# o

U.S
. Departmen t offic e o f Airpor t Complianc

e 80 0 Independenc e Ave. , SW
. o f Transportatio n an d Fiel d Operation s Washington , DC 2059 1 Federa l Aviatio n Administratio n 

### FE B 

### 2 2 201 0 Certifie dMai l - Retur n Receip t Rebecc aE . Dupui s Natha n A . Hal l Shumaker , Loo p & Kendrick , LL P NorthCourthous e Squar e 100 0 Jackso n Stree t Toledo , O H 4360 4 EdwardW . Saue r Charle s F . Donley , II Squire , Sander s & Dempse y L.L.P . " 5 120 1 Pennsylvani aAvenue , N W^ Washington , D C 2000 4 -,1^ ; Robert J . Triozz i : ^ ^ City o f Clevelan dDepartmen t

o f La w E n 60 1 Lakesid e Avenue , Roo m10 6 ^ Cleveland , O H 4411 4 Z § Dea r Ms . Dupui s an dMessrs . Hall , Sauer , Donley , an dTriozzi : Re : Drak e Aeria l Enterprises , LLC , d/b/aAi r Americ aAeria l Ad s an dJame s Mille r v . City o f

Cleveland , FAA Docke t

No . 16-09-0 2 Enclose di s acop y o f

th e determinatio n o f

th e Federa l Aviatio n Administratio n (FAA ) wit hrespec t t o th e above-reference dmatter . W e findtha t

City o f Cleveland , owne r

an doperator

o f th e Burk e Lakefron t

Airport , i s no t

currentl y in violatio n o f

it s federal obligation s regardin g unjus t economi c discriminatio n a s se t fort hin it s airport gran t assurance s an dexistin g federal statute s withrespec t t o thi s complaint
. Accordingly, th e above-reference dmatte r i s dismissed
. Th e reason s for

dismissa l ar e se t

fort hin th e enclose dDirector' s Determination
. Sincerely ,

Randal l S . Fiert z Director , Offic e o f

Airport Complianc e an dFiel dOperation sCERTIFICAT E O FSERVIC E

I HEREB Y CERTIF Y tha t o n ^- ^ .^j<^0/ o , I cause dt o b e place di n th e Unite d State s mai l (firs t

clas s mail , postag e paid) , atru e cop y o f th e foregoin g documen t

addresse dto : Rebecc aE . Dupui s Natha n A . Hal l Shumaker , Loo p & Kendrick , LL P NorthCourthous e Squar e 100 0 Jackso n Stree t Toledo , O H 4360 4

Covmse l for Complainan t EdwardW . Saue r Charle s F . Donley , I I Squire , Sander s & Dempse y L.L.P . 120 1 Pennsylvani aAvenue , N W Washington , D C 2000 4 Robert J . Triozz i Cit y o f Clevelan dDepartmen t

o f Law 60 1 Lakesid e Avenue , Roo m10 6 Cleveland , O H 4411 4

Counse l for

Responden t Han dDelivere dto : Part 1 6 Airport

Proceeding s Docke t

Ajnn e Torgerso n O Offic e o f Airport Complianc e an d Fiel dOperation sUNITE D STATE S DEPARTMEN T O FTRANSPORTATIO N FEDERA LAVIATIO N ADMINISTRATIO N

WASHINGTON , D C Drak e Aeria l Enterprises , LL C d/b/ aAi r Americ aAeria l Ad s an d Jame s Mille r

COMPLAINAN T
Cit y o f Clevelan d RESPONDEN T Docke t No . 16-09-0 2

DIRECTOR' S DETERMINATIO N I . INTRODUCTIO N Thi s matte r

i s before th e Federa l Aviatio n Administratio n (FAA ) base do n aformal complain t filedi n accordanc e withth e Rule s o f Practic e fo r

Federally-Assiste dAirpor t Enforcemen t Proceedings , Title 1 4 Cod e o f Federa l Regulation s (CFR ) Part 16' . Jame s Miller , th e sol e membe r an dprimar y operato r

o f Drak e Aeria l Enterprises , LL C d/b/aAi r Americ aAeria l Ad s (Complainant) , filed aformal Complain t pursuan t t o 1 4 CF RPart

1 6 agains t th e Cit y o f Clevelan d(City o r

Respondent) , sponso r

an doperato r

o f Burk e Lakefron t

Airport (Airport o r BKL) . Th e Complainan t allege s th e Responden t

denie dit s reques t

t o conduc t

barmer towin g operation s fromBKL . Specifically , th e Complainan t allege s th e City i s i n violatio n o f 4 9 U.S.C . § 47107(a)(1 ) an dGran t Assuranc e 22 , Economi c Nondiscrimination
. Withrespec t

t o th e allegation s presente di n thi s Complaint , unde r th e specifi c circumstance s at th e Airport

a s discusse dbelo w an dbase do n th e evidenc e o f recor di n thi s proceeding , th e FAA finds th e Airport

i s not i n violatio n o f

it s Federa l obligation s at thi s time
. Th e FAA' s decisio n i n thi s matte r

i s base do n applicabl e Federa l la w an dFA A policy , revie w o f th e pleading s an d supportin g documentatio n submitte db y th e parties , reviewe db y th e FAA , whic hcomprise s th e Administrativ e Recor dreflecte di n th e attache dFA A Exhibi t 1 .

' Enforcemen

t procedure s regarding airpor t compliance matter s ma

y b e foun da t FA A Rule s o f

Practic e fo

r Federally AssistedAirpor

t Enforcemen

t Proceeding s (1 4 CF

RPar t 16) . Thes e enforcemen

t procedure s wer

e publishedi

n the Federa

l Registe r (6 1 P R53998 , Octobe

r 16 , 1996 ) an dbecam e effectiv e o n Decembe

r 16 , 1996 .II . PARTIE S

Th e Complainant , Jame s Miller , i s th e sol e membe r an dprimar y operato r

o f Drak e Aeria l Enterprises , LL C d/b/ aAi r Americ aAeria l Ads
. [FA A Exhibi t 1 , Ite m2 , ^3 ] H e i s currentl y authorize db y th e FA A t o conduc t banne r towin g operations
. [FA A Exhibi t 1 , Ite m2 , exhibi t

L , p . 9 ] Burk e Lakefron t

Airport (Airport ) i s apublic-us e airport ovvTie dan doperate db y th e Cit y o f Cleveland , Ohio
. Th e Airport , on e nautica l mil e northo f Cleveland , i s classifie da s agenera l aviatio n relieve r

airport with4 4 basedaircraf

t an d84,10 1 annua l operations
. Th e Airport ha s tw o nmway s an da

n ai r traffi c contro l tower . [FAA Exhibi t 1 , Ite m2 , exhibi t

D ] Th e plannin g an ddevelopmen t

o f th e Airport

ha s bee n financed, i n part , withfund s provide db y th e FA A imde r th e Airport

Improvemen t

Progra m(AIP) , authorize db y th e Airport an dAirway Improvemen t

Ac t o f 1982 , a s amended , 4 9 U.S.C . § 47101 , e t seq . Sinc e 1982 , th e Cit y ha s accepte d$4,869,32 9 i n Federa l AI P grant s for BKL . [FA A Exhibi t

1 , Ite m10 ] III . BACKGROUN D AN D PROCEDURA LHISTOR Y Factua l Backgroun d I n 1996 , th e Complainan t bega n towin g banner s fromBKLpursuan t t o averbal agreement . [FA A Exhibi t

1 , Ite m2 , |7 ] Thi s continue dunti l Marc ho f 199 9 whe n th e Responden t advise d th e Complainan t

tha t ane w Instrumen t

Landin g System^ preclude dth e us e o f th e banne r

set-u p area . [FA A Exhibi t

1 , Ite m2 , TI9

] I n May o f

2000 , th e Responden t

invite dth e Complainan t

t o resum e baime r

towin g operation s at

BKLo n th e conditio n tha t th e tw o partie s ente r

int o a concessio n agreement . [FA A Exhibi t 1 , Ite m2 , ^10 ] Th e Complainan t foimdcertai n term s containe di n th e agreemen t t o b e "excessive , unreasonable , an dintende dt o preven t banne r towin g operations " at

BKL , an ddecline dt o ente r int o th e agreement . [FA A Exhibi t 1 , Ite m2 , 112 ] O n Octobe r

21 , 2008 , th e Complainant' s attorne y advise dth e Responden t o f th e Complainant' s desir e t o resum e banne r

towin g operation s at

BKL . [FAA Exhibi t

1 , Ite m2 , ^13 ] I n an electroni c messag e date dOctobe r 27 , 2008 , th e Responden t advise dth e Complainant' s attorne y tha t th e "FA A ha s approve dbannin g baime r towin g operatio n (sic ) at Burk e Lakefi-on

t Airport a s indicate di n th e Airport

Maste r Recor dan dAirport

Facility Directory. " [FAA Exhibi t 1 , Ite m2 , ^1 4 an dFA A Exhibi t

1 , Ite m2 , exhibi t

G ] Afte r confirmin g thes e notations , th e Complainant' s attorne y contacte dth e FAA' s Detroi t Airport Distric t Offic e (ADO ) t o determin e thei r validity
. [FA A Exhibi t

1 , Ite m2 , f

1 5 an d16 ] Th e Detroi t

AD O advise dth e Complainant' s attorne y that thes e notation s wer e non-bindin g an dnot necessaril y endorse db y th e FAA . [FAA Exhibi t 1 , Ite m2,111 7 an d18 ] O n January 22 , 2009 , th e Complainant' s attorne y wrot e t o th e Responden t reiteratin g th e Complainant' s desir e t o resum e baime r towin g operation s at

BKLan dprovide damap proposin g five possibl e set-u p location s at BKL . [FA A Exhibi t

1 , Ite m2 , \2 Q an dFA A Exhibi t 1 , Ite m2 , 2 A n Instrumen

t Landin g Syste mo r ILS i s anavigationa

l ai di s designedto provide a

n approac hpat hfo r exact alignmen t an ddescen t o f a n aircraf t o n fma l approac hto arunway . [Aeronautica l Informatio

n Manual , effectiv

e Februar y 14,2008 , a

t 1-1-7]exhibit

I ] O n February 18 , 2009 , th e Responden t advise dth e Complainant' s attorne y tha t City was reviewing thi s information
. [FA A Exhibi t 1 , Ite m2 , ^2 1 an dFA A Exhibi t 1 , Ite m2 , exhibi t J ] O n February 24 , 2009 , th e Responden t requeste dan dth e Complainan t provide dcopie s o f

th e Complainant' s Banne r

Towin g Certificat e o f

Operation
. [FA A Exhibi t 1 , Ite m2 , ][22 an d2 3 an d FA A Exhibi t

1 , Ite m2 , exhibit s K

an dL ] O n Marc h13 , 2009 , th e Responden t advise dth e Complainan t tha t it s reques t

t o conduc t

banne r towin g operation s at

BKLwa s denied
. Th e Responden t cite dit s ability t o compl y with1 4 CF R Part 91.155 ^ a s it s reaso n for

th e denial
. [FA A Exhibi t 1 , Ite m2 , f2 5 an dFA A Exhibi t 1 , Ite m2 , exhibi t N ] O n Marc h25 , 2009 , th e Complainant' s attorne y advise dth e Responden t o f thei r decisio n t o draf

t aformal Complaint , an dth e Responden t advise dtha t

thei r positio n remaine d th e sam e a s state do n Marc h13 , 2009 . [FAA Exhibi t 1 , Ite m2 , TI2

6 an dFA A Exhibi t

1 , Ite m2 , exhibi t O ] Procedura l Histor y O n Apri l 16 , 2009 , FA A receive dth e Complaint
. [FA A Exhibi t 1 , Ite m2 ] O n Apri l 22 , 2009 , FA A dockete dDrak e Aeria l Enterprises , LL C d/b/ aAi r Americ aAeria l Ad s an dJame s Mille r

v . City o f

Cleveland
. [FA A Exhibi t 1 , Ite m3 ] O n May 13 , 2009 , th e partie s jointl y requeste dth e Responden t hav e additiona l tim e t o file it s answer . [FAA Exhibi t

1 , Ite m4 ] O n May 15 , 200 9 FAA' s Offic e o f Chie f Counse l grante dth e Responden t an extensio n t o May 26 , 2009 . [FAA Exhibi t

1 , Ite m5 ] O n May 26 , 2009 , th e Responden t filedan Answer . [FA A Exhibi t 1 , Ite m7] . O n Jun e 8 , 2009 , th e Complainan t replied
. [FAA Exhibi t

1 , Ite m8 ] O n Jun e 22 , 2009 , th e Responden t filed arebuttal
. [FAA Exhibi t 1 , Ite m9 ] O n Augus t

27 , 2009 , th e FA A requeste dadditiona l informatio n fro mth e Respondent
. [FAA Exhibi t 1 , Ite m11 ] O n Septembe r

8 , 2009 , th e Responden t

provide dadditiona l informatio n requeste db y th e FAA . [FAA Exhibi t

1 , Ite m12 ] O n Octobe r

19 , 2009 , th e FA A extende dth e du e dat e o f th e Director' s Determinatio n t o o n o r before Decembe r

31 , 2009 . [FAA Exhibi t 1 , Ite m13 ]

^ Th e Respondent' s denia l reference s 1 4 CFRPar t 91.155 , bu t

quote s froma

n Informatio n guid e for

banne r to w operation s (FAA/FS-I-8700-1 , p . 4-1) . Th e Responden t quotes , "Banne r

picku p an d(sic ) banne r

dro p shoul db e i n apredesignate d(sic ) are ano t close r tha n 500 fee t

t o taxiways , runways , persons , buildings , parke dautomobiles , an dothe r aircraf t wheneve r

possible
. " Thi s publicatio n states , "Banne r picku p o r

banne r dro p shoul db e i

n apre designate dare ano t

close r than 500 feet

t o taxiways , runways , persons , buildings , parke dautomobiles , an dothe r aircraf t wheneve r

possible. " 1 4 CF RPart

91.15 5 i s title dBasi c VF Rweathe r minimum s an di s no t

specifi c t o banne r to w operations
.O n Decembe r 23 , 2009 , th e FA A extende dth e du e dat e o f th e Director' s Determinatio n t o o n o r before January 15 , 2010 . [FA A Exhibi t 1 , Ite m15 ] O n January 15,2010 , th e FA A extende dth e du e dat e o f th e Director' s Determinatio n t o o n o r before February 5 , 2010 . [FA A Exhibi t 1 , Ite m16 ] O n February 2 , 2010 , th e FA A extende dth e du e dat e o f th e Director' s Determinatio n t o o n o r before February 19 , 2010 . [FA A Exhibi t 1 , Ite m17 ] IV . ISSUE S Upo n revie w o f

th e allegation s an dth e relevan t airport-specifi c circumstances , svmunarize d above , th e FA A ha s determine dtha t th e followin g issue s requir e analysi s i n orde r t o provid e a complet e revie w o f

th e City' s complianc e wit happlicabl e Federa l la w an dpolicy :

• Whethe r

th e Respondent' s failure t o approv e th e Complainant' s reques t t o conduc t banne r towin g operation s constitute s a n imreasonabl e denial o f

acces s i n violatio n o f 4 9 U.S.C . § 47107(a)(1 ) an dGran t Assuranc e 22 , Economi c Nondiscrimination
. • Whethe r

th e Respondent' s condition s for approva l o f

banne r towin g operation s a

t BL K unreasonabl y den y acces s t o th e Complainan t o r imjustl y discriminat e agains t th e Complainan t

i n violatio n o f

4 9 U.S.C . § 47107(a)(1 ) an dGran t Assuranc e 22 , Economi c Nondiscrimination
. V . APPLICABL E LA WAN D POLIC Y Th e federal rol e i n civi l aviatio n ha s bee n augmente db y variou s legislativ e action s tha t authoriz e program s for

providin g federal fimds an dothe r assistanc e t o local commimitie s for th e developmen t

o f airport facilities
. I n eac hsuc hprogram , th e airport sponso r asstmie s certai n obligations , eithe r

b y contrac t

o r b y restrictiv e covenant s i n property deed s an dconveyanc e instruments , t o maintai n an doperat e it s airport facilitie s safel y an defficientl y an di n accordanc e vsfit hspecifie dconditions
. Commitment s assume db y airport sponsor s i n property conveyanc e o r gran t agreement s ar e importan t factor s i n maintainin g ahig hdegre e o f safet y an defficienc y i n airport design , construction , operatio n an dmaintenance , a s wel l a s ensurin g th e publi c fai r an d reasonabl e acces s t o th e airport
. Th e followin g i s adiscussio n pertainin g t o th e Airport Improvemen t

Program , Airport

Sponso r Assurances , th e FA A Airport Complianc e Program , enforcemen t o f Airport Sponso r Assurances , an dth e Complain t

an dAppea l Process .

