon in a broader manner, because projects during this period 

are often demand driven and will have a neutral effect on the airport’s cash 

flow. In addition, over the longer-term, priorities for airport capital projects 

may change and a new master plan or update may be completed. 

(4) In analyzing the financial feasibility of an airport’s CIP, the planner may 

choose to value construction expenses, operating revenues, and O&M 

expenses in current year dollars. 

(5) The planner may decide to increase the capital cost from current year dollars 

to the year in which construction is expected. If the planner conducts the 

analysis in this manner, inflationary impacts must be included in the 

projection of revenues and O&M expenses, along with increases because of 

operational factors. 

f) Conduct Sensitivity Analysis – In some cases, a sensitivity test may be warranted 

to assess financial risk. For example, the planner may want to test different rates 

of passenger growth to determine how sensitive the financial plan is to this, 

particularly where PFCs or revenue bonds are being heavily relied upon in the 

CIP. 

1204. REVENUE ENHANCEMENT 

a. Airports are often under pressure to improve their financial condition to keep user costs at 

reasonable levels. In preparing the pro forma cash flow analysis, the planner should 

compare the financial performance of the study airport to that of comparable airports to 

identify ways to increase concession, airline, and non-aeronautical revenues. 

b. Increases in concession revenues will be subject to the terms of existing operating 

agreements. Certain concessions may not be subject to operating agreement constraints, 

including automobile parking rates, future land rental rates, fuel flowage fees, and aircraft 

tie down fees, but may be subject to others constraints. 

c. The existing AULA may not allow the airport sponsor to recover the cost of operating the 

airport from the airlines, or the terms of the existing airline agreement may no longer 

meet the needs of the airport sponsor. Alternatively, the airport sponsor may have 

sufficient unrestricted funds and wish to reduce airline-operating costs. In either case, the 

master planning process is a good time for the airport sponsor to examine its AULA and 

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make appropriate revisions, to the extent it is able, particularly if there are projects in the 

CIP that will require funding from the airlines. 

d. Non-aeronautical revenues provide the best opportunity for an airport sponsor to establish 

new types of lease revenue, based on the use of existing land parcels at the airport. An 

example of such an arrangement is a short-term lease of land to grow hay, grass or to 

graze cattle, which would allow the airport sponsor to increase revenues while 

maintaining control of the future use of the land. The airport sponsor should be aware of 

the restrictions placed on these activities by 14 CFR Part 139, wildlife hazard concerns, 

and grant assurances. 

1205. BENEFIT COST ANALYSIS 

a. The FAA Airports Benefit Cost Analysis (BCA), December 1999, states that when 

possible, airport sponsors should conduct a BCA as part of the development of the master 

plan. A formal BCA is required only for projects that enhance capacity at an airport and 

will receive $5 million or more in AIP discretionary funds or are named in a Letter of 

Intent. 

b. If the airport sponsor decides to submit a complete BCA to the FAA, more detailed cost 

estimates for a project(s) will be required than those prepared for the facilities 

implementation plan. 

1206. DOCUMENTATION GUIDELINES 

a. The documentation of this chapter in the master plan should clearly show the financial 

feasibility of the CIP. 

b. The financial planning chapter of a master plan for a large commercial service airport 

will be more complex than one for a low activity general aviation airport. In this chapter, 

planners should consider the funding plan for the CIP, historical cash flow, existing and 

future debt service requirements, airline rates and charges, airline cost per enplanement, 

concession revenues per enplanement, and pro forma cash flow analysis. 

c. If a BCA has been prepared during the master plan process, it should be included as an 

Appendix to the master plan report. 

d. Documentation provided to the airport should include any electronic spreadsheets and 

files to facilitate planners in modifying the financial plan on an as-needed basis. 

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Appendix A Glossary 

Advisory Circular – External publications issued by the FAA consisting of non-regulatory 

material providing for the recommendations relative to a policy, and guidance and information 

relative to a specific aviation subject. 

Aircraft Approach Category – An alphabetic classification of aircraft based upon 1.3 times the 

stall speed in a landing configuration at their maximum certified landing weight. 

Aircraft Operation – The landing, takeoff or touch-and-go procedure by an aircraft on a runway 

at an airport. 

Aircraft Rescue and Fire Fighting – A facility located at an airport that provides emergency 

vehicles, extinguishing agents, and personnel responsible for minimizing the impacts of an 

aircraft accident or incident. 

Airfield – The portion of an airport that contains the facilities necessary for the operation of 

aircraft. 

Airplane Design Group – A Roman numerical classification of aircraft based upon wingspan. 

Airport Authority – A quasi-governmental public organization responsible for setting the policies 

governing the management and operation of an airport or system of airports under its 

jurisdiction. 

Airport Capital Improvement Plan – The planning program used by the Federal Aviation 

Administration to identify, prioritize and distribute funds for airport development and the needs 

of the National Airspace System to meet specified national goals and objectives. 

Airport Improvement Program – A program authorized by the Airport and Airway Improvement 

Act of 1982 that provides funding for airport planning and development. 

Airport Layout Plan – A scaled drawing of the existing and planned land and facilities necessary 

for the operation and development of an airport. 

Airport Master Plan – The planner’s concept of the long-term development of an airport. 

Airport Obstruction Chart – A scaled drawing depicting the Federal Aviation Regulation (FAR) 

Part 77 surfaces, a representation of objects that penetrate these surfaces, runway, taxiway, and 

ramp areas, navigational aids, buildings, roads and other detail in the vicinity of an airport. 

Airport Reference Code – A coding system used to relate airport design criteria to the operational 

and physical characteristics of the airplanes intended to use the airport. It is a two character code 

consisting of the aircraft approach category and the airplane design group. 

Airport Reference Point – The latitude and longitude of the geometric center of the runway 

system at an airport. 

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Airport Sponsor – The entity that is legally responsible for the management and operation of an 

airport including the fulfillment of the requirements of laws and regulations related thereto. 

Airside – The portion of an airport that contains the facilities necessary for the operation of 

aircraft. 

Air Taxi – An aircraft operated under an air taxi operating certificate for the purpose of carrying 

passengers, mail, or cargo for revenue in accordance with FAR Part 121 and FAR Part 135. 

Airport Traffic Control Tower – A facility in the terminal air traffic control system located at an 

airport which consists of a tower cab structure and an associated instrument flight rules room, if 

radar equipped, that uses ground-to-air and air-to-ground communications and radar, visual 

signaling, and other devices to provide for the safe and expeditious movement of terminal area 

air traffic in the airspace and airports within its jurisdiction. 

Annual Service Volume (ASV) – The number of annual operations that can reasonably be 

expected to occur at the airport based on a given level of delay. 

Approach Surface – An imaginary obstruction limiting surface defined in FAR Part 77 which is 

longitudinally centered on an extended runway centerline and extends outward and upward from 

the primary surface at each end of a runway at a designated slope and distance based upon the 

type of available or planned approach by aircraft to a runway. 

Apron – A specified portion of the airfield used for passenger, cargo or freight loading and 

unloading, aircraft parking, and the refueling, maintenance and servicing of aircraft. 

Avigation Easement – A contractual right or a property interest in land over which a right of 

unobstructed flight in the airspace is established. 

Based Aircraft – The general aviation aircraft that use a specific airport as a home base. 

Benefit Cost Analysis (BCA) – An analysis of the benefit, cost, and uncertainty associated with a 

project or action. A formal BCA is required for capacity projects of $5 million or more in AIP 

discretionary funds. 

Building Restriction Line – A line defined by specifications and displayed on an airport layout 

plan beyond which airport buildings must not be located to limit building proximity to aircraft 

movement areas. 

Capital Improvement Plan – The planning program used by the Federal Aviation Administration 

to identify, prioritize and distribute Airport Improvement Program funds for airport development 

and the needs of the National Airspace System to meet specified national goals and objectives. 

Cargo Service Airport – An airport served by aircraft providing air transportation of property 

only, including mail, with an annual aggregate landed weight of at least 100,000,000 pounds. 

Citizen’s Advisory Committee (CAC) – A group of individuals that weigh recommendations 

against community goals, values, and needs. 

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Commercial Service Airport – A public airport providing scheduled passenger service that 

enplanes at least 2,500 annual passengers. 

Computer Aided Design – Software that is commonly used for drafting architectural and 

engineering drawings. 

Conical Service – An imaginary obstruction-limiting surface defined in FAR Part 77 that extends 

from the edge of the horizontal surface outward and upward at a slope of 20 to 1 for a horizontal 

distance of 4,000 feet. 

Critical (Design) Aircraft – The most demanding aircraft with at least 500 annual operations that 

operates, or is expected to operate, at the airport. 

Crosswind – A wind that is not parallel to a runway centerline or to the intended flight path of an 

aircraft. 

Crosswind Component – The component of wind that is at a right angle to the runway centerline 

or the intended flight path of an aircraft. 

Discretionary Funds – Federal grant funds that may be appropriated to an airport based upon 

designation by the Secretary of Transportation or Congress to meet a specified national priority 

such as enhancing capacity, safety, and security or mitigating noise. 

Displaced Threshold – An aircraft runway landing area that begins at a point on the runway other 

than the designated physical end of the runway. 

Enplanement – The boarding of a passenger, cargo, freight or mail on an aircraft at an airport. 

Entitlement – Federal funds for which a commercial service airport may be eligible based upon 

its annual passenger enplanements. 

Environmental Assessment – An environmental analysis performed pursuant to the National 

Environmental Policy Act to determine whether an action would significantly affect the 

environment and thus require a more detailed environmental impact statement. 

Environmental Impact Statement – A document required of federal agencies by the National 

Environmental Policy Act for major projects or legislative proposals affecting the environment. 

It is a tool for decision-making describing the positive and negative effects of a proposed action 

and citing alternative actions. 

Federal Aviation Regulations – The general and permanent rules established by the executive 

departments and agencies of the Federal Government for aviation, which are published in the 

Federal Register. These are the aviation subset of the Code of Federal Regulations. 

Finding of No Significant Impact – A public document prepared by a Federal agency that 

presents the rationale why a proposed action will not have a significant effect on the environment 

and for which an environmental impact statement will not be prepared. 

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Fixed Base Operator – A business enterprise located at on airport that provides services to pilots 

including aircraft rental, training, fueling, maintenance, parking, and the sale of pilot supplies. 

General Aviation – The segment of aviation that encompasses all aspects of civil aviation except 

certified air carriers and other commercial operators such as airfreight carriers. 

General Aviation Airport – An airport that provides air service to only general aviation. 

Geographic Information System (GIS) – A GIS is a computer system capable of capturing, 

storing, analyzing, and displaying geographically referenced information according to location. It 

is a technology that manages, analyzes, and disseminates geographic data. 

Global Positioning System – A satellite based navigational system that provides signals in the 

cockpit of aircraft defining aircraft position in terms of latitude, longitude and altitude. 

Ground Access – The transportation system on and around the airport that provides access to and 

from the airport by ground transportation vehicles for passengers, employees, cargo, freight, and 

airport services. 

Horizontal Service – An imaginary obstruction-limiting surface defined in FAR Part 77 that is 

specified as a portion of a horizontal plane surrounding a runway located 150 feet above the 

established airport elevation. The specific horizontal dimensions of this surface are a function of 

the types of approaches existing or planned for the runway. 

Instrument Flight Rules – Procedures for the conduct of flight in weather conditions below 

Visual Flight Rules weather minimums. The term IFR is often also used to define weather 

conditions and the type of flight plan under which an aircraft is operating. 

Instrument Meteorological Conditions – Meteorological conditions expressed in terms of 

specific visibility and ceiling conditions that are less than the minimums specified for visual 

meteorological conditions. 

Itinerant Operations – Operations by aircraft that leaves the local airspace. 

Landside – The portion of an airport that provides the facilities necessary for the processing of 

passengers, cargo, freight, and ground transportation vehicles. 

Local Operations – Aircraft operations performed by aircraft that are based at the airport and that 

operate in the local traffic pattern or within sight of the airport, that are known to be departing 

for or arriving from flights in local practice areas within a prescribed distance from the airport, or 

that execute simulated instrument approaches at the airport. 

Military Operations – Aircraft operations that are preformed in military aircraft. 

National Airspace System – The network of air traffic control facilities, air traffic control areas, 

and navigational facilities throughout the U.S. 

National Environmental Policy Act (NEPA) – Federal legislation that establishes environmental 

policy for the nation. It requires an interdisciplinary framework for federal agencies to evaluate 

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environmental impacts and contains action-forcing procedures to ensure that federal agency 

decision makers take environmental factors into account. 

National Plan of Integrated Airport Systems – The national airport system plan developed by the 

Secretary of Transportation on a biannual basis for the development of public use airports to 

meet national air transportation needs. 

Navigational Aid – A facility used as, available for use as, or designed for use as an aid to air 

navigation. 

Operation – The landing, takeoff or touch-and-go procedure by an aircraft on a runway at an 

airport. 

Passenger Facility Charge (PFC) – The collection of PFC fees for every enplaned passenger at 

commercial airports controlled by public agencies to be used to fund FAA-approved projects that 

enhance safety, security, or capacity; reduce noise; or increase air carrier competition. 

Peak Hour (PH) – An estimate of the busiest hour in a day. This is also known as the design 

hour. 

Planning Activity Level (PAL) – Selected activity levels that may trigger the need for additional 

facilities or improvements. 

Primary Airport – A commercial service airport that enplanes at least 10,000 annual passengers. 

Primary Surface – An imaginary obstruction limiting surface defined in FAR Part 77 that is 

specified as a rectangular surface longitudinally centered about a runway. The specific 

dimensions of this surface are a function of the types of approaches existing or planned for the 

runway. 

Record of Decision (ROD) – A public document that reflects the FAA’s final decision, rationale 

behind that decision, and commitments to enforce and monitor mitigation. 

Regression Analysis – A statistical technique that seeks to identify and quantify the relationships 

between factors associated with a forecast. 

Reliever Airport – General aviation airports in major metropolitan areas that provide pilots with 

attractive alternatives to using congested hub airports. 

Runway – A defined rectangular area at an airport designated for the landing and taking-off of an 

aircraft. 

Runway Gradient – The ratio of the change in elevation divided by the length of the runway 

expressed as a percentage. 

Scope – The document that identifies and defines the tasks, emphasis and level of effort 

associated with a project or study. 

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System Of Airport Reporting (SOAR) – The FAA Office of Airports integrated database that 

contains airport planning, development, and financial information. 

Technical Advisory Committee (TAC) – A group of individuals that provide input on technical 

issues. 

Terminal Area Forecast – The official forecast of aviation activity, both aircraft and 

enplanements, at FAA facilities. This includes FAA-towered airports, federally contracted 

towered airports, non-federal towered airports, and many non-towered airports. 

Terminal Instrument Procedures – Published flight procedures for conducting instrument 

approaches to runways under instrument meteorological conditions. 

Transient Operations – Operations by aircraft that are not based at a specified airport. 

Transitional Surface – An imaginary obstruction-limiting surface defined in FAR Part 77 that 

extends outward and upward at right angles to the runway centerline and the runway centerline 

extended at a slope of 7 to 1 from the sides of the primary and approach surface. 

Uncontrolled Airport – An airport without an air traffic control tower at which the control of 

Visual Flight Rules traffic is not exercised. 

Visual Flight Rules – Procedures for the conduct of flight in weather conditions above Visual 

Flight Rules (VFR) weather minimums. The term VFR is often also used to define weather 

conditions and the type of flight plan under which an aircraft is operating. 

Visual Meteorological Conditions – Meteorological conditions expressed in terms of specific 

visibility and ceiling conditions which are equal to or greater than the threshold values for 

instrument meteorological conditions. 

Wide Area Augmentation System – An enhancement of the Global Positioning System that 

includes integrity broadcasts, differential corrections, and additional ranging signals for the 

purpose of providing the accuracy, integrity, availability, and continuity required to support all 

phases of flight. 

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Appendix B Useful Reference Materials 

1. FAA ADVISORY CIRCULARS 

Most of these Advisory Circulars are available for viewing and/or printing on the FAA website 

at www.faa.gov/regulations/index.cfm. 

00-2 Advisory Circular Checklist. Transmits the checklist of current FAA Advisory 

Circulars and is revised tri-annually. This publication is available on the FAA website at 

www.faa.gov/aba/html_policies/ac00_2.html. 

70/7460-1K Obstruction Marking and Lighting. Describes the FAA standards for marking 

and lighting structures to promote safety. 

70/7460-2K Proposed Construction or Alteration of Objects that May Affect the Navigable 

Airspace. Provides information to persons proposing to erect or alter an object that may 

affect the navigable airspace. Explains the need to notify FAA before construction begins 

and FAA’s response to those notices as required by FAR 77. 

90-66A Recommended Standard Traffic Patterns and Practices for Aeronautical Operations 

at Airports without Operating Control Tower. Calls attention to regulatory requirements and 

recommended procedures for aeronautical operations at airports without operating control 

towers. It recommends traffic patterns and operational procedures for aircraft, lighter than 

air, glider, parachute, rotorcraft, and ultra-light vehicle operations where such use is not in 

conflict with existing procedures in effect at those airports. 

90-98 Simultaneous Closely Spaced Parallel Operations at Airports Using Precision Runway 

Monitor (PRM) Systems. Notify pilots and operators about the establishment of specific air 

traffic procedures to conduct flight operations into airports identified for simultaneous 

closely-spaced parallel approaches using PRM systems. 

150/5000-12 Announcement of Availability—Passenger Facility Charge (PFC) Application 

Form 5500-1. Provides guidance for the submission of the PFC application. 