Th e Airpor t

Improvemen t

Progra m Titl e 4 9 U.S.C . § 47101 , e t seq. , provide s for

federal airport

financial assistanc e fo r

th e developmen t

o f public-us e airport s unde r th e Airport

Improvemen t

Program(AIP ) establishe db y th e Airport

an dAirway Improvemen t Ac t o f 1982 , a s amended
. Titl e 4 9 U.S.C . § 47107 , e t seq. , set s fort hassurance s t o whic han airport sponso r agree s a s aconditio n o f

receivin g federalfinancial assistance
. Upo n acceptanc e o f an AI P grant , th e assurance s becom e abindin g contractua l obligatio n betwee n th e airport sponso r an dth e federal government . Th e assurance s mad e b y airport

sponsor s i n AI P gran t

agreement s are importan t factor s i n maintainin g aviabl e nationa l airport

system . Airpor t Sponso r Assurance s A s aconditio n preceden t

t o providin g airport

developmen t

assistanc e unde r

th e Airport Improvemen t

Program , 4 9 U.S.C . § 47107 , e t seq. , th e Secretary o f

Transportatio n and , b y extension , th e FA A mus t

receiv e certai n assurance s fro mth e airport sponsor . Title 4 9 U.S.C . § 47107(a ) set s fort

hth e statutory sponsorshi p requirement s t o whic ha n airport sponso r receivin g federal financial assistanc e mus t agree . Th e FA A ha s astatutory mandat e t o ensur e tha t airport owner s compl y withthes e sponso r assurances.' * FA A Orde r

5190.6B , Airpor t

Complianc e Requirements (FA A Orde r 5190.6B) , issue do n Septembe r

30 , 2009 , provide s th e policie s an dprocedure s t o b e followe db y th e FA A i n carryin g ou t

it s legislativel y mandate dfimction s relate dt o complianc e withfederal obligation s o f airport sponsors . Th e FA A consider s i t inappropriat e t o provid e federal assistanc e for improvement s t o airport s wher e th e benefit s o f suc himprovement s wil l not b e fully realize ddu e t o inheren t

restriction s o n aeronautica l activities
. Tw o federal gran t

assurance s appl y t o th e circumstance s se t fort hi n thi s Complaint : (1 ) Gran t Assuranc e 22 , Economi c Nondiscriminatio n an d(2 ) Gran t Assuranc e 24 , Fe e an dRenta l Structure . Assuranc e 22 , Economi c Nondiscriminatio n Th e owne r

o f an y airport

develope dwithfederal gran t assistanc e i s require dt o operat e th e airport fo r th e us e an dbenefi t

o f th e publi c an dt o mak e i t availabl e t o al l types , kinds , an d classe s o f aeronautica l activity o n fai r an dreasonabl e terms , an dwithou t unjus t discrimination
. Federal Gran t

Assuranc e 22 , Economi c Nondiscriminatio n deal s withbothth e reasonablenes s o f airport acces s an dth e prohibitio n o f adoptin g tmjustl y discriminatory condition s a s apotential fo r limitin g access . Gran t

Assuranc e 2 2 o f

th e prescribe dsponso r

assurance s implement s th e provision s o f

4 9 U.S.C . § 47107(a)(1 ) throug h(6) , an drequires , i n pertinen t part :

" ...wil l make th e airpor t

availabl e a s a n airpor t

fo r publi c us e o n reasonabl e term s an d withou t unjus t discriminatio n t o al l types , kind s an dclasse s o f aeronautica l activities , includin g commercia l aeronautica l activitie s offerin g service s t o th e publi c a t th e airport
. [(a) ] b
. I n an y agreement , contract , lease , o r othe r arrangemen t

unde r whic harigh t o r privileg e a t

th e airpor t

i s grante dt o an y person , firm, o r corporatio n t o conduc t o r t o engag e i n an y aeronautica l activity fo r furnishin g service s t o th e

• * See , e.g. , th e Federa l Aviatio n Ac t o f 1958 , a s amende dan drecodified , Titl e 4 9 U.S.C . § § 40101 , 40113 , 40114 , 46101 , 46104,46105 , 46106 , 46110 ; an dth e Airport an dAirway Improvemen t Ac t o f 1982 , a s amende dan d recodified , Titl e 4 9 U.S.C . § § 47105(d) , 47106(d) , 47107(k) , 47107(1) , 47111(d) , 47122 .publi c a t th e airport , th e sponso r

wil l inser t

an denforc e provision s requirin g th e contracto r

to - (1 ) furnis hsai dservice s o n areasonable , an dnot unjustl y discriminatory , basi s t o al l user s thereo f an d (2 ) charg e reasonable , an dno t unjustl y discriminatory , price s fo r eac h uni t o r service , provide dtha t

th e contracto r

ma y b e allowe dt o mak

e reasonabl e an dnondiscriminator y discounts , rebates , o r othe r simila r type s o f pric e reduction s t o volume purchasers
. c . Eac hfixed-base operato r a t th e airpor t

shal l b e subjec t

t o th e sam e rates , fees , rentals , an dothe r

charge s a s ar e uniforml y applicabl e t o al l othe r fixed-base operator s makin g th e sam e o r

simila r use s o f suc hairpor t

an dutilizin g th e sam e o r similar facilities
. h
. Th e sponso r ma y establis hsuc hreasonable , an dno t unjustl y discriminatory , condition s t o b e met

b y al l user s o f

th e airpor t

a s ma y b e necessar y fo r

th e saf e an d efficient operatio n o f

th e airport
. i
. Th e sponso r ma y prohibi t o r limi t an y give n type , kin do r

clas s o f aeronautica l us e o f th e airpor t

i f suc hactio n i s necessar y fo r th e saf e operatio n o f

th e airpor t

o r necessar y t o serv e th e civi l aviatio n need s o f th e public
. " Subsectio n (h ) qualifie s subsectio n (a) , an dsubsectio n (i ) represent s a n exceptio n t o subsectio n (a ) t o permi t

th e sponso r

t o exercis e contro l o f

th e airport

sufficient t o preclud e unsaf

e an d inefficient condition s tha t

woul db e detrimenta l t o th e civi l aviatio n need s o f th e public
. I n al l case s involvin g restriction s o n airport us e impose db y airport

owner s for

safet y an d efficienc y reasons , th e FA A wil l mak e th e final determinatio n o n th e reasonablenes s o f suc h restriction s whe n thos e restriction s den y o r limi t acces s to , o r

us e of , th e airport
. \Se e FA A Order5190.6B,T|14.3. ] FA A Orde r

5190.6 B describe s th e responsibilitie s imder Assuranc e 2 2 assume db y th e owner s o r sponso r o f publi c us e airport s develope dwit hfederal assistance
. Amon g thes e i s th e obligatio n t o trea t i n auniformmaime r

thos e user s makin g th e sam e o r similar us e o f th e airport

an dt o mak e al l airport

facilitie s an dservice s availabl e o n reasonabl e term s withou t unjus t discrimination
. [See , FA A Orde r 5190.6B , Chapte r

9 ] Th e owne r

o f an airport

develope dwit hfederal assistanc e i s require dt o operat e th e airport for th e us e an dbenefi t

o f th e publi c an dt o mak e i t availabl e t o al l types , kinds , an dclasse s o f aeronautica l activity o n reasonabl e terms , an dwithou t imjus t discrimination
. \Se e FA A Orde r 5190.6B , Sec.1f9.1.(a) ] Gran t Assuranc e 24 , Fe e an dRenta l Structur e Gran t Assuranc e 24 , Fe e an dRenta l Structure , addresse s fee s th e owne r o r sponso r levie s o n airport users i n exchang e for

th e service s th e airport

provides
.Title 4 9 U.S.C . § 47107(a)(13 ) requires , i n pertinen t part , tha t th e owne r

o r sponso r o f a Federall y obligate dairport "wil l maintai n aschedul e o f charge s for

us e o f facilitie s an dservice s a t th e airport

that wil l mak e th e airport

a s self-sustainin g a s possibl e unde r th e circumstance s existin g at

th e airport. " Gran t Assuranc e 2 4 satisfie s th e requirement s o f § 47107(a)(13) . I t

provides , in pertinen t

part , tha t th e owne r

o r sponso r o f afederally-obligate dairport agree s t o establis hafee an drenta l structur e tha t

wil l mak e th e airport

a s self-sustainin g a s possibl e unde r th e circumstance s existin g at th e particular

airport , takin g int o accoun t suc hfactor s a s th e volum e o f traffi c an deconomy o f collection
. Thi s sponso r

wil l maintai n afe e an drenta l structur e consisten t withassurance s 22 , Economi c Nondiscrimination , an d23 , Exclusiv e Rights
. Th e inten t o f th e assuranc e i s for

th e airport operato r t o charg e fee s tha t

ar e sufficien t

t o cove r a s muc ho f

th e airport' s cost s a s i s feasible
. Moreover , th e FA A Orde r 5190.6 B state s tha t

th e owne r

o r sponsor' s obligatio n t o mak e a n airport availabl e for

publi c us e doe s not

preclud e th e ovmer

o r sponso r fro mrecoverin g th e cos t o f providin g th e facility
. Th e owne r o r sponso r i s expecte dt o recove r

it s cost s throug hth e establishmen t

o f fair an dreasonabl e fees , rentals , o r othe r use r charge s tha t

wil l mak e th e airport a s self-sustainin g a s possibl e unde r th e circumstance s existin g a t th e particular

airport
. \Se e FA A Orde r

5190.6B , tl2.2.b
. an d117.5. ]

Th e FA A Airpor t

Complianc e Progra m Th e FA A discharge s it s responsibilitie s for ensurin g airport

owners ' complianc e withthei r federal obligation s throug hit s Airport Complianc e Program . Th e FAA' s airport complianc e effort s ar e base do n th e contractua l obligation s an airport owne r accept s whe n receivin g federal gran t fund s o r th e transfe r

o f federal propert y for

airport purposes . Thes e obligation s are incorporate di n gran t

agreement s an dinstrument s o f conveyanc e i n orde r

t o protec t

th e public' s interes t i n civi l aviatio n an dt o ensur e complianc e withfederal laws
. Th e FA A Airport

Complianc e Progra mi s designe dt o enstire th e availability o f anationa l syste m o f saf e an dproperl y maintaine dpublic-us e airport s operate di n amanne r consisten t

withth e airport owners ' federal obligation s an dth e public' s investmen t i n civi l aviation
. Th e Airport

Complianc e Progra mdoe s not contro l o r

direc t th e operatio n o f

airports
. Rather , i t monitor s th e administratio n o f th e valuabl e right s pledge db y airport sponsor s t o th e peopl e o f th e Unite dState s i n exchang e for monetary grant s an ddonation s o f federal property t o ensur e tha t th e publi c interes t

i s bein g served
. FA A Orde r 5190.6 B set s fort

hpolicie s an dprocedure s for th e FA A Airport

Complianc e Program . FA A Orde r 5190.6 B i s no t

regulatory an di s no t controllin g withregar dt o airport sponso r conduct
. Rather , i t

establishe s th e policie s an d procedure s t o b e followe db y FA A persorme l i n carryin g ou t th e FAA' s responsibilitie s fo r ensurin g airport

compliance
. I t

provide s basi c guidanc e for FA A persorme l i n interpretin g an d administerin g th e variou s continuin g commitment s mad e t o th e Unite dState s b y airport owner s a s aconditio n o f

receivin g agran t

o f federal fimd s o r

th e conveyanc e o f

federal property fo

r airport purposes . FA A Orde r

5190.6 B analyze s th e variou s obligation s se t fort hi n th e standar dairport

sponso r assurances , addresse s th e natur e o f thos e assurances , addresse s th e applicatio n o f thos e assurance s i n th e operatio n o f public-us e airports , an dfacilitate s interpretatio n o f th e assurance s b y FA A personnel
. Th e FA A Complianc e progra mi s designe dt o achiev e voluntar y complianc e withfederal obligation s accepte db y owner s and/o r operator s o f

public-us e airport s develope dwithFAA
administere dassistance
. Therefore , i n addressin g allegation s o f noncompliance , th e FA A wil l mak e adeterminatio n a s t o whethe r an airport

sponso r i s currentl y i n complianc e withth e applicabl e federal obligations
. Consequently , th e FA A wil l conside r th e successfii l actio n b y th e airport t o cur e an y allege do r

potential pas t

violatio n o f

applicabl e federal obligatio n t o b e ground s for

dismissa l o f

suc hallegations
. \Se e e.g . Wilso n Ai r Cente r v . Memphi s an dShelb y County Airport

Authority , FA A Docke t

No . 16-99-1 0 (Augus t

30 , 2001 ) (Final Decisio n an d Order ) (Wilson) ] FA A Orde r

5190.6 B outline s th e standar dfor compliance , stating , " A sponso r meet s commitment s when : (1) . Th e federal obligation s are fiilly understood ; (2) . A progra m(e.g. , preventiv e maintenance , leasin g policies , operatin g regulations , etc. ) i s i n plac e tha t th e FA A deems adequat e t o carry ou t th e sponsor' s commitments ; (3) . Th e sponso r satisfactoril y demonstrate s tha t

suc haprogra mi s bein g carrie dout ; an d(4) . Pas t complianc e issue s hav e bee n addressed. " [See FA A Orde r 5190.6B , 12.8.(b.) ] Enforcemen t

o f Airpor t Sponso r Assurance s Th e Federa l Aviatio n Ac t o f 1958 , a s amende d(FAAct) , 4 9 U.S.C . § 40101 , e t seq. , assign s th e FA A Administrato r

broa dresponsibilitie s for th e regulatio n o f

ai r commerc e i n th e interest s o f safety , security , an ddevelopmen t o f civi l aeronautics
. Th e federal rol e i n encouragin g an d developin g civi l aviatio n ha s bee n augmente db y variou s legislativ e actions , whic hauthoriz e program s for

providin g fund s an dothe r assistanc e t o local commimitie s for th e developmen t

o f airport facilities
. I n eac hsuc hprogram , th e airport ovwie r o r sponso r assume s certai n obligations , eithe r

b y contrac t

o r b y restrictiv e covenant s i n propert y deed s an dconveyanc e instnmients , t o maintai n an doperat e it s airport facilitie s safely , efficiently , an di n accordanc e withspecifie dconditions
. Commitment s assimie db y airport owner s o r

sponsor s i n property conveyanc e o r

gran t agreement s ar e importan t factor s i n maintainin g ahig hdegre e o f safet y an d efficienc y i n airport

design , construction , operatio n an dmaintenance , a s wel l a s ensurin g th e publi c reasonabl e acces s t o th e airport
. Pursuan t t o 4 9 U.S.C . § 47122 , th e FA A ha s astatutory mandat e t o ensur e that

airport owner s compl y withthei r federal gran t

assurances . Th e Complain t

an dAppea l Proces s Pursuan t t o 1 4 CF R§ 16.23 , aperso n directl y an dsubstantiall y affecte db y an y allege d noncomplianc e may file acomplain t withth e FAA . Th e complainant(s ) shal l provid e aconcis e but complet e statemen t

o f th e fact s relie dupo n t o substantiat e eac hallegation
. Th e complaint(s ) shal l als o describ e ho w th e complainant(s ) directl y an dsubstantiall y has/hav e bee n affecte db y th e thing s don e o r

omitte db y th e respondent(s)
. [See , 1 4 CF R§ 16.23(b)(3-4) ]If

, base do n th e pleadings , ther e appear s t o b e areasonabl e basi s for further investigation , th e FA A wil l investigat e th e subjec t matte r o f th e Complaint
. I n renderin g it s initial determination , th e FA A may rel y entirel y o n th e Complain t an dth e responsiv e pleading s provided
. Eac hpart y shal l file docimient s tha t

i t consider s sufficient

t o presen t

al l relevan t

fact s an dargument s necessary for

th e FA A t o determin e whethe r th e sponso r

i s i n compliance
. [See , 1 4 CF R § 16.29 ] Th e proponen t

o f amotion , request , o r

orde r ha s th e burde n o f

proof
. A party wh o ha s asserte d a n affirmativ e defens e ha s th e burde n o f provin g th e affirmativ e defense
. Thi s standar dburde n o f proo f i s consisten t

withth e Administrativ e Procedure s Ac t (APA ) an dfederal cas e law
. Th e AP A provisio n [See , 5 U.S.C . § 556(d) ] states , "(e)xcep t a s otherwis e provide db y statute , th e proponen t o f arul e o r orde r ha s th e burde n o f

proof. " [See also
. Director , Offic e Worker' s Compensatio n Programs , Departmen t o f Labo r v . Greenwic hCollieries , 51 2 U S 267 , 27 2 (1994 ) an dAi r Canad ae t

al
. v . Departmen t

o f Transportation , 14 8 F3 d1142 , 115 5 (D C Cir , 1998) ] Titie 1 4 CF R§ 16.229(b ) i s consisten t with1 4 CF R§16.23 , whic hrequire s th e Complainan t t o submi t al l docimient s the n availabl e t o support hi s o r he r complaint
. Similarly , 1 4 CF R§ 16.2 9 state s that , "(e)ac hparty shal l file document s tha t i t consider s sufficient

t o presen t

al l relevan t fact s an dargument s necessary for th e FA A t o determin e whethe r th e sponso r

i s i n compliance. " Title 1 4 CF R§ 16.31(b-d) , i n pertinen t parts , provide s tha t