150/5020-1 Noise Control and Compatibility Planning for Airports. Provides general 

guidance for noise control and compatibility planning for airports. Provides specific 

guidance for preparation of airport noise exposure maps and airport noise compatibility 

programs by airport sponsors for submission under FAR Part 150 and the Aviation Safety 

and Noise Abatement Act of 1979. 

150/5050-7 Establishment of Airport Action Groups. Provides guidance on the establishment 

of airport action groups. 

150/5060-5 Airport Capacity And Delay. Explains how to compute airport capacity and 

aircraft delay for airport planning and design. 

150/5100-14C Architectural, Engineering, and Planning Consultant Services for Airport 

Grant Projects. Provides guidance for airport sponsors in the selection and employment of 

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architectural, engineering, and planning consultants under Federal Aviation Administration 

airport grant programs. 

150/5100-16A Airport Improvement Program Grant Assurance Number One—General 

Federal Requirements. Describes the Federal requirements contained in Assurance 1 of the 

Grant Assurances required by the Airport and Airway Improvement Act of 1982, as 

amended. It is intended for sponsors receiving assistance under the Airport Improvement. 

150/5100-17 Land Acquisition and Relocation Assistance for Airport Improvement Program 

Assisted Projects. Provides guidance to sponsors of airport projects developed under the 

Airport Improvement Program to meet the requirements of the Uniform Relocation 

Assistance and Real Property Acquisition Act of 1970 (PL 91-646, as amended) and the 

regulations of the Office of the Secretary of Transportation, 49 CFR Part 24. 

150/5100-19B Guide for Airport Financial Reports Filed by Airport Sponsor. Provides 

airport sponsors with guidance for complying with the airport financial reporting 

requirements required by 49 USC §47107(a)(15). 

150/5190-1A Minimum Standards for Commercial Aeronautical Activities on Public 

Airports. Provides basic information and broad guidance material to assist the owners of 

public airports in developing and applying minimum standards for commercial aeronautical 

activities on public airports. 

150/5190-4A Model Zoning Ordinance to Limit Height of Objects around Airports. Provides 

a model zoning ordinance to be used as a guide to control the height of objects around 

airports. 

150/5200-30A Airport Winter Safety and Operations. Provides guidance to assist airport 

owners/sponsors in the development of an acceptable airport snow and ice control program 

and to provide guidance on appropriate field condition reporting procedures. 

150/5200-31A Airport Emergency Plan. Provides guidance for the preparation of emergency 

plans at civil airports. 

150/5200-33A Hazardous Wildlife Attractants On or Near Airports. Provides guidance on 

locating certain land uses having the potential to attract hazardous wildlife to or in the 

vicinity of public-use airports. 

150/5200-34 Construction or Establishments of Landfills Near Public Airport. Contains 

guidance on complying with new Federal statutory requirements regarding the construction 

of establishment of landfills near public airports. 

150/5210-15 Airport Rescue and Firefighting Station Building Design. Provides standards 

and guidance for planning, designing, and constructing and airport rescue and firefighting 

station. 

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150/5220-18 Buildings for Storage and Maintenance of Airport Snow and Ice Control 

Equipment and Materials. Provides guidance for site selection, design and construction of 

buildings used to store and maintain airport snow and ice control equipment and materials. 

150/5300-7B FAA Policy on Facility Relocations Occasioned by Airport Improvements or 

Changes. Reaffirms the aviation community of the FAA policy governing responsibility for 

funding relocation, replacement and modification to air traffic control and air navigation 

facilities that are made necessary by improvements or changes to the airport. 

150/5300-9A Predesign, Prebid, and Preconstruction Conferences for Airport Grant 

Projects. Provides guidance for conducting predesign, prebid, and preconstruction 

conferences for projects funded under the FAA airport grant program. 

150/5300-13 Airport Design. Contains the FAA’s standards and recommendations for 

airport design. 

150/5300-14 Design of Aircraft Deicing Facilities. Provides standards, specifications, and 

guidance for designing aircraft deicing facilities. 

150/5300-15 Use of Value Engineering for Engineering and Design of Airport Grant 

Projects. Provides guidance for the use of value engineering in airport projects funded under 

the FAA’s Airport Grant Program. This Advisory Circular should be used by sponsors of 

airport development projects considering the application of value engineering to projects 

involving grant funds. 

150/5320-5B Airport Drainage. Provides guidance for engineers, airport managers, and the 

public in the design and maintenance of airport drainage systems. 

150/5320-6D Airport Pavement Design and Evaluation. Provides guidance to the public for 

the design and evaluation of pavement at civil airports. 

150/5320-16 Airport Pavement Design for the Boeing 777 Airplane. Provides thickness 

design standards for pavements intended to serve the Boeing 777 airplane. 

150/5325-4A Runway Length Requirements for Airport Design. Provides design standards 

and guidelines for determining recommended runway lengths. 

150/5340-1H Standards for Airport Markings. Contains the FAA standards for markings 

used on airport runways, taxiways, and aprons. 

150/5340-18C Standards for Airport Sign Systems. Contains the FAA standards for the 

siting and installation of signs on airport runways and taxiways. 

150/5360-9 Planning and Design of Airport Terminal Facilities at Non-Hub Locations. 

Provides guidance material for the planning and design of airport terminal buildings at nonhub locations. 

150/5360-12D Airport Signing and Graphics. Provides guidance on airport related signs and 

graphics. 

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150/5360-13 Planning and Design Guidelines for Airport Terminal Facilities. Provides 

guidelines for the planning and design of airport terminal buildings and related access 

facilities. 

150/5390-2A Heliport Design. Provides recommendations and standards for heliport and 

helistop design. 

150/5390-3 Vertiport Design. Provides guidance to planners and communities interested in 

developing a civil vertiport or vertistop. 

150/5395-1 Seaplane Bases. Provides guidance to assist operators in planning, designing, 

and constructing seaplane base facilities. 

2. FAA ORDERS 

Virtually all of the following orders are available for viewing and/or printing on the FAA 

website at www.faa.gov/regulations/index.cfm. 

1050.1 Environmental Impacts: Policies and Procedures. Provides policies and procedures 

to ensure FAA compliance with the provisions of the National Environmental Policy Act. 

http://www.faa.gov/regulations_policies/orders_notices/ 

5050.4, FAA Airports guidance for complying with NEPA. Provides instructions and 

guidance for the preparation and processing of environmental assessments, findings of no 

significant impact, and environmental impact statements for airport development proposals 

and other airport activities. 

5090.3 (current version) Field Formulation of the National Plan of Integrated Airport 

Systems. This order contains instructions for FAA Regional offices in the formulation and 

maintenance of the NPIAS computer database and on the preparation of the Secretary of 

Transportation’s biennial Report to Congress. 

5100.37 Passenger Facility Charge. Provides guidance and the processes to be used by FAA 

personnel in administering the Passenger Facility Charge program. 

5100.38 Airport Improvement Program Handbook. Provides guidance and sets forth policies 

and procedures for the administration of the Airport Improvement Program by the FAA. 

5100.39 Airports Capital Improvement Plan. Prescribes the development of the national 

Airports Capital Improvement Program that serves as the primary planning tool for 

systematically identifying, prioritizing and assigning funds to critical airport development 

and associated capital needs for the National Airspace Program. 

8260.3 United States Standards for Terminal Instrument Procedures (TERPS) 46. Contains 

criteria for instrument approach and departure procedures. 

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3. FEDERAL AVIATION REGULATIONS 

Virtually all of the following Federal regulations addressing aviation are available for viewing 

and/or printing on the FAA website at www.faa.gov/regulations/index.cfm. 

14 CFR Part 77 Objects Affecting Navigable Airspace 

14 CFR Part 150 Airport Noise Compatibility Planning 

14 CFR Part 158 Passenger Facility Charges (PFCs) 

4. TRANSPORTATION SECURITY REGULATIONS 

The following Transportation Security Regulations (TSRs) are available for viewing and/or 

printing on the Transportation Security Administration website at www.tsa.gov/public. 

TSR Part 1540 Civil Aviation Security: General Rules. Definitions and rules for all aspects 

of aviation. 

TSR Part 1542 Airport Security. Requirements for airport security programs including 

establishment of secured areas, air operation areas, security identification display areas, and 

access control systems. Also describes requirements related to Security Directives. 

TSR Part 1544 Aircraft Operator Security: Air Carriers and Commuter Operators. Applies 

primarily to operators holding certificates for scheduled and charter passenger operations. 

Details the requirements for security program and screening of passengers and property. 

TSR Part 1546 Foreign Air Carrier Security. Discusses security and screening requirements. 

TSR Part 1548 Indirect Air Carrier Security. Describes requirements for indirect carriers 

such as freight forwarders. 

TSR Part 1550 Aircraft Security Under General Operating and Flight Rules. Applies to 

operation of all other aircraft such as general aviation aircraft. 

5. SECURITY-RELATED PUBLICATIONS 

Recommended Security Guidelines for Airport Planning, Design, and Construction. 

(Formerly DOT/FAA/AR-00-52, June 2001. Updated TSA version in progress.) 

Standards for Airport Security Access Control Systems. (RTCA DO-230A, April 2003) 

Available from RTCA at http://www.rtca.org. 

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6. FAA REPORTS 

Airport Noise Compatibility Planning (ANCP) Toolkit, FAA Office of Environment and 

Energy (http://www.faa.gov/about/office_org/headquarters_offices/aep/planning_toolkit/).

FAA Airport Benefit-Cost Analysis Guidance, Office of Aviation Policy and Plans 

(http://www.faa.gov/airports_airtraffic/airports/aip/bc_analysis/). 

FAA Guide to the Best Practices for Environmental Impact Statement Management, FAA 

Office of Airport Planning and Programming 

(http://www.faa.gov/airports_airtraffic/airports/environmental/). 

Forecasting Aviation Activity by Airport, GRA, Inc., Office of Aviation Policy and Plans 

(APO-110) (http://www.faa.gov/data_statistics/aviation_data_statistics/). 

Intermodal Ground Access to Airports: A Planning Guide, Federal Highway Administration, 

Intermodal Division and Federal Aviation Administration, National Planning Division, 

Report No. DOT/FAA/PP/96-3. Available from National Technical Information Service as 

PB97-189484 (www.ntis.gov). 

National Plan of Integrated Airport Systems (NPIAS), Office of Airport Planning and 

Programming, National Planning Division 

(www.faa.gov/airports_airtraffic/airports/planning_capacity/npias/). 

Terminal Area Forecast (TAF), Office of Aviation Policy and Plans 

(http://www.faa.gov/data_statistics/aviation/). 

7. GENERAL AIRPORT PUBLICATIONS 

Aerodromes, Annex 14 to the Convention on International Civil Aviation, International Civil 

Aviation Organization. 

Aerodrome Design Manual, Part 1, Runways, International Civil Aviation Organization. 

Aerodrome Design Manual, Part 2, Taxiways, Aprons and Holding Bays, International Civil 

Aviation Organization. 

Airport Engineering, Ashford and Wright, John Wiley & Sons, Inc. 

Airport Finance, Ashford and Moore, Van Nostrand Reinhold, Inc. 

Airport Planning and Management, Smith, Odegard and Shea, Wadsworth Publishing 

Company. 

Airport Planning and Management, Wells and Young, McGraw-Hill Companies, Inc. 

Airport Planning Manual, Part 1 – Master Planning, International Civil Aviation 

Organization. 

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Airport Planning Manual Part 2 – Land Use and Environmental Control, International Civil 

Aviation Organization. 

Airport Systems Planning, Design, and Management, deNeufville and Odoni, McGraw-Hill 

Companies, Inc. 

Airport Terminals Reference Manual, International Air Transportation Association. 

Construction of Visual and Instrument Flight Procedures (PANS-OPS), International Civil 

Aviation Organization. 

Environmental Protection, Annex 16 to the Convention on Civil Aviation, International Civil 

Aviation Organization. 

Planning and Design of Airports, Horonjeff and McKelvey, McGraw-Hill Companies, Inc. 

STOL Port Manual, International Civil Aviation Organization. 

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Appendix C List of Potential Stakeholders 

Users and tenants: 

 Commercial service and charter airlines 

 Air cargo airlines and operators 

 Corporate aircraft owners 

 Freight forwarders 

 Airline ground handling and catering companies 

 Airline maintenance base operators 

 Aircraft fueling and storage operators 

 General aviation aircraft owners 

 General aviation hangar owners and tenants 

 Fixed base operators 

 Air tour operators 

 Air ambulance and rescue operators 

 Flight schools 

 Flying clubs/Civil Air Patrol 

 Military users and tenants of the airport 

 Rental car operators 

 Parking lot operators 

 Concessionaires 

 Ground transportation companies (taxi, shuttle bus, limousine operators, and public 

transportation) 

Groups and individuals from within the airport sponsor’s organization: 

 Airport board or similar executive group 

 Airport executive director or manager 

 Airport executive management team (operations director, engineering/planning 

director, maintenance director, finance director, and others. 

 Airport senior line operations and line maintenance personnel 

 Airport senior fire and safety officer 

FAA personnel from these offices: 

 Airports District Office 

 Air Traffic Organization 

 Airport Traffic Control Tower 

 Regional Technical Operations 

 System Management Office 

 Regional Flight Standards 

 Runway Safety Office 

 Flight Procedures Office 

 NAS Implementation Center 

 Flight Service Station 

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Resource agencies and other governmental units with regulatory or review authority: 

 Federal Inspection Service agencies 

 Federal agencies with responsibility for affected resources 

 Transportation Security Administration 

 Federal, state, regional, and local air quality, water quality, and wildlife agencies 

 Representatives of local political jurisdictions 

 State, regional, metropolitan and local planning office 

 State, regional, metropolitan and local transportation and land use planning agencies 

 State aeronautics office 

 State and local environmental regulatory authorities 

 Native American and Alaska Native tribes and pueblos 

 On-airport law enforcement agency 

 Local fire and police departments 

Other interested groups: 

 Private land owners and developers 

 Airport hotel and business associations 

 Local tourism board or authorities 

 Chamber of Commerce and other economic development groups 

 Citizens and others with a strong economic or social tie to the airport 

 Non-government organizations 

 Neighborhood associations 

 Traveling public 

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Appendix D Consideration of Environmental Factors in Airport 

Master Planning 

1. INTRODUCTION 

This appendix presents practices that can be applied to airport master planning to make the 

planning process and subsequent environmental analysis more efficient. A more integrated and 

efficient planning and decision making process should reflect environmental values, result in less 

delay, and avoid conflicts in the completion of needed airport development. 

The consideration of environmental factors by Federal agencies is delineated in Council on 

Environmental Quality (CEQ) regulations implementing the National Environmental Policy Act 

(NEPA), reference 40 CFR 1500.5(a) and 1501.2. The NEPA statute and CEQ regulations 

require all Federal agencies to integrate the NEPA process with other planning at the earliest 

possible time. This is to ensure that planning and decisions reflect environmental values. CEQ 

regulations require Federal agencies to “utilize a systematic, interdisciplinary approach which 

will insure the integrated use of the natural and social sciences and the environmental design arts 

in planning and in decision making which may have an impact on man’s environment.” Doing 

this early in the planning process helps incorporate environmental factors in project planning and 

development, avoid delays and second-guessing later in the NEPA process, and can head off 

potential conflicts. 

This guidance is not intended to make master planning a part of the NEPA process. It is to 

ensure that supportable and consistent planning data and environmental, technical, economic and 

other planning analyses are provided for use in FAA decision making. Airport planning provides 

the basis for a project’s purpose and need in environmental evaluation and the alternatives that 

the FAA will carry into its NEPA analysis. 

a. Applicability 

This guidance is primarily intended for complex and controversial undertakings such as 

capacity projects at larger airports. It may also be helpful in the planning of projects 

smaller in scope, and should be reviewed prior to starting an airport master plan that has 

the potential to impact resources. It is intended for airport development professionals 

(e.g., planners, environmental specialists, project managers, engineers) employed by 

airport sponsors, consultants, FAA and state agencies. 

b. Clarifications 

When this document refers to airport planners it means individuals engaged in airport 

planning, no matter their specific job title. When the document refers to environmental 

specialists it means individuals engaged in environmental analysis or review, no matter 

their specific job title. When the document refers to engineers it means individuals 

engaged in engineering, no matter their specific job title. The term “project (program) 

manager” is not used, although it is recognized that many organizations employ “project 

managers” in airport planning, environmental analysis, and engineering. 

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2. PRACTICE AND PROCESS 

a. Background 

This section summarizes the key points of NEPA as it relates to project planning. When 

the term “agency” is used, it refers to Federal agency. 

CEQ regulations require agencies to identify environmental effects and values in 

adequate detail so they can be compared to economic and technical analyses. Agencies 

must study, develop and describe appropriate alternatives to recommended courses of 

action in any proposal that involves unresolved conflicts concerning alternative uses of 

available resources. To permit these, environmental analysis must be integrated early in 

planning along with other planning analyses. 

In cases where actions are planned by private applicants or other non-Federal entities 

before Federal involvement, agencies must ensure that 1) policies or designated staff are 

available to advise potential applicants of studies or other information likely required for 

later Federal action; 2) applicants are aware of the Federal agencies need to consult with 

State and local agencies and Indian tribes and with interested private persons and 

organizations when its own involvement is reasonably foreseeable; and 3) the Federal 

agency commences its NEPA process at the earliest possible time after the project 

proponent or sponsor has completed planning sufficient to allow environmental impact 

analysis. 

b. Timing of Airport Planning and Environmental Analysis 

Environmental considerations are integral to the planning process, and should be 

identified and evaluated at the same time as economic and technical analyses and prior to 

commencing preparation of an EA or EIS. This will assist in defining those projects that 

are reasonably foreseeable, and therefore may be subject to the NEPA analysis. 