"(t)h e Director' s determinatio n wil l se t fort haconcis e explanatio n o f th e factual an dlegal basi s for th e Director' s determinatio n o n eac hclai mmad e b y th e complainant. " In accordanc e with1 4 CF R§ 16.33(b ) an d(e) , upo n issuanc e o f

aDirector' s determination , " aparty adversel y affecte db y th e Director' s determinatio n may file an appea l withth e Associat e Administrato r withi n 3 0 day s after

th e dat e o f servic e o f

th e initia l determination; " however , "(i) f n o appea l i s filedwithi n th e tim e perio d specifie di n paragrap h(b ) o f thi s section , th e Director' s determinatio n become s th e final decisio n an dorde r o f th e FA A withou t

fiirther action
. A Director' s determinatio n tha t become s final becaus e ther e i s n o administrativ e appea l i s no t judiciall y reviewable. " Title 1 4 CF R§ 16.247(a ) define s procedura l recours e for judicia l revie w o f

th e Associat e Administrator' s final decisio n an dorder , a s provide di n 4 9 U.S.C . § 4611 0 o r sectio n 519(b)(4 ) o f th e Airport

an dAirway Improvemen t Ac t o f 1982 , a s amended , (AAIA) , 4 9 U.S.C . § 47106(d ) an d47111(d)
. VI . ANALYSI S AN D DISCUSSIO N Th e FAA' s Offic e o f

Airport Complianc e an dFiel dOperation s (ACO ) doe s no t mediat e o r arbitrat e negotiatio n dispute s betwee n airport sponsor s an dpotentia l busines s proponent s concernin g issue s outsid e th e scop e o f th e Part 1 6 proces s an dasponsor' s Federa l Gran t Assurances . Rather , AC O enforce s contract s betwee n an airport sponso r an dth e Federa l government . [See AmA v v . Marylan dAviatio n Administration , FA A Docke t No . 16-05-12 , (Marc h20 , 2006 ) (Director' s Determination) , at 23 ] Durin g th e cours e o f

thi s formal proceeding , negotiation s betwee n th e Complainan t an dth e Responden t

continued
. Wher e applicable , th e Directo r wal l tur n t o th e Respondent' s las t offe r o r1 0

final negotiatin g postur e t o mak e adeterminatio n regardin g it s complianc e wit hit s Federa l obligations
. Issue s Identifie dfo r Analysi s an dDiscussio n Issu e 1 : Whether

th e Respondent' s failur e t o approv e th e Complainant' s reques t t o conduc t banne r towin g operation s constitute s a n unreasonabl e denia l o f acces s i n violatio n o f

4 9 U.S.C . § 47107(a)(1 ) an dGran t

Assuranc e 22 , Economi c Nondiscrimination
. Th e Complainan t

states : "Responden t

ha s unjustl y discriminate dagains t Mr . Mille r

an dAi r Americ ab y prohibitin g themfromaccessin g th e federall y funde dBurke Lakefron t Airport
. " [FAA Exhibi t

1 , Ite m2 , T|35-A. ] Th e Responden t

answers : "Thi s proceedin g n o longe r involve s th e prospec t

o f denia l o f acces s t o abanne r towin g operato r

proposin g t o commenc e servic e a t Burke Lakefron t

Airpor t ('BK L) . [FA A Exhibi t

1 , Ite m7 , p . 1 ] "Th e Responden t

ha s reviewe dit s positio n an dha s develope dapla n tha t wil l provid e reasonabl e acces s t o Complainant s fo r thei r banne r towin g operation s whil e no t impairin g th e safet

y o r efficienc y o f

BKL . " [FAA Exhibi t

1 , Ite m7 , p . 2 ] Th e Recordclearl y support s tha t o n Marc h13 , 2009 , th e Responden t denie dth e Complainant' s reques t t o begi n barmer

towin g operation s at

th e Airport
. [FA A Exhibi t 1 , Ite m2 , exhibi t

N ] Th e Recordals o describe s th e Respondent' s attempt s t o establis hablanke t ba n o n thi s typ e o f aeronautica l activity. ^ [FA A Exhibi t 1 , Ite m2 , exhibit s D , G , an dH ] However , i n it s Answe r t o th e Complaint , th e Responden t adopt s ane w positio n an dpropose s apla n t o accommodat e th e Complainan t

an dothe r

prospectiv e banne r

towin g operators. ^ [FAA Exhibi t 1 , Ite m7 ] Despit e th e Respondent' s pla n t o provid e acces s t o Complainant , i n it s Reply , th e Complainan t argue s that :

^ Aerial advertisin g i s defme da s a n aeronautical activity
. An aeronautica l activity i s "an y activity tha t involves , make s possible , o r

i s require dfor

th e operatio n o f

aircraf t o r that contribute s t o o r

i s require dfor

th e safet y o f suc h operations. " [FAA Orde r 5190.6B , Appendi x Z ] * Th e Cit y state s i t wil l accommodat e th e Complainan t an dothe r

prospectiv e banne r

towe r operations
. Accordingly , th e Directo r

assume s th e City will , if i t ha s no t alread y don e s o b y time o f thi s Decision' s issue , promptl y updat e it s Airport Maste r Recor d(FA A Form5010-1 ) t o delet e th e outdate dnotatio n that banne r towin g activitie s ar e prohibite da

t th e airport
. Failur e t o updat e FAA For m5010- 1 may creat e th e impressio n tha t th e airport

i s no t i n fac t open t o banne r

towin g operations
. At

best , th e intentiona l failure t o update FA A Form5010- 1 outrigh t discourage s banne r

towin g operation s at

a n airport tha t professe s t o b e ope n t o suc hoperations
. Consequently , thes e impression s combine dwithth e failure t o updat e th e Airport Maste r Recor dma

y trigge r additiona l Part

1 6 complaint s b y thir dpartie s o r aseparat e FAA investigatio n pursuan t t o 1 4 CFRPart

1 6 §101 .1 1

"Air Americ aha s not

ye t bee n give n acces s t o Burke Lakefron t t o conduc t

it s banne r to w operations
. Accordingly , th e City continue s t o violat e it s federa l gran t assurance s an d

judgmen t shoul db e issue di n favo r o f Ai r America
. " [FA A Exhibi t 1 , Ite m8 , p p 3- 4 an dFA A Exhibi t 1 , Ite m7 , exhibi t

A , f4]
. Th e Complainan t

fiirther argue s tha t

th e term s offere db y th e Responden t ar e s o unreasonabl e that acces s i s stil l effectivel y denied. ^ Despit e th e Complainant' s arguments , th e Recor dindicate s tha t Responden t

ha s assume da complianc e posture . Th e Responden t states : "Responden t

ha s offere dan di s prepare dt o pursu e enterin g int o ashor t term agreemen t

unde r a n existin g Codifie dOrdinanc e t o allo w fo r 6 0 cumulativ e day s o f banne r towin g whil e i t

pursue s permanen t

legislatio n t o authoriz e an dregulat e banne r towin g an dassociate dfee s a t Burke
. " [FAA Exhibi t

1 , Ite m7 ] Gran t Assuranc e 2 2 require s th e Responden t t o mak e th e Airport

availabl e a s a n airport

o n reasonabl e terms . However , i t doe s no t guarante e an y particular

individua l aeronautica l use r acces s t o th e airport

o n whateve r

term s tha t

use r may desire
. [See

_Sant aMonic aAirport Association , Kruege r

Aviation
. Inc . an dSant aMonic aai r Cente r v . City o f

Sant aMonica
. California
. FA A Docke t

No . 16-99-21 , (February 4 , 2003 ) (Final Decisio n an dOrder ) at 1 9 an d Pacifi c Coas t

Flyers
. Inc. , Donny aDaubne v d/b/ aCarlsba dAircraf t Pilo t Supply , an dRoge r Bake r v . County o f

San Diego
. California
. FA A Docke t No . 16-04-08 , (Jul y 25 , 2005 ) (Director' s Determination ) at 31 ] A potentia l aeronautica l servic e provide r can agre e t o th e state dterms , negotiat e different terms , o r rais e question s regardin g th e reaspnablenes s o f sai d terms . Unti l ther e i s ameetin g o f th e mind s regardin g ho w a n aeronautica l servic e wil l b e offere dt o th e public , allowin g tha t servic e t o commenc e create s som e ris k for th e airport operator . Suc ha

n arrangement

coul ddiminis hth e Respondent' s proprietar y righ t t o manag e th e Airport generall y i n th e public' s interes t i n aviatio n an da s a

n ongoin g concern . Additionally , i t coul dgiv e ris e t o future complaint s o f dissimilar

treatment . Th e FA A understand s th e Respondent' s reluctanc e t o engag e i n what i t migh t perceiv e t o b e arisky busines s practice
. A s such , Gran t

Assuranc e #19 , Operatio n an dMaintenance , afford s th e Responden t som e discretio n withregar dt o thes e type s o f managemen t

decisions
. Th e Complainan t

als o assert s tha t

th e Respondent' s ne w positio n doe s not remed y it s pas t discriminatio n an dshoul dhav e n o bearin g o n th e Complaint
. [FA A Exhibi t 1 , Ite m8 , p p 4-5 ] However , thi s clai mi s no t consisten t

withth e standar do f

complianc e use db y th e FAA . Th e FA A consider s th e successfu l actio n b y th e airport sponso r t o cur e an y allege do r

potentia l pas t violatio n o f

it s gran t assurance s t o b e ground s for dismissa l o f

suc hallegations
. (Se e Wilson) Th e FA A polic y an dcitatio n t o Wilso n ar e commonl y include di n Part 1 6 decision s an dspea

k t o th e import

o f curren t compliance
. [Se e Clark e v . City o f Alamogordo , FA A Docke t No . 16-05
- 1 9 (Septembe r

20 , 2006 ) (Director' s Determination) , at 11 ; Ingra mv . Port

o f Oakland , FA A Docke t No . 16-03-1 2 (Apri l 7 , 2006 ) (Fina l Decisio n an dOrder) , at 21 : Roadhous e Aviatio n v . Cit y o f Tulsa
. FA A Docke t

No . 16-05-0 8 (Decembe r 14 , 2006 ) (Director' s Determination) , at

' Th e Directo r

wil l fully discus s th e reasonablenes s o f th e Respondent' s propose dplan unde r Issu e #2 .1 2

31 ; and , Atlanti c Helicopter s Inc./Chesapeak e Bay Helicopter s v . Monro e County , Florida , FA A Docke t No . 16-07-1 2 (Septembe r 11 , 2008 ) (Director' s Determination) , at 26 ] FA A Airports ' complianc e polic y i s directe da t ensurin g 'curren t

compliance ' an dals o 'voluntar y compliance. ' Th e gran t assurance s serv e t o protec t th e public' s interes t

i n civi l aviatio n an dachiev e complianc e withFedera l law
. Therefore , th e goal o f th e FAA' s Complianc e Programi s t o benefi t aviatio n users throug hth e voluntar y complianc e o f airport sponsors . Thes e concept s ar e central t o th e FAA' s Complianc e Program . However , th e Complainan t ultimatel y misinterpret s thi s missio n i n it s reques t for relief
. Th e Complain t

request s tha t

th e FA A not

onl y compe l th e Responden t

t o provid e immediat e acces s t o th e Airport fo r th e purpos e o f

baimer towing , bu t als o seek s t o terminat e th e sponsor' s eligibilit y for Federal investment. ^ [FA A Exhibi t 1 , Ite m2 , TI46 ] Th e Directo r

believe s thi s misconceptio n shoul db e clarifie dt o assis t th e Complainan t

i n it s understandin g o f

th e FA A Complianc e Progra ma s wel l a s relie f availabl e throug hth e Part 1 6 complain t process . Th e FA A generall y take s punitiv e complianc e actions , suc ha s withholdin g fund s unde r

4 9 U.S.C . § 47114 , whe n reasonabl e effort s hav e faile dt o achiev e voluntary compliance
. [See FA A Orde r 5190.6 B ]I2.4.(a.) ] Thi s i s becaus e aviatio n users receiv e direc t benefit s fromth e Federa l investment s mad e at publi c us e airport s vi agrant s fromth e FA A t o airport sponsors . Th e FAA' s decisio n t o withhol dthes e fund s ca n potentiall y depriv e aeronautica l users o f

th e benefi t

o f capita l improvement s whic hma y enhanc e safet y o r expan d capacity
. Suc hadecisio n i s no t mad e lightly , an dthi s actio n i s no t use dt o penaliz e sponsor s wh o may hav e unknowingl y breache dthei r commitments , but

correcte dpas t

error s afte

r becomin g awar e o f

thei r full obligations
. Th e concep t

o f voluntary complianc e als o void s th e Complainant' s argumen t that " aproposal " mad e i n th e Respondent' s Answe r i s stil l adenia l o f

access . Th e Complainan t argue s that

th e FA A mus t

findth e Responden t

t o b e i n noncomplianc e du e t o th e timin g o f it s offe r t o accommodat e th e Complainant
. Th e Complainan t conclude s thi s argumen t stating : "Th e City' s lat e attempt s t o remed y it s egregiou s behavio r b y makin g unreasonabl e proposal s t o Ai r Americ ad o not

resolv e th e issu e before th e FAA . " [FAA Exhibi t

1 , Ite m8 , p . 5 ] Th e Directo r

disagrees
. Th e Responden t propose dt o accommodat e th e Complainant' s propose d aeronautica l activity
. [FAA Exhibi t 1 , Ite m7 ] Provide dth e term s ar e reasonabl e (Se e Issu e 2 below) , th e Respondent' s voluntary complianc e woul dhav e fully cure dth e initia l allegatio n o f denial o f acces s containe di n th e Complaint
. Whe n bothpartie s continu e t o negotiat e thei r difference s durin g th e pleadin g stag e o f aPart 1 6 investigation , th e Directo r wil l conside r

th e las t offe r o r negotiatin g postur e take n b y th e Responden t a s reflecte di n th e Recor d(i.e. , t o permi t banne r towin g operation s at

BKL) . [FA A Exhibi t

1 , Ite m7 an dIte m9 ] Thi s i s becaus e th e FAA' s primary rol e i n thi s Part 1 6 investigatio n i s t o determin e i f th e airport

sponso r i s currentl y actin g i n amanne r

consisten t

withit s Federa l obligations
. Th e Complainan

t als o requests the FA

A "Issu e a n Orde r tha t Responden

t pa y fo r Complainants ' attorneys ' fee s an dcosts associatedwit

hfiling thi s Complaint"
. [FA A Exhibi t 1 , Ite m2 , |46 ] Th

e FAA' s Par

t 1 6 airpor t enforcemen

t proceeding i s a

n administrative proceeding designedto determin e a n airpor t sponsor' s compliance wit

h its Federa l obligations
. I

t doe s no t creat e arigh t of privat e action
. Accordingly , ther e i s no mechanismfo

r makin g complainants whol

e o r awarding damages
.1 3

Th e Directo r

als o reject s th e Complainant' s assertio n tha t absen t it s filing o f

thi s Complaint , "th e City' s discriminatio n agains t baime r to w operator s may hav e continue dindefinitely. " [FAA Exhibi t 1 , Ite m8 , p . 4 ] Whil e possible , thi s clai mi s speculative
. First , unde r 1 4 CF RPart

13.1 , an y perso n wh o know s o f aviolatio n o f

Federa l aviatio n laws , regulations , rules , policies , o r order s may report

th e violatio n t o th e FA A informally
. Th e Recor dcontain s nothin g t o sugges t tha t th e Complainan t

sough t th e FAA' s assistanc e throug han informal complaint
. Th e Complainan t

mad e th e decisio n t o file aformal complain t unde r 1 4 CF RPart

1 6 after approximatel y si x month s o f negotiation s withth e Respondent
. Th e Complainan t the n proceede dt o continu e negotiatin g withth e Responden t afte r th e Complain t

wa s dockete db y th e FAA . Secondly , th e Responden t develope dapla n t o accommodat e th e Complainant' s proposa l a s wel l a s othe r

fiiture barmer

towin g operations
. [FA A Exhibi t 1 , Ite m7 , p . 2 ] Th e fac t that th e Responden t

ha s propose dt o develo p aplan t o accommodat e banne r towin g operation s a

t th e Airport , includin g ashort termagreemen t

t o gran t interi maccess , demonstrate s it s understandin g o f

it s Federa l obligations.' " A s such , thi s postur e correct s an y pas t allegation s o f noncompliance
. Therefore , th e Directo r finds th e Responden t

i s not i n violatio n o f

4 9 U.S.C . § 47107(a)(1 ) an dGran t

Assuranc e 22 , Economi c Nondiscriminatio n withregar dt o denial o f access . Issu e 2 : Whethe

r th e Respondent' s condition s fo r approva l o f

banne r towin g operation s a t

BLK unreasonabl y den y acces s t o th e Complainan t o r unjustl y discriminat e agains t th e Complainan t i n violatio n o f

4 9 U.S.C . § 47107(a)(1 ) an dGran t Assuranc e 22 , Economi c Nondiscrimination
. In it s Answer , th e Responden t propose dnin e term s t o accommodat e th e Complainant' s reques t t o re-establis hit s banne r

towin g busines s at

Burk e Lakefron t

Airport
. [FA A Exhibi t

1 , Ite m7 , p p 2-5 ] Th e Complainant , i n it s Reply , specificall y objecte dt o thre e o f thes e terms . Th e Complainan t

states : ".. . certai n aspect s o f

th e proposa l ar e entirel y unreasonabl e an dar e include dt o discourag e banne r

tower s fromoperatin g a t Burke Lakefront
. B y includin g suc h terms , th e Cit

y i s attemptin g t o make acces s burdensome , expensive , an d impractica l fo r

Ai r Americ aan dothe r

banne r to w operators . " [FAA Exhibi t 1 , Ite m8 , p . 5 ] Specifically , th e Complainan t objecte dt o th e followin g thre e facet s o f th e Respondent' s plan : th e propose dlocation s for banne r towin g activities , contingencie s containe di n th e proposal , an d th e cost . Th e Directo r

wil l discus s eac hissu e separatel y below
.

' Several Part

1 6 decision s addres s circumstance s wher e lengthy , ongoin g negotiation s are construe da s adenial o f acces s unde r

Gran t Assuranc e 22 . [Se e Centennia l Expres s Airlines
. Golde n Eagl e Charters , d/b/aCentennia l Expres s Airline s v . Arapaho e County Publi c Airport Authority
. FA A Docke t

No . 16-98-05 , (Augus t

21 , 1998 ) (Director' s Determination ) a t 2 7 ( adelay i

n exces s o f

1 6 month s an dstil l pendin g at th e tim e o f

th e Director' s Determination) : Unite dState s Constructio n Corporatio n v . Cit y o f Pompan o Beach
. Florida
. FAA Docke t No . 16
- 00-14 , (Jul y 10 , 2002 ) (Fina l Agenc y Decision ) a t 18-1 9 ( adelay ove r

ayear) ; an dJi mMarty n y . Port o f Anacortes . FAA Docke t

No . 16-02-03 , (April 14 , 2003 ) (Director' s Determination ) at 3 1 ( adelay o f

thre e years) . Thi s i s no t th e cas e here
. ' " Se e Foomot e 6 .1 4 Propose dLocation s fo r

Banne r Towin g Activitie s I n it s Answer , th e Responden t propose s t o accommodat e th e Complainan t an dothe r

future baime r towin g operator s at

tw o locations
. [FAA Exhibi t 1 , Ite m7 , p p 2-3 ] Th e first sit e i s locate do n th e northeas t

come r o f th e Airport' s property . [FA A Exhibi t 1 Ite m7 , exhibi t

A ] Th e secon dsit e i s locate do n lan dnortho f th e Airport' s perimete r

roa do n property controlle db y th e Army Corp s o f

Engineers
. [FA A Exhibi t 1 , Ite m7 , p . 3 ] I n it s Reply , th e Complainan t object s t o bothlocations
. Th e Complainan t state s that

th e first site i s unsuitable : "Becaus e o f

th e clos e proximit y t o th e northan deas t dike walls , potentia l complication s exist
. Fo r

example , win dflow o r

foule ddrop s coul dresul t in a banne r landin g i n water . Th

e are ai s unsuitabl e becaus e i t i s surrounde db y tal l gras s an dsusceptibl e t o flooding. " [FAA Exhibi t 1 , Ite m8 , p p 6-7 ] "Th e distanc e betwee n th e City' s propose dbanne r to w pic k up/dro p of

f an d hookin g are ai s unreasonabl e an dmake s banne r to w operation s a t

Burke Lakefront Airpor t impractical , costly , an dburdensome
. Th e distanc e betwee n th e propose dlocation s i s approximatel y 1.6 5 miles
. Moreove r th e propose darea s ar e a t th e furthermos t

location s o f

th e airport
. " [FAA Exhibi t 1 , Ite m8 , Exhibi t A,p . 1,1|6] . Th e Complainan t

state s tha t

th e secon dsite i s no t

atru e offer

becaus e th e Cit

y lack s th e ability t o gran t acces s t o thi s land
. [FAA Exhibi t 1 , Ite m8 , p . 6 ] Th e Directo r

ha s reviewe dth e statement s an dopinion s o f bothparties
. However , for th e purpos e o f makin g afinal determinatio n o n reasonablenes s whe n aviatio n safet y i s at issue , FA A safet

y determination s pursuan t

t o th e Federa l Aviatio n Regulation s tak e precedenc e ove r an y airport sponso r view s o r local ordinance s pertainin g t o safety
. [Se e Skydiv e Pari s Inc . v Henry County . Tennessee , FA A Docke t

No . 16-05-06 , (January 20 , 2006 ) (Director' s Determination ) at 15 ; Florid aAeria l Advertisin g v St . Petersburg-Clearwate r Internationa l Airport , FA A Docke t No . 16-03-01 , (Decembe r

18 , 2003 ) (Director' s Determination ) at 11 ; an dI n th e Matte r

o f Complianc e withFedera l Obligation s b y th e Cit y o f SantaMonica , California , FA A Docke t No . 16-02-08 , (Jul y 8 , 2009 ) (Fina l Agenc y Decision)] Thi s i s especiall y tru e whe n th e Directo r i s aske dt o mak e adeterminatio n regardin g asponsor' s complianc e wit hit s Federa l obligation s i n case s wher e restriction s o r limitation s ar e institute di n th e interes t o f safety
. Unde r

4 9 U.S.C . § 40103 , th e FAA , o n behal f o f th e Unite dStates , preempt s flight safety , flight

management , an d th e contro l o f

navigable airspace
. Th e Director' s determinatio n i s guide db y FA A Orde r 5190.6 B whic hstates : "Th e Associat e Administrato r fo r Airports , workin g i n conjunctio n wit hFligh t Standard s and/o r

th e Ai r Traffi c Organization , wil l carefull y analyz e supportin g dat aan ddocumentatio n an dmake th e final cal l o n whethe r aparticula r

activity ca n b e conducte dsafel y an dejficientl y a t a n airport
. I n al l cases , th e FA A i s th e1 6

Figur e 1 FA A conducte dbanne r to w demonstratio n flights fro mArea s 1 an d2 . FA A wa s no t abl e t o conduc t banne r to w demonstratio n flights fro mAre a3 a s i t will requir e mowin g befor e i t ca n used
. Contingencie s Containe di n th e Proposa l I n it s Answer , th e Responden t states : "Fina l arrangement s wit

hbanne r towin g operator s woul db e subjec t t o th e approva l o f

th e Directo r

o f Por t Control
. Th

e Directo r

ha s reviewe dth e term s o f th e proposa l se t

fort hin Paragraph s 1 throug h8 o f thi s Initia l Statement , an di s supportiv e o f

them
. Certai n aspect s o f thes e arrangement s ma

y als o requir e approva l by th e Clevelan dCit y Council
. The Responden t i s prepare dt o submi t th e necessar y legislativ e draft s t o th e Counci l onc e final arrangement s fo r banne r towin g hav e bee n full y develope dan dapprove dby th e Director , an dt o reques t expeditiou s approva l o f

them
. Th e Responden t

als o believe s tha t

i t ma y b e abl e t o1 6 3?"-'s* i

Figur e 1 FA A conducte

dbanne r to w demonstration flights fro

mAreas 1 an

d2 . FA A wa s no t abl e t o conduc t banne r to w demonstration flights fro

mAre a3 a s i t wil l requir e mowin g befor e i t ca n used
. Contingencie s Containe di n th e Proposa l I n it s Answer , th e Responden t states : "Fina l arrangement s wit

hbanne r towin g operator s woul db e subjec t to th e approva l o f

th e Directo r

o f Por t Control
. Th

e Directo r

ha s reviewe dth e term s o f th e proposa l se t

fort hin Paragraph s 1 throug h8 o f thi s Initia l Statement , an di s supportiv e o f

them
. Certai n aspect s o f thes e arrangement s ma

y als o requir e approva l b

y the Clevelan dCit

y Council
. Th

e Responden t

i s prepare dto submi t th e necessar y legislativ e draft s to th e Counci l onc e final arrangement s fo r banne r towin g hav e bee n full y develope dan dapprove db y th e Director , an dto reques t expeditiou s approva l o f

them
. Th e Responden t

als o believe s tha t

i t ma y h e abl e to1 5

final arbite r

regardin g aviatio n safet

y an dwil l make th e determinatio n regardin g th e reasonablenes s o f

th e sponsor' s propose dmeasure s tha t restrict , limit , o r den y acces s t o th e airport
. " [See FA A Orde r 5190.6B , 1fl4.3. ] A s part o f it s investigatio n o f

thes e allegations , th e FA A initiate dasafet y stud y t o determin e whethe r an dho w banne r

to w activitie s coul db e safel y conducte dat th e Airport
. Thi s stud y was conducte db y th e Clevelan dFligh t Standard s Distric t

Office
. I t

include darevie w o f

th e Airport' s layou t

an dairfiel dconfiguratio n an dbanne r to w flight

demonstrations
. O n Octobe r

5 , 2009 , th e Clevelan dFligh t Standard s Distric t

Office , withth e support

o f th e Burk e Lakefron t

Ai r Traffi c Contro l Towe r

staff , conducte dsevera l banne r to w demonstratio n flights. Airport

staf f wer e briefe do n th e demonstratio n an dinvite dt o observ e th e flights. A fiill revie w o f thi s demonstratio n i s discusse di n aletter " fromThoma s J . Leahy , FA A Aviatio n Safet y an dPrincipa l Operation s Inspector , t o Thoma s T . Schauer , FA A Regiona l Complianc e Officer
. [FAA Exhibi t

1 , Ite m14] . Thi s lette r

states : "Ther e ar e thre e possibl e site s t o conduc t Banne r towin g a t

KBKL . Th

e tw o tha t wer e use dfo r

thi s demonstratio n wer e suitabl e withou t an y improvements
. Th

e thir dsit e whic hi s nort han deas t [sic ] th e approac hen do f Runway 24 Lwoul d hav e require dsom e mowin g prio r t o us e an dadditionall y i s not visibl e in it s entirety fromth e AT C contro l tower , but agai n outsid e o f

th e AT C movement area . Th e Clevelan dFligh t

Standard s Office i s o f

th e opinio n tha t

i t i s reasonabl e t o expec t tha t banne r towin g coul db e conducte dsafel y fro mth e Clevelan dBurke Lakefront Airpor t (KBKL) . " [FA A Exhibi t 1 , Ite m14 , p . 3 ] Figure 1 depict s th e thre e possibl e location s suitabl e for banne r to w activities
.

" A cop y o f

thi s lette r i s enclose dt o bot

hpartie s a s part

o f thi s Determination
.1 7

temporaril y permi t

operation s o n a n interi mbasi s pendin g actio n b y th e Cit y Counci l followin g approva l b y th e Director
. " [FA A Exhibi t 1 , Ite m7 , p p 4-5 ] Th e Complainan t

state s tha t

becaus e th e proposa l i s contingen t upo n th e approva l o f

th e Directo r o f Port Contro l an dth e Clevelan dCity Council , i t canno t b e considere datru e offe r o f acces s an d i s merel y adelay tactic
. Th e Complainan t als o expresse s concern tha t i f eithe r th e Directo r

o f Port Contro l o r

th e City Counci l refiis e t o agre e t o th e proposal , th e Responden t may continu e t o den y access . Lastly , th e Complainan t argue s "tha t

approva l b y th e City Counci l i s entirel y unnecessary. " [FA A Exhibi t 1 , Ite m8 , p p 5-6 ] In it s Rebuttal , th e Responden t reiterate s it s offe

r t o th e Complainan t

an dnote s tha t

i t i s supporte db y th e Directo r o f Port Control
. [FA A Exhibi t

I , Ite m9 , p . 9 ] Th e Responden t conclude s stating : "Responden t

ha s offere dan di s prepare dt o pursu e enterin g int o ashor t term agreemen t

unde r a n existin g Codifie dOrdinanc e t o allo w fo r 6 0 cumulativ e day s o f banne r towin g whil e i t

pursue s permanen t

legislatio n t o authoriz e an dregulat e banne r towin g an dassociate dfee s a t Burke
. " [FA A Exhibi t

1 , Ite m9 , p . 10 ] Gran t Assuranc e 2 2 require s a

n airport sponso r t o operat e it s facility for

th e us e an dbenefi t

o f th e publi c o n reasonabl e term s an dwithou t unjus t discrimination
. However , Gran t Assuranc e 2 2 doe s no t voi da n airport sponsor' s proprietar y right s t o establis haproces s for determinin g whethe r o r not potential aeronautica l servic e provider s ar e qualifie dt o conduc t busines s o n th e airport before grantin g suc haccess . I n orde r t o objectivel y guid e thes e decision s i n a nondiscriminatory maimer , th e FA A recommend s airport sponsor s develo p minimu mstandards
. [FA A Orde r

5190.6B , Ti

l 0.2. ] T o bette r understan dth e Respondent' s proces s for reviewing an dapprovin g ne w aeronautica l businesse s at

Burk e Lakefron t

Airport , th e Directo r

aske dth e Responden t

t o describ e it s proces s o r provid e acop y o f

th e minimu mstandard s i n whic hi t i s outlined
. Th e Directo r specificall y aske dth e Responden t

t o "describ e th e approva l proces s th e City use dwhe n reviewing th e mos t recentl y accepte daeronautica l busines s at th e Airport. " [FAA Exhibi t 1 , Ite m11 ] Th e Respondent' s respons e t o thi s reques t for additional informatio n note dtha t ther e ar e n o minimu mstandard s a

t th e Airport
. [FA A Exhibi t 1 , Ite m12 , p.3 ] I t

explaine dafour-ste p proces s whereb y th e Airport staf f work s withth e intereste dparty t o develo p alette r o f inten t describin g th e term s o f

it s propose doperation
. Th e lette r o f inten t i s the n submitte dt o th e Directo r o f Port Contro l for

approval
. Upo n approva l b y th e Directo r o f Port Control , Airport staf f work s wdt

hth e City' s La w Departmen t t o prepar e draf

t legislatio n for

approva l b y th e City Council
. Thi s legislatio n i s merel y authorizatio n for th e Responden t

t o ente r int o along-term contract . Onc e th e City Counci l approve s th e legislation , th e La w Directo r the n prepare s aleas e o r othe r concessio n agreemen t

whic hi s signe db y th e aeronautica l servic e provide r an dth e Airport Director
. [FAA Exhibi t

1 , Ite m12 , p . 2 ] In th e interim , th e City can provid e a temporary approva l whic hpermit s partie s t o performu p t o 6 0 cumulativ e day s o f operation s whil e awaitin g legislativ e approval
. [FA A Exhibi t 1 , Ite m12 , p . 3 ]1 8

Wit hregar dt o th e Complainant' s proposal , th e Responden t di dnot e on e distinction : "I n mos t cases , legislatio n approvin g th e propose doperatio n i s al l tha t i s required
. I n th e cas e o f

Drake , th e legislatio n wil l als o nee dt o authoriz e banne r towin g operation s fo r

al l intereste dpartie s a t

th e Airport
. Thi s i s not

expecte dt o affec t th e timin g o f

legislativ e action
. " [FAA Exhibi t 1 , Ite m12 , p . 2 ] Th e Responden t

explaine dho w thi s proces s wa s applie dt o it s mos t recentl y accepte d aeronautica l busines s as : "Premie r Fligh t Academy ('Premier) , aflight trainin g school , i s th e busines s tha t was mos t recentl y accepte da s a n aeronautica l busines s a t th e Airport
. Th

e approva l proces s describe di n respons e t o th e FA A ' s first inquiry abov e wa s use d fo r Premier' s operation
. I n respons e t o th e FA A ' s specifi c question s [FAA aske d th e City t o describ e th e approva l proces s i t use dwhe n reviewin g th e mos t recentl y accepte daeronautica l busines s at th e Airport] , Premie r

wa s require dt o obtai n th e approva l o f

th e Directo r

o f Por t Contro l fo r

it s operatio n a t

th e Airport
. I t

was als o necessar y t o obtai n legislativ e approva l fo r tha t operatio n fromth e Clevelan dCit

y Council
. Th

e approva l proces s require dapproximatel y fou r months
. An agreemen t

wa s signe dwit

hPremie r o n Jul y 15 , 2009 . Premie r di d not see k interi mapprova l t o inaugurat e it s operation s a t a n earlie r

time
. " [FAA Exhibi t 1 , Ite m12 , p . 3 ] Generally , th e FA A wil l no t substitut e it s judgmen t

for tha t o f th e airport

sponso r i n matter s o f administration
. [See FA A Order , 5190.6B , t2.4.b ] Therefore , i n determinin g whethe r o r no t th e Respondent' s contingencie s are reasonable , th e Directo r wil l conside r

it s attainability an d analyz e i f it migh t resul t i n an unreasonabl e delay i n grantin g access . Th e Responden t claim s thi s sam e approva l proces s resulte di n a n agreemen t withPremie r