Airport planning should be complete or nearly so when the airport sponsor begins 

preparing its EA or FAA begins preparing its EIS. If a sponsor selects a recommended 

alternative and completes its planning process before beginning environmental 

processing, the FAA is not obligated to select that recommended alternative as its 

preferred alternative. FAA will select its preferred alternative during the NEPA process. 

Starting preparation of a NEPA document immediately after the completion of planning 

may improve the likelihood that aviation forecast and modeling data remain current 

during the environmental analysis process. In the case of an Environmental Impact 

Statement, the start of the NEPA process would be considered the issuance of a Notice of 

Intent to prepare the EIS. For an Environmental Assessment, the start of the NEPA 

process (for the purpose of this guidance) should be considered the earlier of: the 

approval of an AIP grant for the EA; or the initiation of the environmental resource 

agency/community coordination. The airport sponsor and FAA should always complete 

(and document) the following prior to commencing preparation of an EIS or EA. 

 Local aviation forecasts that are current and approved by the FAA 

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 Justification of the scope and timing of the project’s planned facilities based on 

airport planning, operational requirements, and design standards 

 Identification and consideration of all reasonable planning alternatives (within the 

sponsor’s or FAA’s jurisdiction), eliminating (and documenting) those not meeting 

the stated aeronautical need. If an alternative does potentially meet the aeronautical 

need, but is not considered reasonable, provide sufficient explanation as to why not 

 Tentative identification of studies or other information likely required for later 

Federal action, as well as appropriate State and local agencies, Indian tribes, private 

persons and organizations likely to have an interest in the project. 

Also, it is important that only those alternatives that have aeronautical utility (i.e., can be 

built and operated safely) are forwarded for analysis under NEPA. Sometimes it may be 

necessary to conduct airspace reviews (during planning) of various planning alternatives 

to determine their aeronautical utility and safety. 

Additional discussion on forecasts, project requirements and alternative analysis is 

included below. 

c. Local Governmental and Community Involvement in Airport Planning 

Establishing long-term cooperative consultation between the airport sponsor and local, 

regional, and state governments and planning organizations with land use, zoning, and 

surface access responsibilities can improve consistency between community and airport 

planning. This consultation makes it easier to gain local agreement on individual airport 

projects. Such consultation enables the airport sponsor to voice its interests in future land 

compatibility, obstruction control, and surface transportation access. Local planners 

benefit by learning airport needs for the promotion of community access and the local 

economy. Information on the future airport expansion and improvement contained in an 

airport master plan should be incorporated into the development of comprehensive land 

use plans to ensure land use compatibility around airports. 

History shows that successful projects involve the community early in airport master 

planning. This involvement educates and informs local citizens, and allows them to 

provide constructive input to guide the airport sponsor and FAA decision-making. 

Community involvement during master planning should include information on the 

airport’s proposed project, its aviation need (problem) and possible alternative ways to 

address the need. Input should be solicited and questions from the community should be 

encouraged. Input received should be considered and timely responses to questions 

raised should be provided. The community includes the public and local government in 

the vicinity of the airport, including Native American Tribal Organizations, metropolitan 

and regional planning organizations, and airport businesses and tenants. 

Community involvement in the planning process, as described above, should ensure 

community awareness of proposed action prior to commencing preparation of an EA or 

EIS. The NEPA process should not be the first time that the community hears about the 

proposal. Community involvement during planning is a natural part of good planning 

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and is separate and distinct from public comment under NEPA. In developing a 

community involvement process, the airport sponsor should strike a balance between 

soliciting meaningful participation and keeping the master plan process on track. 

Depending on the scope of the project and the degree of anticipated controversy, 

community involvement specialists may need to become involved. Early involvement is 

critical to getting a sense of perspective about where and how the airport fits within the 

community and what concerns the community has and why. Such involvement may be 

needed to develop local agreement, which is often necessary to secure support from local 

officials for the project. A public consultation plan should be prepared identifying the 

type, number, and timing of public forums and identifying the public sector(s) having 

concerns about the proposal. It is essential that the community be advised as to its role 

throughout the planning process. 

AIP grant assurances require that airport sponsors take appropriate action, to the extent 

reasonable, to restrict the use of land adjacent to airports to activities consistent with 

normal airport operations. Zoning authorities should be strongly encouraged to put 

height limits in place to protect current and planned aircraft approaches. The airport 

sponsor should also emphasize to local officials the importance of zoning for airportcompatible land use, including noise sensitive areas and airport design surfaces, so that 

the airport may remain a transportation asset to the community. In addition, frequent 

coordination with local, regional, and state organizations responsible for surface 

transportation planning helps ensure that improvements in airport capacity are matched 

with commensurate improvements in surface access. 

The “FAA Community Involvement Manual”, document FAA-EE-90-03, should be 

consulted to help develop a community involvement program. This manual can be 

accessed in the “Communications Tools” section of the Airport Noise Compatibility 

Planning Toolkit at 

http://www.faa.gov/about/office_org/headquarters_offices/aep/planning_toolkit/. There 

are a number of State DOTs that have similar guidance. Additional discussion on 

community involvement can be found under the “Community Consultation” section of 

the FAA document “Best Practices Guide-Initiative 6 to May 2001 Report to Congress 

on Streamlining the Environmental Process,” which is available at 

http://www.faa.gov/airports_airtraffic/airports/environmental/. 

d. FAA Role in Airport Master Planning 

The primary responsible party for airport master planning is the airport sponsor. 

However, early coordination with FAA is essential to efficient project management. 

FAA is involved in airport planning to ensure that proposed airport development is safe, 

has utility, and meets airport design standards, and identifies obvious issues that could 

become environmental concerns. Additionally, if Airport Improvement Program (AIP) 

money is needed, FAA ensures that the scope and timing of the proposed development is 

appropriate for Federal financial participation. FAA carries out these requirements 

through the following actions: 

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 Review and approval of local aviation forecasts and design aircraft 

 Review and approval of site selection studies 

 Review and approval of airport layout plans, including completion of airspace 

studies* 

 Review the adequacy of the planning alternative analysis for incorporation into the 

subsequent NEPA Analysis 

 Review of capital improvement planning 

*Refer to the FAA “Community and Environmental Needs Division” memorandum of 

November 18, 2003 for guidance on how to treat airport layout plans that show proposed 

development that is undergoing NEPA analysis and review. 

When AIP funds are involved, FAA ensures that the scope of a project’s planned 

facilities is justified. 

Finally, FAA reviews master plan work scopes where the airport sponsor is seeking AIP 

or Passenger Facility Charge (PFC) funds to help finance preparation of the master plan. 

e. EIS Conceptual Engineering 

For complex projects, it is often necessary to conduct some engineering analysis to 

enable the airport sponsor and/or the FAA to make planning and environmental 

decisions. To avoid prejudging alternatives, the engineering should be limited to that 

necessary to: 

 Define alternatives within FAA or sponsor’s jurisdiction for environmental analysis 

 Assess aeronautical safety and utility of these alternatives 

 Comparatively analyze environmental impacts 

 Inform the public and environmental resource agencies 

 Identify potential environmental mitigation during the environmental analysis, and 

 Determine the order of magnitude of project costs 

Early in the planning process, airport planners, environmental specialists and engineers 

should agree to the appropriate extent of conceptual engineering effort, the responsible 

parties for the effort, and the schedule for accomplishing such engineering. 

f. Facility Requirements/Purpose and Need 

“Facility requirements” is a term used in airport planning to describe the development 

required to address documented airport needs. The analysis and documentation 

supporting the facility requirements are normally contained in an airport master plan. 

This analysis needs clearly to define the aviation problem(s) and why the airport needs to 

solve it (them). Care should be taken that the facility requirements are not so narrowly 

defined so that they unreasonably point to a single solution. 

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“Purpose and Need” is a NEPA term that refers to a section of an environmental 

document, which describes the purpose of, and need for, the proposed Federal action. 

The problem to be addressed is identified (need), the requested Federal action is noted as 

a possible solution to the problem (purpose), and information that supports that a problem 

exists is presented (or referenced). 

FAA planners should ensure that the “Facility Requirements” analysis provides 

information sufficient to provide a basis for describing the “Purpose and Need” for 

proposed Federal actions. FAA environmental professionals can be helpful in 

determining the adequacy of “Facility Requirements” documentation for use in defining 

purpose and need under NEPA. 