Fligh t Academy
. [FAA Exhibi t 1 , Ite m12 , p . 3 ] In it s Reply , th e Complainan t onl y speculate s tha t

thi s proces s migh t resul t i n adenial o f

access . [FA A Exhibi t

1 , Ite m8 , p p 5-6 ] Thi s doe s no t mee t th e burde n o f proof , an dth e Directo r

doe s no t findthi s proces s t o b e s o restrictiv e tha t i t i s unattainable
. With regar dt o th e secon dtest , th e Responden t note s tha t

th e City mus t

provid e it s approval for

both th e Complainant' s busines s proposa l a s wel l a s th e activity o f banne r towing
. I t

appear s tha t

th e Responden t

envision s similar

request s fromothe r

prospectiv e baime r

tower s an dseek s t o positio n itsel f

t o ac t o n th e merit s o f

thos e proposal s a s well
. B y ensurin g tha t other provider s o f thi s sam e servic e hav e equal acces s t o th e approva l process , th e Responden t avoid s inadvertentl y treatin g similarl y situate dpartie s i n adiscriminatory maimer
. Whil e th e Directo r note s th e approva l proces s may b e cumbersome , base do n th e Record , i t doe s not appear t o b e unreasonable
. Moreover , th e Complainan t ha s submitte dn o documentatio n t o establis han y alternativ e typ e o f

busines s approva l proces s use da t th e Airport
. Additionally , th e Directo r finds tha t

thi s approva l proces s i s no t bein g use di n a

n unjustl y discriminatory manner . Althoug hth e Complainant' s reques t i s distinguishe db y th e City' s nee d t o approv e th e aeronautica l activity itself , th e Directo r

believe s th e analysi s provide db y th e Clevelan dFligh t

Standard s Distric t

Offic e wil l assis t

th e City i n developin g th e appropriat e1 9

legislation
. Lastly , th e Responden t ha s agree dt o provid e th e Complainan t withinteri macces s whil e th e approva l proces s i s completed
. Whil e th e Directo r

canno t predic t whethe r o r not th e Port Directo r o r th e Clevelan dCity Counci l wil l approv e th e Complainant' s request , th e FA A ha s identifie dwher e banne r to w activitie s can b e safely conducte da

t Burk e Lakefron t

Airport
. A s aresult , fiiture effort s t o unreasonabl y prohibi t o r further limi t thi s aeronautica l activity may b e construe da s inconsisten t withth e City' s Federa l obligations
. Cos t I n it s Answer , th e Responden t propose s t o initiall y charg e th e Complainan t $2 0 pe r banne r towed
. In addition , th e Complainan t woul db e require dt o pay an y othe r applicabl e charge s for us e o f th e Airport' s facilities , suc ha s landin g an dtakeof f fees
. [FA A Exhibi t

1 , Ite m7 , p p 3-4 ] Th e Complainan t

object s t o thi s arrangement stating :

" ...th e propose dbanne r

to w fee s ar e unreasonabl e an da n attemp t t o discourag e banne r to w operator s fromutilizin g Burke Lakefront Airport
. Moreover , us e o f th e wor d'initial ' indicate s apossibilit y tha t fe e structur e ma

y b e increase di n th e future
. An

y increas e i n fee s woul dmake banne r towin g a t

Burke Lakefron t

not economicall y feasible
. " [FAA Exhibi t 1 , Ite m8 , p . 7 ] Th e Complainan t

argue s tha t

becaus e th e City currentl y lacks an establishe dfee arrangemen t for banne r to w operators , i t

shoul dadop t

rate s assesse db y similarl y situate dairport s i n th e region
. [FAA Exhibi t

1 , Ite m8 , p . 8 ] Whil e th e Directo r realize s tha t

thi s methodolog y for

establishin g aeronautica l rate s an dcharge s i s commonl y use dwithi n th e genera l aviatio n community , thi s approac hma y not

accuratel y reflec t

airport sponsors ' airfiel dcosts . Gran t Assuranc e 24 , Fe e an dRenta l Structure , require s an airport sponso r t o maintai n afe e an drenta l structur e whic hwil l mak e th e airport

a s self-sustainin g a s possibl e unde r th e circumstance s existin g a t tha t particular airport
. Thi s i s bes t

achieve dthroug hth e us e o f arate-settin g methodolog y whic hquantifie s airfiel dcost s an dservice s currentl y i n us e an destablishe s charge s linke dt o thos e costs . [See Robert Kihlstro mv Port

o f Orcas . Washingto n State . FA A Docke t No . 16-02-07 , (Septembe r 1 , 2004 ) (Director' s Determination ) at 25 ] Federa l la w doe s no t prescrib e asingle approac ht o rate setting ; airport s may utiliz e thei r preferre dmethodolog y a s lon g a s tha t methodolog y i s applie d consistentl y t o similarl y situate daeronautica l user s an dconform s t o othe r requirement s outline d i n th e FAA' s Rate s an dCharge s Policy
. [See 6 1 Fed
. Re g 31944 , 3201 9 (Jun . 21,1996 ) an d Unio n Flights , Inc . v . San Francisc o Internationa l Airport an dCity & County o f

San Francisco
. FA A Docke t

No . 16-99-11 , (February 15 , 2000 ) (Director' s Determination ) a t 15 ] Ordinarily , th e FA A wil l not investigat e th e reasonablenes s o f agenera l aviatio n airport' s fee s absen t evidenc e o f

aprogressiv e accumulatio n o f surplu s aeronautica l revenues . [See 6 1 Fed
. Reg . 31944 , 3199 7 (Jun . 21 , 1996 ) an dWadsworthAirport Association
. Inc . v City o f Wadsworthan dWadsworthCity Council
. FA A Docke t No . 16-06-14 , (Augus t

8 , 2007 ) (Director' s Determination ) at 13-14 ] Th e Complainan t provide s n o detail s regardin g th e natur e o f Burk e Lakefront' s aeronautica l revenues . Nothin g i n th e Recor dsuggest s tha t th e propose d $2 0 pe r banne r towe dfee wil l resul t

i n surplu s aeronautica l revenues . Furthermore , th e2 0

Complainan t

ha s not establishe dtha t

th e propose dfe e exceed s th e Respondent' s cost s for providin g airfiel dservice s an dasset s currentl y i n use . Instead , th e Complainan t compare s th e propose dfee t o financial arrangement s mad e withothe r airport s wher e i t

conduct s banne r

to w activitie s an dstates , i n an affidavit : "The City' s propose dfe e structur e i s als o unreasonabl e an dexcessive
. Th e propose dfe e structur e make s operation s a t Burke Lakefron t

Airpor t not economicall y feasible
. " [FA A Exhibi t 1 , Ite m8 , exhibit

A , Tf7 ] Th e Responden t

state s tha t

it may incu r

ne w maintenanc e cost s an dadditiona l administrativ e cost s a s aresul t

o f banne r to w activities
. Specifically , th e Airpor t wil l likel y b e require dt o clear , mow , an dmaintai n a

n are anot presently used
. [FA A Exhibi t 1 , Ite m9 , p . 7 ] Th e Responden t

i s permitte dt o recove r

it s cost s associate dwithsupportin g thi s aeronautica l activity
. [See FA A Orde r 5190.6B , T|12.2.b. ] Whil e th e propose dfe e may see munreasonabl e for th e Complainant' s busines s plan , th e Complainan t ha s not documente dthat

$2 0 pe r banne r towe di s inconsisten t

withth e Respondent' s Federa l obligatio n t o mak e th e airport availabl e o n fair an dreasonabl e terms . Moreover , i t i s no t th e FAA' s responsibilit y t o establis hairport rates . [See JetAway Aviation
. Inc . v Montros e County , Colorad o an dth e Montros e County Buildin g Authority , FA A Docke t

No . 16-08-01 , (Jul y 2 , 2009 ) (Director' s Determination ) at 44] . Base d o n th e Recor dbefor e th e Director , th e $2 0 pe r banne r towe dfe e doe s no t

appear t o b e unreasonable
. Th e Complainan t

als o object s t o th e possibilit y that charge s for

banne r towin g coul db e increase d ove r time
. Th e Directo r

reject s thi s argumen t

a s speculative
. Again , Gran t Assuranc e 2 4 require s a n airport sponso r t o pursu e th e goal o f

self-sustainability
. Enterin g int o a n agreemen t whic hset s fee s i n perpetuity coul dpreven t th e sponso r

frommeetin g it s Federa l obligations
. I n fact , th e FA A recommend s airport sponsor s includ e escalatio n provision s for periodi c adjustment s whe n enterin g int o groun dlease s withterm s o f five o r mor e years . [See FA A Orde r 5190.6B , T|9.5.e. ; Wilson at 16 ; an dAerodynamic s o f Reading
. Inc . v Readin g Regiona l Airport Authority , FA A Docke t

No . 16-00-03 , (Decembe r 22 , 2000 ) (Director' s Determination ) at 19
- 20 ] Likewise , th e FA A anticipate s tha t airport sponsor s wil l revie w thei r lease s an dairfiel d charge s fromtim e t o tim e t o ensur e it s ongoin g complianc e wit hGran t Assuranc e 2 4 a s wel l a s it s ability t o bes t

serv e th e need s o f

it s aeronautica l publi c a s a n ongoin g concern . [See Wilson a t 16 ] Additionally , th e Complainant' s argumen t her e prematurel y implie s aviolatio n o f th e Respondent' s Federal obligations
. Unde r 1 4 CF RPart

16 , th e Directo r

canno t investigat e allegation s o f

an airport

sponsor' s gran t

assuranc e violation s i f

th e Complainan t

ha s no t ye t bee n harmed
. [Se e 1 4 CF RPart 16.23 ] Th e Responden t

may contemplat e afiature actio n whic h alter s it s fee schedule
. Bu t th e issu e i s not

rip e fo r revie w unti l th e Complainan t i s adversel y affecte db y it
. [See Northwes t Airlines , Inc. , Delt aAirlines , Inc. , AirTra n Airways , Inc. , Continenta l Airlines , Inc. , Southwes t Airlines , Inc . v Indianapoli s Airport Authority , Indianapoli s Internationa l Airport
. BAA-Indianapolis. , FA A Docke t No . 16-07-04 , (Augus t

18 , 2008 ) (Director' s Determination ) at 2 8 an d37 ]2 1 Summar y o f

Issu e Tw o In conclusion , th e FA A ha s identifie dthre e location s whic har e suitabl e for banne r towin g operation s a

t Burk e Lakefron t

Airport
. I f

th e Complainan t

stil l desire s t o begi n conductin g banne r to w operation s at

thi s Airport , th e Complainan t shoul dconside r

th e Respondent' s offe

r o f immediat e acces s unde r

ashort termagreemen t

an dwork

withth e City o n longe r

termacces s throug hit s administrativ e proces s t o revie w an dapprov e ne w aeronautica l businesse s a t th e Airport
. Whil e thi s proces s may b e cumbersome , th e Directo r doe s no t findi t t o b e unreasonabl e o r unjustl y discriminatory
. I t woul dnot

b e appropriat e for

th e Directo r

t o mak e findings concernin g propose do r

possibl e fiiture banne r

to w fees
. VII . CONCLUSIO N Upo n consideratio n o f

th e entir e Recor dherein , th e applicabl e la w an dpolicy , an dfor th e reason s state dabove , th e Directo r finds an dconcludes : (1 ) Th e Respondent' s conditiona l approva l o f th e Complainant' s reques t t o conduc t

banne r towin g operation s doe s no t constitut e a n unreasonabl e denia l o f acces s an di s no t

a violatio n o f

Gran t Assuranc e 22 , Economi c Nondiscrimination
. (2 ) Th e Respondent' s condition s for approva l o f

banne r towdng operation s at

BL K are no t sufficientl y unreasonabl e a s t o den y acces s o r unjustl y discriminat e agains t th e Complainan t

an dd o no t

constitut e aviolatio n o f

Gran t Assuranc e 22 , Economi c Nondiscrimination
. ORDE R Accordingly , i t

i s ordere dthat : 1 . Th e Complain t

i s dismissed ; an d 2 . Al l motion s no t

expressl y grante di n thi s Determinatio n ar e denied
.

RIGH T O FAPPEA L Thi s Director' s Determinatio n i s a n initia l agenc y determinatio n an ddoe s no t constitut e final agenc y actio n an dorde r

subjec t t o judicia l review
. [1 4 CF R16.247(b)(2). ] A party t o thi s Complain t

adversel y affecte db y th e Director' s Determinatio n ma y appea l th e initia l determinatio n t o th e FA A Associat e Administrato r for Airport s pursuan t

t o 1 4 CF R16.33(b ) withi n thirty (30 ) day s after servic e o f

th e Director' s Determination
.

Director ^ Dat e —, Zof o

Dat e Offic e o f Complianc e an dFiel dOperation sDRAK EAERIA LENTERPRISES , LL C d/b/ aAI RAMERIC A AERIA LAD S an d JAME S MILLE R
CIT Y O FCLEVELAN D DIRECTOR' S DETERMINATIO N DOCKE T NO . 16-09-0 2 Exhibi t 1 INDE X O FADMINISTRATIV E RECOR D Ite m1 Apri l 16 , 200 9 Notic e o f Appearanc e for

Complainant
. Ite m2 Apri l 16 , 200 9 Complain t filedb y Rebecc aE . Dupui s an dNatha n A . Hall , Attorney s fo r th e Complainant , o n behal f o f Drak e Aeria l Enterprise s d/b/ aAi r Americ aAerial Ad s an d Jame s Miller
. Exhibi t A Affidavi t

o f Rebecc aE . Dupui s date dApri l 16 , 2009 . Exhibi t B Affidavi t

o f Jame s R . Mille r

date dApri l 16 , 2009 . Exhibi t C Clevelan dHopkin s Internationa l Airport fac t shee t a s publishe dat http://www.clevelandairport.eom/site/414/default.asp x an dprinte do n Marc h25 , 2009 . Exhibi t D FA A Form501 0 "Airport Maste r Recor dfor

Burk e Lakefront

Airport , Date : Octobe r

27 , 2008 . Exhibi t E Propose dConcessio n Agreemen t betwee n th e City o f

Clevelan dan dAi r Americ aAeria l Ads , Inc . Exhibi t FOctobe r

21 , 200 8 lette r

fro mComplainant' s attorne y t o Burk e Lakefront Airport
. Exhibi t GOctobe r

27 , 200 8 electroni c mai l exchang e betwee n J . Arnold , Assistan t Directo r o f La w for th e Clevelan dAirport

Syste man dth e Complainant' s attorney . Exhibi t H Airport

Facilit y Directory listin g for Burk e Lakefron t

Airport , Septembe r 25 , 200 8 t o Novembe r

20 , 2008 . Exhibi t I January 22 , 200 9 lette r fromComplainant' s attorne y t o J . Arnold , Assistan t Directo r o f Law for th e Clevelan dAirport

System .Exhibi t J February 18 , 200 9 electroni c mai l fromJ . Arnold , Assistan t Directo r o f Law for th e Clevelan dAirport

Syste mt o Complainant' s attorney . Exhibi t K February 24 , 200 9 electroni c mai l fromJ . Arnold , Assistan t Directo r o f Law for th e Clevelan dAirport

Syste mt o Complainant' s attorney . Exhibi t LFebruary 24 , 200 9 electroni c mai l fromComplainant' s attorne y t o J . Arnold , Assistan t

Directo r o f La w for th e Clevelan dAirport

System , Ai r

Americ aAeria l Ads ' Certificat e o f

Authorizatio n t o conduc t banne r to w operation s for

February 29 , 200 8 throug hMarc h1 , 2009 , an dAi r Americ aAeria l Ads ' Certificat e o f Waiver for Banner
Towin g Operation s effectiv e February 20 , 2009 . Exhibi t M Marc h10 , 200 9 lette r fromComplainant' s attorne y t o J . Arnold , Assistan t Directo r o f Law for th e Clevelan dAirport

System . Exhibi t N Marc h13 , 200 9 electroni c mai l fromJ . Arnold , Assistan t Directo r o f Law for th e Clevelan dAirport

Syste mt o Complainant' s attorney . Exhibi t O Marc h25 , 200 9 electroni c mai l exchang e betwee n J . Arnold , Assistan t Directo r o f Law for th e Clevelan dAirport

Syste man dth e Complainant' s attorney . Exhibi t P Complainant' s busines s record s for th e Clevelan dare afrom199 8 an d 2008 . Ite m3 Apri l 22 , 200 9 FA A Notic e o f Dockete dComplain t

16-09-0 2 Ite m4 May 13 , 200 9 join t reques t for additiona l tim e for

Responden t

t o file it s answe r Ite m5 May 15 , 200 9 lette r fromth e FAA' s Offic e o f Chie f Counse l t o Attorney s for th e Complainan t

an dResponden t

grantin g th e Respondent' s extensio n t o May 26 , 2009 . Ite m6 May 26 , 200 9 Notic e o f Appearanc e for

Respondent
. Ite m7 May 26 , 200 9 Answe r filedb y Edwar dW . Saue r an dCharles F . Donley , II , Attorney s fo r th e Respondent
. Exhibi t A Ma

p o f Burk e Lakefron t

Airport indicatin g propose dare afor banne r to w operations
. Ite m8 Jun e 8 , 200 9 Repl y filedb y Rebecc aE . Dupui s an dNatha n A . Hall , Attorney s for th e Complainant
. Exhibi t A Affidavi t

o f Jame s R . Mille r

date dJun e 8 , 2009 .Exhibi t B Map s o f

Burk e Lakefron t

Airport indicatin g propose darea s fo r banne r to w operations
. Ite m9 Jun e 22 , 200 9 Rebutta l filedb y Edwar dW . Saue r an dCharles F . Donley , II , Attorney s for th e Respondent
. Exhibi t A Lette r

fro mLieutenan t

A . Chonk o o f

th e Clevelan dDepartmen t o f Publi c Safet y t o th e Airport

Operation s Manage r

date dJun e 18 , 2009 . Ite m1 0 Airport

Improvemen t

Progra mGran t

History o f

Burk e Lakefront

Airport
. Ite m1 1 Reques t

for Additiona l Informatio n fromth e Responden t date dAugus t

27 , 2009 . Ite m1 2 Septembe r

8 , 200 9 Repl y t o Reques t for Additiona l Informatio n fro mRespondent
. Ite m1 3 Notic e o f

Extensio n o f

Time , date dOctobe r

19 , 2009 . Ite m1 4 Octobe r

14 , 200 9 lette r

fromT . Leahy , FA A Aviatio n Safet y an dPrincipa l Operation s Inspector , t o T . Schauer , FA A Regiona l Complianc e Officer
. Ite m1 5 Notic e o f

Extensio n o f

Time , date dDecembe r

23 , 2009 . Ite m1 6 Notic e o f

Extensio n o f

Time , date dJanuary 15 , 2010 . Ite m1 7 Notic e o f

Extensio n o f

Time , date dFebruary 2 , 2010 .

# OrteM 11
- 

# O

, , r . r- . ^

X J^'ightStandard s U.S
. Departmen t Qr^a t Norther n Tec h Par

k II
. o f Transportatio n 25249 Countr yClu b Blvd
. Federa rAviaHo n Nort h Olmsted , Ohi o 44070 Administratio n October 14 , 200 9 Thoma s T . Schauer FAAAGL-622. 1 230 1 Universit

y Drive , Bldg
. 23 B Bismarck , N D 58504 Ph : 701-323-738 3 Cel l 701-471-097 9 Thomas : O n October

5'* " th e Clevelan dFSD O Coordinate daBanne r Towin g Demonstratio n a t Th e Clevelan dBurke Lalcefron t Airpor t (KBKL) . City o f Clevelan dAirport

Official s i n attendanc e fo r thi s Even t

were a s follows ; Khali dBahhur Clevelan dBurke Airport

Commissioner , Danie l Psimer Clevelan dBurk e Operation s Superintendent , Clevelan dBurke Assistant Directo r of La w Jac k M Arnold
. Clevelan dFSD O Official s i n attendanc e were Kri s A . Palch o Operation s Supervisor , Thoma s J . Leahy Aviatio n Safet

y andPrincipal Operation s Inspector , andtiie Clevelan dFSDO' s Subjec t Matter Exper t (SME) , banner

to w Pilo t Konra dBalunek , andgroun dcre w Ingri dBalunek
. Afte r ashor t Briefing , al l in attendanc e observe dth e se t up o f tw o banners , on e a

t th e approac hend o f Runwa y 24L , andon e sout

ho f taxiway 'G ' andadjacen

t t o taxiway 'B' . Bot

ho f thes e area s are outsid e o f th e airpor t AT C groun dcontro l movement are aandvisibl e fromth e AT C tower . I n order t o determin e suitability , a

n inspectio n o f

th e propose dsite s wa s accomplishe db y me , Da n Psimre , KonradandIngri dBalunek durin g th e wee

k precedin g thi s event . Th e banner

pick u p anddro p demonstratio n wa s observe dfro mdifferent

location s on th e Burke ' airport
. Kri s Palcho , an

dRaymon dJ . Bac aJr . th e Burk e Air Traffi c Manager

observe dfro

mth e Ai r Traffi c Contro l Tower . Khali dBahhur , Da n Psimer , Jack

Arnold , andThoma s Leahy observe d nea r th e respectiv e pic k

u p anddro p areas . Konradha dno t towe dfromthes e area s recently
. Therefore eac hcircui t

wa s accomplishe dfirst

by a n ove r flight, t o determin e i f

eac hto w coul db e accomplishe dsafely prio r

t o th e actua

l pick up . Weather condition s fo

r th e Dem o were hig hbroke n to overcas t cloud s wit

hbris k wes t wind s from 27 0 degree s a

t 1 4 mphgustin g t o 2 0 mph
. In additio n t o th e banner

to w demo atotal o f

9 additiona

l aircraf t operation s were accommodate d durin g th e fligh

t portio n of

th e dem o on e aircraf

t doin g touchan dg o landing s wa s aske dto exten d it' s down win dleg once . N o other airborn e aircraf

t wer e impacted
. Tw o taxin g aircraf t were affectedandexperience dshor t delay s of about 2 minutes
. On e hadt o dela y th e star t o f it s taxi an d another neede dto b e route dabi t

differently tha

n expected
. Thes e tax i delay s were fo r th e secon dpickup , in th e are asout ho f taxiway 'G ' adjacent

t o taxiwa y 'B' . N o delays were encountere dfo r any aircraf

t durin g th e se t

up o r teardow n of

th e groun dbase dequipment
. All groun doperation s wer e conducte dwel l clea

r o f AT C movemen t

areas . Eac hbarme

r groun dse t

u p wa s les s tha

n 2 0 minute s in duration
. Traffi c Operation s an dflo w durin g th e perio dwa s abou t normal fo

r thi s Airport
. Eac hto w wa s conducte dusin g th e normal trac k t o b e expecte dfo

r thi s typ e anddirectio n o f operation , an dinclude dacircui t o f th e Downtow n are ao f

Clevelan dprio r

t o th e drop
. Th e banner

to w aircraf

t departe dBK

Ljus t afte r 13:0 0 EDT , th e fly b y wa s complete a t 13:0 9 and returne da t 13:1 5 fo r asuccessfii l hoo k

o f 2 7 letter s o n th e first

attempt . Afte

r th e circui t

thi s banner wa s droppe dandrecovere do n target , A flyby o f th e secondbanner

wa s accomplishe dandafte r tw o attempt s asuccessfu l hoo k o f thi s banner

containin g 1 7 letter s wa s accomplished , followe dagai n b y a n uneventful dro p an drecovery . Th e secon dbanner was droppe dan dth e dem o over a t 13:4 8 EDT . (Note set up andrecovery o f

thi s event wa s accomplishe dusin g on e groun dbase dperso n b y thi s operator) . Th e aircraf

t use dfor thi s banner

to w was astandardcategor y F2 1 Taylorcraf

t modifie dwit

ha larger engin e andinstallatio n o f ato w hook
. Thi s aircraf

t i s typical o f

th e typ e expecte dfo

r a n operatio n o f

thi s sort . Followin g th e Demonstratio n a n informationa

l discussio n andshor

t debrie f wa s accomplished
. Al l involve dwer e invite dt o submi t thei r observation s o f

thi s event . Onl y Kri s Palch o an d Raymon dBac achos e t o comment . Kri s Palch o comments ; " / observe dthe se t

up fro mth e fieldan dth e in-flight operation s fromthe tower - Se t u p - appeare dt o hav e n o impac t on airpor t

operations
. Th

e cre w remaine dwel l outsid e the movemen t area s o f the airfield
. Pic k u p - sit e 1 (nort

ho f th e approac hen dof24L ) -2 7 lette r banner , becaus e ther e wer e misse dattempts , ther e was asmal l impac t on othe r operation s at

the field. -the tower controller s ha dn o difficult y makin g change s t o th e traffi c flow o n thi s da y -there wa s some questio n a s t o the communication s wit

hthe aircraf

t - us e o f th e phras e "procee da s requested " was chose n over the word s "cleared " o r

"operation s approved"
. ATC prompte dfo r

areques t when needed
. -th e operatio n in lin e wit

hthe runway prove dto b e simpl e an din n o wa y athreat fro mth e vie w tha t I had
. -the drop/recovery appeare dto be anon-event fro mthe tower

view Pic k u p - sit e 2 (sout

hofRW24L) -1 7 lette r banne r -agai n some delay i

n pic k up . Th e locatio n cause dmor

e delay/rerout e o f

traffi c becaus e th e pic k u p aircraf t was crossin g centerline s o f runway s AN

D taxiways
.-one re-rout e wa s o n tax i fo r departur e (bac k

taxi o f th e active ) an don e o n turn t o final fo r landin g-Again , ATC di dagrea t jo b a t makin g change s on th e fly. " -Pick up appeare drisk

y fro mthe tower

vie w - turn t o final, div e fo r

pic k up outsid e norma l movemen t area , crossin g the taxiwa y agai n on clim

b -phraseolog y ha s sam e concern s a s first pic k up . -th e dro p wa s uneventful fromth e tower view
. -th e tower controlle r

was no t expectin g th e coo l dow n time bu t agai n handle di t

easil y -Thi s spo t ma y b e more conduciv e t o eas t boun ddeparture s bu t

yo u stil l hav e t o cros s a taxiway
. My preferre dlocatio n wa s sit e 1 . les s maneuverin g fo r pic k u p an ddro p off

, les s impac t

o n airpor t operations , fewe r

change s to th e norma l traffi c flow " Raymon dBac acomments ; " 7 reall y don' t hav e to o muchto ad dfromth e brie f conversatio n tha t

we ha dfollowin g the demonstration , bu t I wil l giv e yo u aquick

reca p o f m y thoughts
. Fro ma controlle r standpoint , w e woul dprefe r th e first dem o are ab e use di f

an dwhen thi s operatio n come s t o fruition
. Whil

e bot harea s impac t

ai r traffi c movement, I believ e tha t th e are aeas t

o f taxiwa y "F " at the approac hen do f

Runwa y 24 Limpede s progres s the least
. Th e are asout

ho f taxiwa y "G " (2n ddem

o area ) woul dessentiall y shutdow n ou r Runup Pad , Taxiwa

y "G" , an d Runwa y 6R/24L , whil e the 1s t

dem o are awoul dminimally impac t taxiwa y "F " ari drunway 6R/24L . Unfortunately , I believ e Conra dpreferre dth e secon dare abut , a s I said , I a mlookin g a t

i t froma n ai r traffi c standpoin t

wher e it wil l hav e th e leas t

impac t o n airpor t

operations
. A s fo r the controller s here , th e onl y comment s that I hear dwere in regard s t o th e number o f banne r tower s that

woul db e permitte dt o operat e a t an y given time
. Wit

htha t bein g said , I don' t

want t o pu t th e "car t befor e th e horse " i n term s o f

that concern , phraseology , etc...I t i s m y understandin g tha t there wil l b e many more meeting s prio r t o thi s operatio n whichi s where thes e concern s will b e voiced. "
There ar e thre e possibl e site s t o conduc t Banner towin g a t KBKL . Th e tw o tha

t wer e use dfo r thi s demonstratio n were suitabl e withou t any improvements
. Th e thirdsite whic hi s nort han deas t th e approac hen

dof Runwa y 24 Lwoul dhav e require dsome mowin g prio r t o us e andadditionall y i s no t visibl e i n it s entiret

y fromth e AT C contro l tower , but agai n outsid e o f

th e AT C movement area . Th e ClevelandFlight

Standard s Offic e i s o f

th e opinio n tha

t i t i s reasonabl e to expec t

that banner towin g couldb e conducte dsafely fro mth e Clevelan dBurk

e Lakefront

Airport (KBKL) . Sincerely
THom ^ J . Leah

y Aviatio n Safet

y an dPrincipal Operation s Inspecto r

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^ X-te M I Z . ^ ^ U.S : DEPARTMEN TO F TRANSPORTATIO N ••FEDERA L AVIATIO

N ADMINISTRATIO

N AIRPOR TMASTE R RECOR D ^ ^ > 1 ASSO C CITY : MILWAUKE E 4 STATE ; W l LO C ID : MK E PRIN TDATE ; 10/22/200 9 AF D EF F 10/22/200 9 For m Approve d 0M B 2120-001 5 F/VASITENR : 27388,* A > 2 AIRPORT NAME : GENERA L MITCHEL L INT L 5 COUNTY : MILWAUKE E W l 3 CB D T O AIRPOR T (NM) : 0 5 3 6 REGION/ADO : AGL/MS P 7 SEC TAER O CHT : CHICAG O GENERA L SERVICE S 1 0 OWNERSHIP : P U > 7 0 FUEL : 100LL A > 1 1 OWNER : MILWAUKE E COUNT Y > 1 2 ADDRESS : 90 7 N 10T H S T > 7 1 AIRFRAM E RPRS : MAJO R

MILWAUKEE , W l 5323 3 = • 7 2 PW R PLAN TRPRS ; MAJO R »1 3 PHON E NR ; 414-747-530 0 > 7 3 BOTTL E OXYGEN : NON E > 1 4 MANAGER : C.B
. BATEMA N > 7 4 BUL KOXYGEN : HIG H > 1 5 ADDRESS : 530 0 S HOWEL L AV E 7 5 TSN TSTORAGE ; HG R

MILWAUKEE , W l 5320 7 7 6 OTHE R SERVICES : > 1 6 PHON E NR : 414-747-530 0 AMB , AVNCS , CARGO , CHTR , INSTR , RNTL , SALE S > 1 7 ATTENDANC E SCHEDULE : AL L AL L AL L ^^^,,,^^ 3 '80ARPTBCN : C G > 8 1 ARP TLG TSKED : DUSK-DAW N > 8 2 UNICOM - 12 2 95 0 1 8 AIRPOR T USE ; PUBLI C > 8 3 Z D INDICATOR - YES- L 1 9 ARP T LAT : 42-56-50.0000 N ESTIMATE D " 'p"r,' " 'p" ' ,"_ , p . J,nM p 087-53-47.7000 W SOL'^ - ' YE S 21ARPTELEV ; 72 3 SURVEYE D " „ „ ' rpEE N BA Y

' 8 8 FS S PHON E NR ; > 2 4 NON-COM M LANDING : N O 8 9 TOL L FRE E NR ; 1-800-WX-8RIE F 2 5 NPIAS/FE D AGREEMENTS;NGY 3 > 2 6 FAR 13 9 INDEX ; 1 C S 05/197 3

RUNWA Y DATA ^3 0 RUNWA

YIDENT : ^3 1 LENGTH ; -3 2 WIDTH : ^ 3 3 SUR F TYPE-COND : ' • 34 SUR F TREATMENT : 35 GROS S WT ; S W 3 6 (I N THSDS ) D W 3 7 DT W 3 8 DDT W • ' 39 PCN : LIGHTING/APC H AID S
= • 4 0 EDG E INTENSITY : > 42 RW YMAR KTYPE-COND : >43VGSI : 4 4 TH R CROSSIN G HGT ; 4 5 VISUA L GLID E ANGLE ; >46CNTRLN-TDZ : > 4 7 RVR-RW : M8REI L > 4 9 APC H LIGHTS : OBSTRUCTIO N DATA 5 0 FA R 7 7 CATEGORY ; >5 1 DISPLACE D THR : > 52 CTL G OBSTN ; > 5 3 OBST N MARKED/LGTD : > 5 4 HG T ABOV E RW

YEND : > 5 5 DIST FRO M RW

YEND : > 56 CNTRL N OFFSET : 5 7 OBST N CLN C SLOPE ; 5 8 CLOSE-I N OBSTN ; DECLARE D DISTANCE S > 6 0 TAK E OF F RU N AVB L (TORA) ; > 6 1 TAK E OF F DIST AVB L (TODA) - > 6 2 ACL T STO P DIS T AVB L (ASDA) : > 6 3 LND G DIST AVB L (LDA) : 01U19 R 01R/19 L 07U25 R 9,69 0 4,18 3 4,80 0 20 0 15 0 10 0 ASPH-CONC- F ASPH-CONC- F ASPH-CONC- F GRV D 100. 0 85. 0 30. 0 185. 0 115. 0 35. 0 350. 0 180. 0 55, 0
HIG H ME D ME D PIR-G/PIR- G NPI-G/NPI- G BSC-G/BSC - P4 R / P4 R / V4 L / P4 R 65/6 8 / 3 7 / 4 0 3,0 0 / 3.0 0 / 3.1 0 / 3,0 0 Y- Y / Y- N N- N / N- N N- N / N- N TM R - N /

TM R - N -N/- N -N/- N N / N Y/ N Y/ Y ALSF 2 / MALS R ' / PI R / PI R C / C A(V ) / A(V ) / 78 5 / / TRE E / FENC E ' TRE E TRE E / POL E / / / L 82/ 6 / 12 5 44/7 7 3,75 8 /24 9 / 4,33 6 1,29 8 / 1,72 7 985 L / 404 R ' 463 L 187 R / 195 R 44: 1 / 8; i S0; 1 / 33: 1 24: 1 / 19: 1 N / YN / N N / N / / / / / / / / / / / / BASE D AIRCRAF T 9 0 SINGL E ENG ; 9 1 MULT I ENG ; 9 2 JET ; TOTAL : 9 3 HELICOPTERS ; 9 4 GLIDERS ; 9 5 MILITARY ; 9 6 ULTRA-LIGHT ; OPERATION S 10 0 AI R CARRIER ; 102AIRT/Wei ; 10 3 G ALOCAL ; 104GAITNRNT ; 10 5 MILITARY : TOTAL ; OPERATION S FO R 1 2 2 3 1 9 6 8 11 0 0 0 9 0 68,56 7 107,77 5 2 8 17,61 9 2,05 6 196,04 5 MONTH S ENDIN G 09/01/200 8 |

07R/25 L 8,01 2 15 0 ASPH-CONC- F GRV D 100. 0 185, 0 350, 0
HIG H G PIR-G/PIR- G

P4 L / P4 L 5 6 /5 0 3.0 0 / 3,0 0 N- N /N- N T - N / - N N / Y MALS R / PI R / C /68 3 TRE E / POL E / L 8 0 /4 1 3,22 0 / 45 6 305 L / 464 L 37: 1 /8; 1 N / N / / / / (> ) ARP T MG R PLEAS E ADVIS E FS S I N ITE M 8 6 WHE N CHANGE S OCCU R T O ITEM S PRECEDE D B Y> I > 11 0 REMARKS ; A02 6 ARF F INDE X D EQUI P AVB L UPO N REQUEST
. A05 7 RW

Y1 3 APC H RATI O 27: 1 T O DSPLC D THLD ; 8 7 F TTRE E 237 5 F

TT O DSPLC D THLD ; 49 0 F TLEFT
. A05 7 RW

Y 19 R APC H RATI O 36: 1 T O DSPLC D THLD ; 10 0 F T TRE E 364 1 F

TT O DSPLC D THLD ; 90 1 F TRIGHT
. A05 7 RW

Y25 L RW

Y25 L APC H RATI O 29: 1 T O DSPLC D THLD ; 3 9 F TPOLE , 114 0 F

TT O DSPLC D THLD ; 54 4 FTLt F 1
. A05 7 RW

Y3 1 APC H RATI O 27; 1 T O DSPLC D THLD ; 4 2 F TR R 116 0 FTT O DSPLC D THLD ; 29 0 F TR
. A05 8 RW

Y 1 3 FENC E POS T19 7 F TF M R Y END ; 244 2 L O F CNTRLN
. A05 8 RW

Y19 R FENC E 14 8 F

TF M THLD ; 39 1 F

T R O F CNTRLN
.