As always, projects that are seeking AIP or PFC funding need to be justified on 

aeronautical grounds. Economic development should not be a basis for justifying AIP or 

PFC assistance. 

g. Alternative Analysis 

The master plan is not intended to establish a single project alternative for NEPA 

evaluation, but to identify alternatives that meet the airport’s aeronautical needs. It may 

establish the sponsor’s recommended alternative. It should consider all reasonable 

alternatives normally within the jurisdiction of the airport sponsor and the FAA, 

including operational alternatives. Those alternatives that do not meet the planning need 

(i.e., facility requirements), or are not feasible or prudent, should be dismissed, with the 

reasons for dismissal appropriately documented in the master plan. This should include 

reasons why planning did not consider alternatives that avoided or minimized 

environmental areas or conditions contributing to extensive mitigation. The master plan 

should also document the justification for any sponsor recommended alternative, as well 

as the reasons for not recommending others. An airspace review (i.e., NRA case) of 

alternatives may be necessary to determine if alternatives can be built and are 

operationally feasible before their environmental impacts are evaluated in a NEPA 

document. A preliminary cost estimate, similar in detail to cost estimates normally

prepared in master plans and depicted in capital improvement plans, should be developed 

for all alternatives to be analyzed in a NEPA document. 

Unlike the master plan, a NEPA document may consider alternatives that are not within 

the jurisdiction of the airport sponsor or the FAA, such as the development of alternative 

airports or the use of other transportation modes. As stated previously, NEPA requires 

Federal agencies to “utilize a systematic, interdisciplinary approach which will insure the 

integrated use of the natural and social sciences and the environmental design arts in 

planning and decision making which may have an impact on man’s environment.” In 

preparing NEPA documents, FAA typically considers environmental impact, cost and 

other factors in its alternative analysis. It is possible that during the NEPA process, FAA 

will identify alternatives not previously considered during the planning process. Airport 

planners should be called on to advise the environmental specialists on whether 

additional alternatives developed during the NEPA process meet planning needs and can 

be constructed and operated safely and efficiently. 

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h. Currency of Aviation Forecasts 

A master plan uses locally generated aviation forecasts as the basis for identifying the 

need and timing of airport development. FAA reviews the local forecasts and forecast 

methodology to ensure that they are appropriate and that they provide an adequate 

justification for the scope, and timing of proposed airport development. Local forecasts 

developed in a master plan can be adopted for use in an environmental impact analysis 

provided that the FAA has approved them. FAA field offices can approve local forecasts 

if the forecast methodology is reasonable and the forecast is consistent with the FAA’s 

Terminal Area Forecast (TAF) or differences with the TAF have been resolved by the 

FAA. Consistency with the TAF is discussed in separate planning guidance provided by 

the FAA, which also has special provisions for FAA approval of forecasts at lower 

activity general aviation airports. It is important that the local forecasts of aircraft 

activity and enplanements used in NEPA analysis were recently approved by the FAA 

and, in the process of approving these forecasts, the most recent published TAF was used 

for comparison. 

It is also important that the same forecasts be used throughout project formulation 

including project justification, airfield modeling, environmental analysis, and benefit cost 

analysis. Where updated forecasts are approved, or separate forecasting used, the new 

information should be clearly distinguished from a prior forecast. 

3. TOOLS 

a. Planning Team 

Airport planners, environmental specialists, and engineers should work together 

throughout the project formulation and development processes. This includes from the 

beginning of the master plan, through the preparation of an EA or EIS and subsequent 

decision document, as well as through design and construction to ensure that mitigation 

measures are properly accomplished. The team should first meet with the airport sponsor 

during pre-planning to insure that important issues are identified early. The extent of 

planner, environmental specialist and engineer involvement would depend on project 

complexity and controversy. 

When preparation of an EA or EIS is anticipated, environmental specialists should take 

an active role in determining the adequacy of the master plan’s alternative analysis. This 

ensures that the master plan and the EA or EIS are consistent in data and in rationale on 

the reasonable alternatives. In addition, the environmental specialist may assist the 

airport planner in reviewing the scope of work for the master plan relative to the scope of 

environmental work to be performed, provide guidance on developing the overview of 

sensitive environmental features, assist in developing and conducting the public 

consultation and help in deciding that project justification is sufficient to develop a strong 

and clear purpose and need statement in the EA or EIS. The airport sponsor’s planning 

consultant should include, as part of their team, a specialist familiar with NEPA and 

environmental analysis requirements for airport projects. 

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The airport planner’s role in the NEPA process is to: review the planning aspects of the 

NEPA document for accuracy and consistency with airport planning, design standards, 

operational requirements and land use compatibility considerations; review the adequacy 

of discussions of technological solutions that address the purpose and need; and review 

the consistency of the local aviation forecasts with the TAF and with the aviation 

forecasts used in other project documents. 

During the planning and environmental analysis, engineers should provide conceptual 

engineering, if required, provide “planning-level” project cost estimates, and if required 

determine the constructability of various alternatives, including construction sequencing 

and timing. 

b. Overview of Environmental Features 

A recommended practice for the airport sponsor/consultant is to prepare an “overview of 

environmentally sensitive features of an airport” as part of the airport master plan. Such 

an overview can help an airport sponsor judge if the airport’s environmental features 

affect day-to-day decisions as well as longer-term development strategies. The level of 

detail would be airport specific as determined by the sponsor and its consultant after 

consultation with the local FAA Airports office. The overview should include readily 

available information including: 

 Items known from prior environmental and planning documents, and from the 

expertise of environmental professionals, community planners, and resource agencies 

 Items that can be easily seen during a walking survey of the airport or off-airport area. 

 Information from various types of available environmental resource maps of the 

airport area. 

The findings from the literature search and airport walking survey should be documented. 

This overview is not intended to substitute for the “Affected Environment” section of an 

EA or EIS. It is intended to provide information on, or an overview of obvious 

environmental resources, which could affect the planning of the proposed development. 

Therefore, it is not necessary to carry out substantial investigations such as cultural 

resource studies or wetland delineations in order to define all environmental factors 

needed for master planning. If an airport sponsor wishes to conduct such detailed studies 

under a master plan, the local FAA Airports office should be consulted. If concurrence is 

provided the FAA should work with the sponsor to ensure that the selected consultant is, 

or selected consultants are, experienced in the discipline(s) being investigated. 

The overview should also include easily seen and/or readily documented environmental 

features and resources beyond the airport property line. The area of consideration beyond 

the property line will vary depending on the environmental resource. For noise, it may be 

set at the DNL 65 dB contour, while for coastal zones it may stretch well beyond the 

airport boundaries. A text of the environmental overview should be included in the 

master plan report together with appropriate graphics. Sensitive features may also be 

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shown on a separate ALP drawing. Attachment 3 to this appendix lists suggested 

features that may be included as parts of the overview. Information on land uses or 

features that surround the airport and whether or not such uses are zoned compatibly with 

aviation uses should also be included. If not zoned compatible, the reasons should be 

investigated and the sponsor should provide information on its efforts to promote 

aviation-compatible land uses near the airport. 

The master plan report and/or ALP should note the source (i.e., May 2004 walking 

survey, NWI maps, 2003 regional land use plan, etc.) of flood plain, wetland, or cultural 

resource information that is presented. This will ensure that resource data that is 

approximate, such as wetland locations based on a recent walk-through or older NWI 

maps, is identified as approximate data. For example, a possible ALP note for wetlands 

is: “Wetland areas bounded by dashed lines are based on an April 2003 NWI map and 

March 19, 2004 walk-through of the area. The walk-through suggests wetland presence 

due to standing water and certain vegetation. The NEPA analysis will include a wetland 

delineation of that area, if alternatives under consideration are located in this area.” 

This information will alert planning and environmental reviewers of the possible 

presence of sensitive resources. As a result, further investigation of these areas during 

the NEPA process may be necessary. Project layout or design could change based on 

further information obtained during preparation of a NEPA document. The master plan 

report and/or ALP should clearly note if the environmental overview uses data more than 

five years old or of questionable quality. 

An environmental overview may provide the information necessary to: 1) determine if 

additional alternatives are needed to avoid or minimize the impact of the project to 

sensitive environmental features; 2) define future environmental coordination and 

analysis work to develop more thorough work scope for an EA or EIS and; 3) properly 

understand the anticipated costs of preliminary/final design as well as how best to 

estimate the cost of and schedule for the NEPA process. 

c. Electronic Data Information Systems 

Airport sponsors typically have a great deal of spatial information to support 

infrastructure development. Although electronic data sources such as Computer Aided 

Design (CAD), Geographic Information Systems (GIS), and other spatial data formats are 

common, there is often redundancy due to a lack of knowledge about existing data sets 

and differing standards. A common data source is more efficient in the identification of 

environmentally sensitive features such as residential areas, parks, and hazardous waste 

sites and in quantifying the potential impact of various proposed development. 

Therefore, airport sponsors should consider developing an electronic spatial data standard 

for all planning, environmental, and engineering documents. Although GIS is typically 

used to implement such a standard, also consider other options that may offer more ready 

access and basic skill requirements should be considered. 

Notwithstanding the above, hard copies of ALP drawings and master plan reports shall be 

provided for FAA retention and use. 

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If AIP or PFC funds are to be used for the development of a GIS or similar format, the 

scope of the GIS development should be discussed with the FAA to ensure that eligibility 

is established. See FAA Order 5100.38, Airport Improvement Program Handbook. The 

GIS should be in a standard format that is consistent with the data formats used by the 

surrounding units of government. 

d. If AIP or PFC funds are to be used for the development of a GIS or similar format, the 

scope of the GIS development should be discussed with the FAA to ensure that eligibility 

is established. See FAA Order 5100.38, Airport Improvement Program Handbook. The 

GIS should be in a standard format that is consistent with the data formats used by the 

surrounding units of government. 

4. NEPA DOCUMENTS OF OTHER FEDERAL AGENCIES 

An airport development proposal may require that a Federal agency other than the FAA is the 

lead agency for NEPA purposes. Although this usually involves development by a military 

entity, such as the Air National Guard, it may involve such actions as a roadway funded by the 

Federal Highway Administration, an apron/hangar for the U.S. Forest Service, or a recreational 

area by the Army Corps of Engineers. The master plan should recognize such proposed 

development, ensuring that the proposal is an appropriate use for the airport, and that the FAA’s 

Federal actions associated with the development, such as ALP revisions or approval of land 

releases, are adequately addressed in the lead agency’s NEPA document. The master plan 

should also describe how the proponent’s potential plans would ultimately affect the airport 

sponsor’s proposed airport development. FAA’s environmental role will vary from project to 

project. Normally the FAA will be either a joint lead agency, or at least a cooperating agency 

during the preparation of an environmental document. The “other” Federal agency should come 

to FAA early to see what we look for in our environmental documentation and processing. Some 

laws, such as Section 4(f) of the DOT Act, or policies, such as noise, apply to FAA but not to 

other agencies, and must be addressed in the NEPA document. 

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ATTACHMENT D-1 

ENVIRONMENTAL OVERVIEW FOR MASTER PLAN PURPOSES 

Air Quality Classification Attainment Area: 

Non-attainment Area: 

 List Pollutant(s): 

Maintenance Area: 

 List Pollutant(s): 

Bay: 

Creek: 

Ocean: 

Pond: 

Wetlands: 

Floodplains: 

Potable Water Aquifer: 

Sole-Source Aquifer: 

Habitat-Endangered/Threatened Species: 

Drinking Water Reservoir: 

Aquatic Concerns 

Pond: 

River: 

Streams: 

Other: 

Terrestrial Concerns Contaminated Areas: 

Habitat-Endangered/Threatened Species: 

Farmland, Prime and Unique: 

Hazardous Material Storage Areas: 

Landfills: 

Cultural Historic Properties*: 

Archeological Resources: 

Parks: 

Wildlife Refuges: 

Residential Areas: 

Noise Sensitive Areas (church, school, hospital, etc.): 

Other: 

Land Use Concerns Traffic: 

Noise: 

Lighting: 

Obstructions: 

Environmental Justice: 

Zoning: 

*Historic resources should be identified but the planning consultants should be wary of disclosing some 

information due to the sensitivity certain parties (i.e., Native Americans, Native Hawaiians) attach to these 

resources. A discussion should be held with these parties to decide if maps should include the identified 

resources. 

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Appendix E Airport Site Selection 

1. GENERAL 

a. In some cases, the planner may determine that the existing airport cannot be expanded to 

meet the future demand and that a new or supplemental airport may be needed. In these 

cases, it may be necessary to look for a new airport site. The process of identifying, 

evaluating, and selecting new airport sites is very similar to the process of identifying, 

evaluating, and selecting alternatives for individual airport projects. 

b. A comparison of new airport sites with the alternative of continuing operations at the 

existing airport may have been completed during the master plan alternatives analysis. In 

these cases, the site selection process may be a refinement of the preliminary 

investigation of alternatives for the existing airport. A site selection process may also 

result from the need for a new airport identified in a regional or state system plan study. 

c. Prior to initiating a detailed site selection study, the planner should collect data that 

justifies the need for the new airport and its viability. Community and user support, 

along with an airport sponsor’s legal and financial capability to build and operate the new 

airport, should be documented. There should be a consensus among Federal, state and 

local officials as to the intended role of the new airport, at least to the extent that its 

requirements and size can be determined. However, this does not rule out changing the 

role of the new airport as a result of the study findings. 

 2. SITE SELECTION PROCESS OVERVIEW 

a. The scope of the site selection process will vary with the size, complexity, and role of the 

new airport. The sophistication of the analysis and the complexity of the decision 

making process can vary greatly. 

b. If the planner determines that a new airport is needed, he or she should develop initial 

criteria that can be used to evaluate different sites and determine if each can function as 

an airport and meet the needs of the community and users. Such criteria might include 

that the sites are within a certain radius of the existing airport and are of a minimum size 

in terms of land area. 

c. Once the preliminary sites have been identified, a screening process should be applied to 

each site. An evaluation of all potential sites that meet the initial criteria should be 

conducted, screening out those with the most obvious shortcomings. Screening factors 

might include topography, natural and man-made obstructions, airspace, access, 

environmental impacts, and development costs. If any sites are eliminated from further 

consideration, thorough documentation of the reasons for that decision is encouraged and 

will facilitate the subsequent environmental processing. 

d. The remaining potential sites should then undergo a detailed comparison using 

comprehensive evaluation criteria. While the criteria will vary, the following should be 

considered: 

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 Operational Capability – the site should provide the operational capability necessary 

to serve the defined role of the airport and the needs of its users 

 Capacity potential – If the new airport is needed to provide additional capacity, the 

capability of the site in providing long-term capacity growth is important. 

 Ground access – an important factor is the ability of the users to get to and from the 

airport easily and in a timely manner. 

 Development Costs – Simple cost estimates are useful in determining the financial 

feasibility of building a new airport. 

 Environmental Consequences – The potential environmental impacts associated with 

a new site may be critical to gaining approval. 

Consistency with Area-wide Planning – The site should be consistent with regional and local 

land use and transportation plans. 

e. While a weighting of the evaluation criteria and a weighted ranking of the alternative 

sites may be used in selecting a site, planners should use caution in applying this 

technique since it introduces an element of subjectivity into the analysis. They should 

focus on providing decision makers with information on the various sites in a manner that 

is understandable and unbiased. 

f. The site finally selected will be subject to the review of alternatives as required under 

NEPA. Planners will then make commitments on specific environmental mitigation 

measures. The selection will probably receive scrutiny through public information 

sessions, review by policy and advisory committees, and at public hearings. 

g. The planner should not assume that the site selection process described here conclusively 

results in the selection of the best site. Overriding political, jurisdictional, institutional, 

environmental or financial considerations may influence the decision makers’ choice of 

sites. 

3. SITE APPROVAL 

a. Once a site is selected, timely site approval by the airport sponsor who will develop and 

operate the new airport is important. Such action will permit the prompt establishment of 

the airport while the decision-making apparatus is politically and organizationally intact. 

b. If state and regional approval procedures have been followed, an important next step will 

be Federal approval. FAA approval is necessary if planners intend to seek Federal 

financial assistance under the AIP for follow-on planning or site acquisition and 

development. Such approval must be supported by appropriate environmental 

documentation, public hearings, and evidence that the proposed airport will be reasonable 

consistent with local planning. The FAA must approve the selected site before any 

additional planning work is started. 

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c. Regardless of the applicability of Federal financial assistance in the planning or 

development of the airport, the FAA will advise on the aeronautical suitability of the site 

after having studied the site from the standpoint of airspace use as required by 14 CFR 

Part 157, Notice of Proposed Construction, Alteration, Activation, and Deactivation of 

Airports. 

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Appendix F Airport Layout Plan Drawing Set 

The following list provides general guidelines in preparing the Airport Layout Plan drawing set. 

The individual sheets that comprise the Airport Layout Plan drawing set will vary with each 

planning effort. During the project scoping activities, planners must determine which sheets will 

be necessary. Checklists from FAA Regional and District Offices and many state aviation 

offices may supplement the guidance provided in this Appendix. Since these checklists are 

comprehensive, not all items will be applicable to a specific project. 