11 1 INSPECTOR ; ( F ) 11 2 LAS TINSP ; 10/24/200 8 11 3 LAS TINF O REQ ;
FAA For m 5010- 1 (5-91 ) SUPERSEDE S PREVIOU S EDITIO N, W.S
. BEPARTMEN T O F TRANSPORTATIO N

I FEDERA L AVIATIO N ADMINISTRATIO N AIRPOR T MASTE R RECOR D PRIN TDATE ; 10/22/200 9 AF D EF F 10/22/200 9 Fom i Approve d OM B 2120-001 5 > 1 ASSO C CITY : > 2 AIRPORT NAME : 3 CB D T O AIRPOR T (NM) : 'CONTINUED"" * 4 STATE : W l 6 REGION/ADO : AGL/MS P LO C ID ; MK E 5 COUNTY ; 7 SEC T AER O CHT ; FA ASIT E NR ; 27388,* A GENERA L SERVICE S BASE D AIRCRAF T 1 0 OWNERSHIP ; >1 1 OWNER ; > 1 2 ADDRESS : > 1 3 PHON E NR : > 1 4 MANAGER : > 1 5 ADDRESS : > 1 6 PHON E NR ; ' 1 7 ATTENDANC E SCHEDULE ;

1 8 AIRPOR T USE ; 19ARPTL^T ; 2 0 ARP T LONG ; 2 1 ARP T ELEV ; 2 2 ACREAGE ; > 2 3 RIGH T TRAFFIC : > 24 NON-COM M LANDING : 2 5 NPIAS/FE D AGREEMENTS ; > 2 6 FAR 13 9 INDEX : >3 0 >3 1 >3 2 >3 3 >3 4 35 3 6 37 38 >3 9 >4 0 >4 2 >4 3 4 4 4 5 >4 6 >4 7 >4 8 >4 9 5 0 >5 1 >5 2 >5 3 >5 4 >5 5 >5 6 5 7 5 8 >6 0 >6 1 >6 2 >6 3 RUNWA

Y DATA RUNWA Y IDENT : LENGTH : WIDTH : SUR F TYPE-COND : SUR F TREATMENT : GROS S WT ; S W (I N THSDS ) DW

DT W DDT W PCN ; LIGHTING/APC H AID S EDG E INTENSITY ; RW YMAR KTYPE-COND : VGSI : TH R CROSSIN G HGT : VISUA L GLID E ANGLE ; CNTRLN-TDZ : RVR-RW ; REI L APC H LIGHTS : OBSTRUCTIO N DAT

A FA R 7 7 CATEGORY ; DISPLACE D THR : CTL G OBSTN : OBST N MARKED/LGTD : HG T ABOV E RW

Y END : DIST FRO M RW

Y END ; CNTRL N OFFSET : OBST N CLN C SLOPE : CLOSE-I N OBSTN ; DECLARE D DISTANCE S TAK E OF F RU N AVB L (TORA) : TAK E OF F DIST AVB L (TODA) : ACL T STO P DIS T AVB L (ASDA) : LND G DIST AVB L (LDA) : > 7 0 FUEL : >7 1 AIRFRAM E RPRS : >7 2 PW R PLAN T RPRS : > 7 3 BOTTL E OXYGEN ; > 7 4 BUL KOXYGEN ; 7 5 TSN TSTORAGE ; 7 6 OTHE R SERVICES ; 9 0 SINGL E ENG ; 9 1 MULT I ENG ; 9 2 JET ; TOTAL ; 9 3 HELICOPTERS ; 9 4 GLIDERS ; 9 5 MILITARY ; 9 6 ULTRA-LIGHT ; FACILITIE S >80ARPTBCN ; > 8 1 ARP T LG TSKED : > 8 2 UNICOM : > 8 3 WIN D INDICATOR : 8 4 SEGMENTE D CIRCLE ; 8 5 CONTRO L TWR ; 8 6 FSS ; 8 7 FS S O N ARPT ; 8 8 FS S PHON E NR ; 8 9 TOL L FRE E NR ; OPERATION S 10 0 AI R CARRIER ; 10 2 AI R TAXI ; 10 3 G ALOCA L 104GAITNRNT : 10 5 MILITARY ; TOTAL ; OPERATION S FO R 1 2 MONTH S ENDIN G

13/3 1 5,86 8 15 0 ASPH-CONC- F 80, 0 110, 0 170, 0
ME D NPI- G / NPI- G P4 L / P4 R 5 4 / 5 5 3,0 0 / 3,0 0 N- N /N- N

- N / - N Y / Y B(V ) / B(V ) 74 1 / 53 4 POL E / R R L / L 3 3 /4 2 48 6 / 62 6 69 L / 295 R 8: 1 / 10: 1 Y / N / / / I (> ) ARP T MG R PLEAS E ADVIS E FS S I N ITE M 8 6 WHE N CHANGE S OCCU R T O ITHM S PRECEDE D B Y> > 11 0 REMARKS : A11 0 THI S AIRPOR T HAS BEE N SURVEYE D B Y TH E NATIONA L GEODETI C SURVEY , A110- 1 R

Y 07L/25 R CLS D T O AL L JE T ACF T & ACF T DESIG N GROU P Bil l 8
. LARGER , A110- 2 TW

Y 'A ' CLS D F M TW

Y 'R ' T O 'E ' & TW

Y 'E ' CLS D F M TW

Y TT O 'M ' AN D TW

YTCLS D F M R

Y07R/25 L T O TWY'E ' T O DC1 0 B74 7 C- 5 & MD1 1 DURIN G CA T I I i
. Il l OPNS
. A110- 3 R

Y 13/3 1 CLS D TURBOJE TACF TW/OPPRAMGR-CAL L 414-747-5325
. A110- 4 RW

Y1 R CLS D TURBOJE T TKOFS
. A110- 5 TRN G FLGT S INVOLVIN G SUCCESSIV E US E O F AN Y R Y PROHIBITE D 2200-0600 , A110- 6 RYS 13/3 1 & 01R/19 L & 07L/25 R CLS D EXC P LG TWT SINGL E EN G ACF T2200-060 0 DLY ,
11 1 INSPECTOR : { F ) 11 2 LAS T INSP ; 10/24/200 8 11 3 LAS T INF O REQ ; F/V A For m 5010- 1 (5-91 ) SUPERSEDE S PREVIOU S EDITIO N# U.S
. DEPARTMEN T O F TRANSPORTATIO N

FEDERA L AVIATIO N ADMINISTRATIO N AIRPOR T MASTE R RECOR D PRIN TDATE ; 10/22/200 9 AF D EF F 10/22/200 9 For m Approve d OM B 2120-001 5 > 1 ASSO C CITY : > 2 AIRPORT NAME : 3 CB D T O AIRPOR T (NM) ; "CONTINUED " 4 STATE ; W l 6 REGION/ADO ; AGL/MS P LO C ID ; MK E 5 COUNTY ; 7 SEC T AER O CHT ; FA ASIT E NR : 27388.* A GENERA L SERVICE S 1 0 OWNERSHIP ; >1 1 OWNER : > 1 2 ADDRESS : > 1 3 PHON E NR : > 1 4 MANAGER : > 1 5 ADDRESS ; > 1 6 PHON E NR : > 1 7 ATTENDANC E SCHEDULE ;

1 8 AIRPORT USE ; 1 9 ARP T LAT : 2 0 ARP T LONG ; 2 1 ARP T ELEV ; 2 2 ACREAGE ; > 2 3 RIGH T TRAFFIC ; >2 4 NON-COM M LANDING : 2 5 NPIAS/FE D AGREEMENTS ; >2 6 FAR 13 9 INDEX : BASE D AIRCRAF T >7 0 FUEL :

>3 0 >3 1 >3 2 >3 3 >3 4 35 3 6 3 7 3 8 >3 9 >4 0 >4 2 >4 3 4 4 4 5 >4 6 >4 7 >4 8 >4 9 5 0 >5 1 >5 2 >5 3 >5 4 >5 5 >5 6 5 7 5 8 >6 0 >6 1 >6 2 >6 3 RUNWA

YDATA RUNWA YIDENT ; LENGTH ; WIDTH : SUR F TYPE-COND : SUR F TREATMENT ; GROS S WT ; S W (I N THSDS ) D W

DT W DDT W PCN : LIGHTING/APC H AID S EDG E INTENSITY : RW YMAR KTYPE-COND : VGSI : TH R CROSSIN G HGT ; VISUA L GLID E ANGLE ; CNTRLN-TDZ : RVR-RW : REI L APC H LIGHTS : OBSTRUCTIO N DATA FAR 7 7 CATEGORY : DISPLACE D THR : CTL G OBSTN : OBST N MARKED/LGTD : HGTABOVERWYEND ; DIST FRO M RW

YEND ; CNTRL N OFFSET ; OBST N CLN C SLOPE ; CLOSE-I N OBSTN ; DECLARE D DISTANCE S TAK E OF F RU N AVB L (TORA) ; TAK E OF F DISTAVB L (TODA) ; ACL T STO P DIS T AVB L (ASDA) ; LND G DIST AVB L (LDA) : > 7 1 AIRFRAM E RPRS : > 7 2 PW R PLAN TRPRS ; > 7 3 BOTTL E OXYGEN ; > 7 4 BUL KOXYGEN ; 7 5 TSN TSTORAGE ; 7 6 OTHE R SERVICES ; 9 0 SINGL E ENG ; 9 1 MULT I ENG ; 9 2 JET ; TOTAL ; 9 3 HELICOPTERS : 9 4 GLIDERS ; 9 5 MILITARY ; 9 6 ULTRA-LIGHT ; FACILITIE S >80ARPTBCN ; >8 1 ARP TLG T SKED : > 8 2 UNICOM : > 8 3 WIN D INDICATOR ; 8 4 SEGMENTE D CIRCLE ; 8 5 CONTRO L TWR ; 8 6 FSS ; 8 7 FS S O N ARPT ; 8 8 FS S PHON E NR ; 8 9 TOL L FRE E NR ; OPERATION S 10 0 AI R CARRIER : 10 2 AI R TAXI ; 10 3 G ALOCA L 104GA1TNRNT ; 10 5 MILITARY ; TOTAL ; OPERATION S FO R 1 2 MONTH S ENDIN G

(> ) ARP T MG R PLEAS E ADVIS E FS S I N ITE M 8 6 WHE N CHANGE S CJCCU R T O ITEM S PRECEDE D BY> > 11 0 REMARKS ; A110- 8 BIRD S O N & INVO F ARPT , A110- 9 PREFERRE D USAG E B YACF TBT N 2200-060 0 I S TKO F R Y 19 R & LND G R

YOIL , A110-1 0 AL L APCH S AR E OVE R NOIS E SENSITIV E AREAS ; AL L TURBOJE TACF TSHOUL D REFRAI N F M CONDUCTIN G MULT I VF R TF C PATTER N APCH S &

DEP S W O PRIO R APV L F M AMG R CAL L C414-747-5325 , A110-1 1 TW

Y B CLS D BT N TWY S 'G ' & 'D'.'R ' & Al ' T O B74 7 AN D LARGE R TYP E ACF TWITHOU TPRIO R PERMISSIO N F M AMG R A T414-747-5235 , A110-1 4 RYS 07L/25 R & 01R/19 L 8 i TWY S H/J/ P NOTAUTHORIZE D UNDE R FA R PAR T13 9 FO R SCHE D OPN S INVOLV AC R ACF TDESIGNE D FO R 1 0 O R

MOR E PASSENGE R SEAT S AN D SCHED/UNSCHE D AC R OPN S INVOLV ACF T DESIGNE D 3 1 O R MOR E PASSENGE R SEATS
. A110-2 3 ANG ; PP R AL L ACFT
. 48H R PN , CT C AFL D OP S DS N 580-8241 , C414-944-8241
. 128AR W I S AFULL YOPERATIONA L KC-135 R BAS E WIT H HR S O F OPERATIO N MON-FR I 1200Z-1930Z , CLOSE D HOLIDAYS , SAT-SU N (EXCEP T UTA'S) , CAL L FO R AVAILABILITY
. A110-2 4 ANG ; AN YMDS' S (OTHE R THA N KC-135 ) I S LIMITE D T O STANDAR D TRANSIEN TMARSHALLIN G AN D PARKING , N O TECHNICA L DAT AAVAILABL E FO R TRANSIEN T MAINTENANCE
. FUE L AN D AG E EQUIPMEN TSUPPOR TAVAILABL E FO R SELF-SERVICE , THER E AR E N O ADDITIONA L 11 1 INSPECT3SWFIGHRA-ntON)ITEM S SlltPBSWrBteSUC H A^MH/WO i PODS , ED M PQB5ABTQNF 0 REQ ; FA AForm 5010- 1 (5-91 ) SUPERSEDE S PREVIOU S EDITIO N, U. & DEPARTMEN T O F TRANSPORTATIO N

I FEDERA L AVIATIO N ADMINISTRATIO N AIRPOR T MASTE R RECOR D PRIN TDATE ; 10/22/200 9 AF D EF F 10/22/200 9 For m Approve d OM B 2120-001 5
' 1 ASSO C CITY : • 2 AIRPORTNAME ; 3 CB D T O AIRPOR T (NM) ; •CONTINUED* ' 4 STATE ; W l 6 REGION/ADO ; AGL/MS P LO C ID : MK E 5 COUNTY ; 7 SEC TAER O CHT ; FA ASIT E NR ; 27388.* A GENERA L SERVICE S 1 0 OWNERSHIP ; >1 1 OWNER : > 1 2 ADDRESS : M 3 PHON E NR : > 1 4 MANAGER : > 1 5 ADDRESS ; > 1 6 PHON E NR ; > 1 7 ATTENDANC E SCHEDULE :

1 8 AIRPOR TUSE ; 1 9 ARP T LAT ; 2 0 ARP T LONG ; 2 1 ARP T ELEV ; 2 2 ACREAGE ; =•2 3 RIGH T TRAFFIC : > 2 4 NON-COM M LANDING : 2 5 NPIAS/FE D AGREEMENTS ; > 2 6 FA R 13 9 INDEX ;

RUNWA YDATA > 3 0 RUNWA

YIDENT : > 3 1 LENGTH : > 3 2 WIDTH ; > 3 3 SUR F TYPE-COND : > 34 SUR F TREATMENT ; 35 GROS S WT : S W 3 6 (I N THSDS ) D W 3 7 DT W 3 8 DDT W > 3 9 PCN : LIGHTING/APC H AID S >4 0 EDG E INTENSITY ; > 4 2 RW Y MAR KTYPE-COND ; > 4 3 VGSI : 4 4 TH R CROSSIN G HGT ; 4 5 VISUA L GLID E ANGLE ; > 4 6 CNTRLN-TDZ ; > 4 7 RVR-RW : > 4 8 REI L > 4 9 APC H LIGHTS : OBSTRUCTIO N DATA 5 0 FA R 7 7 CATEGORY : >5 1 DISPLACE D THR ; > 52 CTL G OBSTN : > 5 3 OBST N MARKED/LGTD : > 5 4 HG T ABOV E RW

YEND : > 55 DIST FRO M RW

YEND : ' 5 6 CNTRL N OFFSET : 5 7 OBST N CLN C SLOPE ; 58 CLOSE-I N OBSTN ; DECLARE D DISTANCE S > 6 0 TAK E OF F RU N AVB L (TORA) ; > 6 1 TAK E OF F DIS T AVB L (TODA) : > 6 2 ACL T STO P DIST AVB L (ASDA) ; > 6 3 LND G DIST AVB L (LDA) ; •7 0 FUE L BASE D AIRCRAF T
>7 1 AIRFRAM E RPRS : ' 7 2 PW R PLAN TRPRS : > 7 3 BOTTL E OXYGEN ; > 7 4 BUL KOXYGEN ; 7 5 TSN TSTORAGE ; 7 6 OTHE R SERVICES ;

FACILITIE S >80ARPTBCN : >8 1 ARP TLG T SKED : > 8 2 UNICOM : > 8 3 WIN D INDICATOR ; 8 4 SEGMENTE D CIRCLE ; 8 5 CONTRO L TWR : 8 6 FSS ; 8 7 FS S O N ARPT ; 8 8 FS S PHON E NR ; 8 9 TOL L FRE E NR ; 9 0 SINGL E ENG ; 9 1 MULT I ENG ; 9 2 JET ; TOTAL ; 9 3 HELICOPTERS ; 9 4 GLIDERS ; 9 5 MILITARY ; 9 6 ULTRA-LIGHT ; OPERATION S 10 0 AI R CARRIER ; 10 2 AI R TAXI ; 103 G ALOCA L 104GAITNRNT ; 10 5 MILITARY ; TOTAL ; OPERATION S FO R 1 2 MONTH S ENDIN G