1. AIRPORT LAYOUT DRAWING 

a. Sheet size – Minimum 24” x 36” 

b. Scale –Within a range of 1” = 200’ to 1” = 600’ 

c. North Arrow 

1) True and Magnetic North 

2) Year of the magnetic declination 

3) Orient drawing so that north is to the top or left of the sheet 

d. Wind Rose 

1) Data source and the time period covered 

2) Include individual and combined coverage for: 

a) Runways with 10.5 knots crosswind 

b) Runways with 13 knots crosswind 

c) Runways with 16 knots crosswind 

d) Runways with 20 knots crosswind 

e. Airport Reference Point (ARP) – Existing and ultimate, with latitude and longitude to the 

nearest second based on NAD 83 

f. Ground contours at intervals of 2’ to 10’, lightly drawn 

g. Elevations (Existing and Ultimate to 1/10 of a foot) 

1) Runway 

2) Displaced thresholds 

3) Touchdown zones 

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4) Intersections 

5) Runway high and low points 

6) Roadways where they intersect the RPZ edges and extended runway centerlines 

7) Structures on Airport--If a terminal area plan is not included, show structure top 

elevations on this sheet. 

h. Building limit lines – Show on both sides of the runways and extend to the airport 

property line or RPZ. 

i. Runway Details (Existing and Ultimate) 

1) Dimensions – length and width within the outline of the runway 

2) Orientation – Runway end numbers and true bearing to the nearest 0.01 degree 

3) Markings 

4) Lighting – Threshold lights only 

5) Runway Safety Areas--Dimensions may be included in the Runway Data Table 

6) End Coordinates – Note near end (existing and ultimate) of each runway end, to 

nearest 0.01 second 

7) Displaced threshold coordinates, to the nearest 0.01 second 

8) Declared Distances – For each runway direction if applicable. Identify any 

clearway/stopway portions in the declared distances 

j. Taxiway details (Existing and Ultimate) 

1) Taxiway widths and separations from the runway centerlines, parallel taxiway, 

aircraft parking, and objects 

k. RPZ Details (Existing and Ultimate) 

1) Dimensions 

2) Type of property acquisition (fee or easement) 

l. Approach slope ratio (20:1; 34:1; 50:1) 

m. Airport Data Table (Existing and Ultimate) 

1) Airport elevation (MSL) 

2) Airport Reference Point data 

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3) Mean maximum temperature 

4) Airport Reference Code for each runway 

5) Design Aircraft for each runway or airfield component 

n. Runway Data Table (Existing and Ultimate) 

1) Percent effective gradient 

2) Percent wind coverage 

3) Maximum elevation above MSL 

4) Runway length and width 

5) Runway surface type 

6) Runway strength 

7) FAR Part 77 approach category 

8) Approach type 

9) Approach slope 

10) Runway lighting (HIRL, MIRL, LIRL) 

11) Runway marking 

12) Navigational and visual aids 

13) RSA dimensions 

o. Title and Revision Blocks 

1) Name and location of the airport 

2) Name of preparer 

3) Date of drawing 

4) Drawing title 

5) Revision block 

6) FAA disclaimer 

7) Approval block 

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p. Other 

1) Standard legend 

2) Existing and Ultimate airport facility and building list 

3) Location map 

4) Vicinity map 

2. AIRPORT AIRSPACE DRAWING 

a. Plan view of all FAR Part 77 surfaces, based on ultimate runway lengths 

b. Small scale profile views of existing and ultimate approaches 

c. Obstruction data tables, as appropriate 

d. Sheet size – same as the airport layout drawing 

e. Scale – 1” = 2,000’ for the plan view; 1” = 1,000’ for approach profiles; and 1” = 100’ 

(vertical) for approach profiles 

f. Title and revision blocks - same as the airport layout drawing 

g. Approach Plan View Details 

1) USGS for base map 

2) Show runway end numbers 

3) Include 50’ elevation contours on all slopes 

4) Show the most demanding surfaces with solid lines and others with dashed lines 

5) Identify top elevations of objects that penetrate any of the surfaces. For objects in the 

inner approach, add note “See inner portion of the approach plan view for close-in 

obstructions.” 

6) For precision instrument runways, show balance of 40,000’ approach on a separate 

sheet. 

h. Approach Profile Details 

1) Depict the ground profile along the extended runway centerline representing the 

composite profile, based on the highest terrain across the width and along the length 

of the approach surface. 

2) Identify all significant objects (roads, rivers, and so forth) and top elevations within 

the approach surfaces, regardless of whether or not they are obstructions 

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3) Show existing and ultimate runway ends and FAR Part 77 approach slopes. 

3. INNER PORTION OF THE APPROACH SURFACE DRAWING 

a. Large scale plan views of inner portions of approaches for each runway, usually limited 

to the RPZ areas 

b. Large scale projected profile views of inner portions of approaches for each runway, 

usually limited to the RPZ areas 

c. Interim stage RPZs when plans for interim runways extensions are firm and construction 

is expected in the near future 

d. Sheet size – Same as Airport Layout drawing 

e. Scale – Horizontal 1” = 200’; vertical 1” = 20’ 

f. Title and revision blocks – Same as for Airport Layout drawing 

g. Plan View Details 

1) Aerial photos for base maps 

2) Numbering system to identify obstructions 

3) Depict property line 

4) Identify, by numbers, all traverse ways with elevations and computed vertical 

clearance in the approach 

5) Depict the existing and ultimate physical end of the runways. Note runway end 

number and elevation 

6) Show ground contours, lightly drawn 

h. Profile View Details 

1) Depict terrain and significant items (fences, roadways, and so forth) 

2) Identify obstructions with numbers on the plan view 

3) Show roads and railroads with dashed lines at edge of the approach 

i. Obstruction Table Details 

1) Depict terrain and significant items (fences, roadways, and so forth) 

2) Identify obstructions with numbers on the plan view 

3) Show roads and railroads with dashed lines at edge of the approach 

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4) Prepare a separate table for each RPZ 

5) Include obstruction identification number and description, the amount of the approach 

surface penetration, and the proposed disposition of the obstructions 

4. TERMINAL AREA DRAWING 

The need for this drawing will be decided on a case-by-case basis. For small airports, where the 

Airport Layout drawing is prepared to a fairly large scale, a separate drawing for the terminal 

area may not be needed. 

a. Large scale plan view of the area or areas where aprons, buildings, hangars, and parking 

lots are located 

b. Sheet size – Same as Airport Layout drawing 

c. Scale – Range of 1” = 50’ to 1” = 100’ 

d. Title and revision blocks – Same as for Airport Layout drawing 

e. Building Data Table – To list structures and show pertinent information about them. 

Include space and columns for: 

1) A numbering system to identify structures 

2) Top elevation of structures 

3) Existing and planned obstruction markings 

5. LAND USE DRAWING 

a. Include all land uses (industrial, residential, and so forth), on and off the airport, to at 

least the 65 DNL contour 

b. Sheet size – Same as Airport Layout drawing 

c. Scale – Same as the Airport Layout drawing 

d. Title and revision blocks – Same as for Airport Layout drawing 

e. Aerial base map 

f. Legend (symbols and land use descriptions) 

g. Identify public facilities (such as schools, parks, and othes) 

h. Drawing details – Normally limited to existing and future airport features (i.e., runways, 

taxiways, aprons, RPZs, terminal buildings and navigational aids)

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6. RUNWAY DEPARTURE SURFACES DRAWING 

a. Large scale plan views of departure surfaces for each runway end that is designated 

primarily for instrument departures. The one-engine inoperative (OEI) obstacle 

identification surface (OIS) should be shown for any departure runway end supporting air 

carrier operations. 

b. Large scale projected profile views of departure surfaces for each runway that is 

designated primarily for instrument departures. 

c. Sheet size – Same as Airport Layout drawing 

d. Scale – Horizontal 1” = 1000’; vertical 1” = 100’ (runway departure surfaces); and 

Scale – Horizontal 1” = 2000’; vertical 1” = 100’ (OEI obstacle identification surfaces) 

e. Title and revision blocks – Same as for Airport Layout drawing 

j. Plan View Details 

7) Aerial photos for base maps 

8) Numbering system to identify obstructions 

9) Depict property line, including easements 

10) Identify, by numbers, all traverse ways with elevations and computed vertical 

clearance in the departure surface 

11) Depict the existing and ultimate physical end of the runways. Note runway end 

number and elevation 

12) Show ground contours, lightly drawn 

k. Profile View Details 

4) Depict terrain and significant objects, including fences, roadways, rivers, structures, 

and buildings. 

5) Identify obstructions with numbers on the plan view 

6) Show roads and railroads with dashed lines at edge of the departure surface 

l. Obstruction Table Details 

6) Depict terrain and significant objects, including fences, roadways, rivers, structures 

and buildings 

7) Identify obstructions with numbers on the plan view 

8) Show roads and railroads with dashed lines at edge of the approach 

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AC 150/5070-6B Change 1 5/1/07

9) Prepare a separate table for each departure surface 

10) Include obstruction identification number and description, the amount of the 

departure surface penetration, and the proposed disposition of the obstructions 

7. AIRPORT PROPERTY MAP 

a. Sheet size – Same as Airport Layout drawing 

b. Scale – Same as the Airport Layout drawing 

c. Title and revision blocks – Same as for Airport Layout drawing 

d. Legend 

e. Data Table 

1) A numbering or lettering system to identify tracts of land 

2) The date the property was acquired 

3) The Federal aid project number under which it was acquired 

4) Type of ownership (fee, easement, federal surplus, and others) 

f. Show existing and future airport features (i.e., runways, RPZs, navigational aids and so 

forth) that would indicate a future aeronautical need for airport property. 

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