(> ) ARP T MG R PLEAS E ADVIS E FS S I N ITE M 8 6 WHE N CHANGE S CXiCU R T O ITEM S PRECEDE D B Y> > 11 0 REMARKS : A110-2 5 ANG ; EN D O F RUNWA YFACILITIES , AIRCRAF T SHELTERS/REVETMENTS , AN D ALER TFACILITIE S AR E NO TAVAILABLE
. AFLD/ACF TPARKIN G CONCERN S INCLUDE ; LIMITE D STATI C GROUNDIN G POINT S AN D N O AIRCRAF TTI E DOW N POINTS
. A110-2 6 ANG ; N O FLEE T SVC/HO T CARG O PARKIN G AVAILABLE , CT C UPSE TCTR L 2 0 MI N PRIO R T O AR R T O RC V CURREN TBIR D WATC H CON D AN D

PARKIN G INFO
. A110-2 7 ASDE- X SURVEILLANC E SYSTE M I N USE ; PILOT S SHOUL D OPERAT E TRANSPONDER S WIT H MOD E ' C O N AL L TWY S & RYS
. A110-2 8 TW

Y 'D' , 'D1' , 'H' , 'J' , ' F (WO F TW Y 'Z ' & E O F R

Y 01Lyi9R ) CLS D T O DC- 9 ACF T8 , LARGE R WITHOU TPP R CAL L ARP TMANAGE R 414-747-5325 , A110-42 R

Y HOL D SIG N LCT D O N TW Y D FO R NBN D TF C T O HOL D RETROREFLECTIV E ONLY , HOL D SHOR TSIG N WTW YG FO R R Y13/3 1 RETROREFLECTIV E ONLY , A110-4 6 ACFTTAXIIN G FO R DE P O N RY25 L VI AEITHE R TW Y M O R R

Y13/3 1 SHOUL D REMAI N VIGILAN TFO R TH E LOCATIO N O F HOLDIN G POSITIO N SIGNS/MARKING S FO R R Y25L , A110-4 7 TWY S H/J/ P NO TAUTHORIZE D UNDE R FA R PAR T 13 9 FO R SCHE D OPN S INVOLV AC R ACF TDESIGNE D FO R 1 0 O R MOR E PASSENGE R SEAT S 11 1 INSPEC'M!ieSCHfD/UNSpHEOA3fe(I[raSINS0LVACPIDiQCfiBHED3OO R MOnteFU«S3SNeeRR6Q<VTS , FAAFor m 5010- 1 (5-91 ) SUPERSEDE S PREVIOU S EDITIO N• u s . BEPARTMEN T O F TRANSPORTATIO N

FEDERA L AVIATIO N ADMINISTRATIO N AIRPOR T MASTE R RECOR D

> 1 ASSO C CITY ; > 2 AIRPORT NAME : 3 CB D T O AIRPOR T (NM) ; •CONTINUED " 4 STATE ; W l 6 REGION/ADO ; AGUMS P LO C ID : MK E 5 COUNTY ; 7 SEC TAER O CHT ; PRIN TDATE ; 10/22/200 9 AF D EF F 10/22/200 9 For m Approve d OM B 2120-001 5 FA ASIT E NR ; 27388.* A GENERA L SERVICE S 1 0 OWNERSHIP ; •1 1 OWNER : •1 2 ADDRESS ; •1 3 PHON E NR : • 1 4 MANAGER : •1 5 ADDRESS ; •1 6 PHON E NR : • 1 7 ATTENDANC E SCHEDULE ;

1 8 AIRPOR T USE ; 1 9 ARP T LAT ; 2 0 ARP T LONG ; 2 1 ARP T ELEV : 2 2 ACREAGE ; > 2 3 RIGH T TRAFFIC ; > 2 4 NON-COM M LA,NDING : 2 5 NPIAS/FE D AGREEMENTS : > 2 6 FAR 13 9 INDEX ; > 7 0 FUE L

>3 0 >3 1 >3 2 >3 3 >3 4 3 5 3 6 3 7 3 8 >3 9 M O >4 2 >4 3 4 4 4 5 M 6 M 7 >4 8 >4 9 5 0 >5 1 >5 2 >5 3 >5 4 >5 5 >5 6 5 7 5 8 >6 0 >6 1 >6 2 >6 3 RUNWA

YDATA RUNWA YIDENT ; LENGTH : WIDTH ; SUR F TYPE-COND ; SUR F TREATMENT ; GROS S WT : S W (I N THSDS ) D W

DT W DDT W PCN ; LIGHTING/APC H AID S EDG E INTENSITY : RW Y MAR KTYPE-COND ; VGSI ; TH R CROSSIN G HGT ; VISUA L GLID E ANGLE ; CNTRLN-TDZ : RVR-RW ; REI L APC H LIGHTS ; OBSTRUCTKD N DATA FA R 7 7 CATEGORY : DISPLACE D THR : CTL G OBSTN : OBST N MARKED/LGTD : HG T ABOV E RW

Y END : DIST FRO M RW

Y END : CNTRL N OFFSET : OBST N CLN C SLOPE ; CLOSE-I N OBSTN ; DECLARE D DISTANCE S TAK E OF F RU N AVB L (TORA) ; TAK E OF F DIS T AVB L (TODA) : ACL T STO P DIST AVB L (ASDA) ; LND G DIST AVB L (LDA) : > 7 1 AIRFRAM E RPRS ; > 7 2 PW R PLAN TRPRS ; > 7 3 BOTTL E OXYGEN ; > 7 4 BUL KOXYGEN ; 7 5 TSN TSTORAGE ; 7 6 OTHE R SERVICES ;

FACILITIE S > 8 0 ARP TBCN : >8 1 ARP TLG TSKED ; > 8 2 UNICOM : > 8 3 WIN D INDICATOR : 8 4 SEGMENTE D CIRCLE ; 8 5 CONTRO L TWR : 8 6 FSS ; 8 7 FS S O N ARPT : 8 8 FS S PHON E NR ; 8 9 TOL L FRE E NR ; BASE D AIRCRAF T 9 0 SINGL E ENG ; 9 1 MULT I ENG ; 9 2 JET ; TOTAL ; 9 3 HELICOPTERS : 9 4 GLIDERS ; 9 5 MILITARY ; 9 6 ULTRA-LIGHT ; OPERATION S 10 0 AI R CARRIER ; 10 2 AI R TAXI : 10 3 G ALOCA L 104GAITNRNT : 10 5 MILITARY ; TOTAL ; OPERATION S FO R 1 2 MONTH S ENDIN G

(> ) ARP T MG R PLEAS E ADVIS E FS S I N ITE M 8 6 WHE N CHANGE S CXICU R T O ITEM S PRECEDE D B Y> •11 0 REMARKS : A110-4 8 R

Y07L/25 R N O ACFT 65,00 0 POUND S O R GREATE R TAX I BT N TW YC & TWTi ' E
. A110-4 9 TW

Y V AVB L FO R AL L TYP E ACF TWIT H 845 0 F T AVBL
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YB BTWTW YR AN D TW YA 3 A110-5 1 TW

Y R3 CLS D WES T O F TW Y R

11 1 INSPECTOR : ( F ) 11 2 LAS T INSP ; 10/24/200 8 11 3 LAS T INF O REQ ;
FA AFor m 5010- 1 (5-91 ) SUPERSEDE S PREVIOU S EDITIO N

## FM_:£>chib H i^ieiMi A DocLr ^ Jackso n ®

Wade , L.L.C ,

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## JETLAW.CO M Vi aFederal Expres s Marc h30 , 200 9 Mr . Randal l Fiert z Director , Offic e o f

Airport Complianc e An dFiel dOperation s Federal Aviatio n Administratio n Orvill e Wrigh t

Bldg
. (FOBIOA ) 80 0 Independenc e Ave. , S.W . Washington , D.C . 2059 1 Re : Reques t

fo r Complianc e Advic e Dea r Mr . Fiertz : Ken t S . Jackso n Admitte di n Distric t

o f Columbia , Kansas , Missour i an dNew Yor k Michell e M . Wad e Admitte di n Distric t

o f Columbia , Kansa s an dMissouri Lor i N . Edward s Admitte di n Kansa s an dMissour i

Dillo n L . Stroh m Admitte di n Kansa s Phi l Crowthe r O f Counse l Admitte di n Kansa s
W e represen t

Sterlin g Aviatio n ("Sterling") , atenan t o f Genera l Mitchel l Internationa l Airport ("GMIA" ) i n Milwaukee , Wisconsin
. Sterlin g an dGMI A hav e bee n i n disput e regardin g Sterling' s fuelin g right s relativ e t o similarl y situate dairport tenants . O n Augus t

12 , 200 8 counse l for

GMIA , Anderso n & Kreige r LL P submitte dalette r

(hereafte r th e "Letter" ) purportin g t o seek guidanc e t o hel p facilitat e th e local resolutio n o f th e dispute
. Anderso n & Kriege r

LL Pdi dnot

speak withSterlin g an dwa s clearl y unawar e o f several pertinen t facts
. Unfortunately , th e Lette r containe dvariou s materia l omission s an dmisstatement s that w e believ e woul dhav e resulte di n adifferent respons e fro mth e FA A i f th e fiill fact s wer e disclosed
. W e wis ht o clarif y th e misstatement s an domission s an dsee k guidanc e o n apropose d solution
. Cessn aAircraf

t Compan y ("Cessna" ) i s atenan t a t GMI A an dprovide s variou s specialize d aircraf t repai r service s unde r

thei r Part 14 5 Repai r

Station
. GMI A ha s grante dCessn ath e righ t t o dispens e fiiel t o serv e th e need s o f it s customers , busines s invitees , an dguests . Sterlin g doe s not contes t Cessna' s right s unde r

thei r lease , no r

d o the y contes t

GMIA' s ability t o gran t

suc hrights
. Sterlin g onl y seek s t o b e grante dth e sam e o r similar right s a s asimilarl y situate dairport tenant . Sterlin g meet s th e sam e GMI A Minimu mStandar dtha t Cessn ameets . Specialize dAircraf t Repai r Services
. Jus t

lik e Cessna , Sterlin g provide s variou s specialize daircraf t repai r service s unde r Sterling' s Part

14 5 Repai r

Statio n certificat e i n additio n t o servin g a s aPart 13 5 charte r operator . Like Cessna , Sterlin g doe s no t fiiel transien t

aircraft
. Allowin g Sterlin g t o continu e fuelin g aircraf

t that i t perform s maintenanc e o n woul dnot violat e GMIA' s AI P gran t assurances , bu t t o den y Sterlin g suc hright s woul dviolat e GMIA' s AI P gran t assurance s b y grantin g a n

EMAI L COUNSEL@JETLAW.CO M TE L (913 ) 338-170 0 | FA X (913 ) 338-175 5 2162 8 MIDLAN D DRIVE , SHAWNEE , KANSA S 6521 8Mr . Randal l Fiert z

Marc h30 , 200 9 Pag e 2 o f 5 exclusiv e us e an dpreventin g th e airport facility fro mbein g availabl e o n fair an dreasonabl e term s withou t

unjus t discrimination
. Sterlin g present s th e followin g question s i n hope s o f resolvin g thi s issu e wit hGMIA : 1 ) Doe s Sterlin g mee t

th e GMI A Minimu mStandard s o f aSpecialize dAircraf

t Repai r Service s provider ? 2 ) I s Sterlin g similarl y situate dt o Cessna ? 3 ) Woul di t

b e unjus t discriminatio n t o den y Sterlin g th e sam e o r similar fuelin g right s a s Cessna ? Sterlin g ha s propose dtha t th e partie s see k

FAA-approve dmediatio n a s provide di n 1 4 C.F.R . 16.21(a) t o reac han informal resolution , but GMI A ha s refiised
. W e understan dtha t th e FAA carmo t

prejudg e apotentia l fiature Part 1 6 complaint , bu t

w e see k th e FAA' s guidanc e with respec t t o th e curren t

dispute
. It

i s ou r goa l t o provid e aworkabl e solutio n tha t allow s Sterlin g t o continu e t o hav e similar

right s a s Cessn awhil e providin g GMI A withassuranc e tha t suc ha cours e o f actio n woul dnot

violat e thei r

AI P gran t

assurance s Factua l Backgroun d Sterlin g Leas e To mScott

founde dScott

Ai r Charte r ("Scott Air" ) i n Jul y o f

198 3 an dsubsequentl y move do n t o th e airport

ground s o f

GMI A o n o r

abou t Jun e 1,1984 . Scott

Ai r Charte r receive dit s Part

14 5 Repai r Statio n Certificat e fro mth e FA A o n Septembe r 1 , 1993 . Fro m198 4 unti l 2004 , Scott Ai r ha dalway s fuele dal l th e aircraf t i n it s hangar , whethe r

the y wer e operate da s Part 13 5 o r Part 9 1 flights. I n Apri l 1997 , Scott

Ai r entere dint o aleas e 'wit

hMilwauke e County for

propert y at

GMI A ("Lease") . In Marc ho f

2004 , Sterlin g Aviatio n Holding s acquire dth e stoc k o f Scott Ai r an d change dth e nam e t o Sterlin g Aviation
. Thus , Sterlin g i s th e sam e exac t entity tha t

ha s bee n operatin g at

GMI A for

nearl y 2 5 years . Th e Leas e permit s Sterlin g t o "operat e an dmaintai n for it s us e a n aircraf t hangar , togethe r

withnecessary appurtenan t facilities , for

th e purpos e o f storage , repair , fueling , maintenance , an doperatio n o f Lessee' s owne do r

lease daircraft. " Lease , II3.A . Th e Leas e give s Sterlin g th e righ t t o us e th e existin g o r

instal l it s ow n aviatio n ftiel an doi l storag e facilitie s i n it s leasehol dareas . Se e Lease , ^ 8 . Th e Leas e limit s Sterlin g fuelin g right s "t o thos e wh o own , lease , ren t o r operat e aircraf

t for exclusiv e us e o f

Lessee , i t

bein g expressl y understoo dthat

th e permissio n grante dherei n i s intende dt o authoriz e th e storag e o f sai d product s fo

r us e i n airplane s owned , leased , rented , o r operate dexclusivel y b y o r for Lessee. " Leas e ] f 8.E . Cessn aLeas e In Augus t 1989 , Cessn aentere dint o aleas e withMilwauke e County for property at

GMI A ("Cessn aLease") . Th e Cessn aLeas e permit s an dCessn aha s installe d"[ajviatio n fixel storag e an ddispensin g facilitie s t o serv e th e requirement s o f Lesse e an dit s customers , busines s invitees
.Mr . Randal l Fiert z

Marc h30 , 200 9 Pag e 3 o f 5 an dguests.... " Cessn aLease , T j 11 . I n fact , Cessn ai s allowe dt o engag e i n an y activity s o lon g a s i t agree s "tha t

i t wil l no t engag e i n an y othe r

practice s normall y considere dthos e o f afixe dbas e operator. " Cessn aLease , ^ 3 . A . GMI A doe s no t vie w th e fixeling o f

"customers , busines s invitees , an dguests " a s a"practic e normall y considere d[that ] o f afixedbas e operator " o r suc h languag e woul dno t

hav e bee n include di n th e Cessn aLease . Unlik e th e narro w fiaeling restriction s i n th e Leas e withSterlin g (whic hlimit s fiieling t o "airplane s owned , leased , rente do r operate dexclusivel y b y o r for [Sterling] " Leas e ^ 8.E) , Milwauke e County allow s broa dfiieling right s "t o customers , busines s invitees , an dguests. " Cessn aLease , f

11 . W e d o not

believ e Cessna' s fuelin g right s ar e unreasonabl e a s specifie d above , rathe r

w e refer t o the monl y a s an exampl e o f Milwauke e County' s discriminator y practic e grantin g disparat e fuelin g right s t o similarl y situate dCommercia l Operator s at GMIA . GMIA' s MinimumStandard s Milwauke e County (th e "County") , a s th e owner , operato r an dsponso r

o f GMIA , ha s establishe d th e Minimu mStandard s applicabl e t o th e airport
. Th e Minimu mStandard s se t fort h"th e minimu mrequiremen t

for aperson , firm , o r

corporatio n basedupo n an dengagin g i n on e o r mor e selecte dcommercia l aeronautica l operations... " Minimu mStandards , Introductory
. GMI A Minimu mStandard s provid e for tw o different

categorie s o f

maintenanc e an drepair
. Airfram e an dEngin e Maintenanc e An dRepai r and/o r Modificatio n require s Part 14 5 Clas s 1 an d3 airframe rating s a s wel l a s aClas s 1 powerplan t rating
. Neithe r

Sterlin g no r

Cessn ahol dsuc h ratings
. Rathe r

bothCessn aan dSterUn g hol dLimite dRating s for specifi c make s an dmodels
. B y natur e o f

th e Part 14 5 Limite dRatin g bot hSterlin g an dCessn awoul dmee t th e GMI A Minimu mStandard s for

Specialize dAircraf

t Repai r Services
. Th e Lette r

o n pag e 3 , paragrap hstate s tha t "FBO' s providin g 'lin e services ' ar e th e onl y aeronautica l servic e provider s tha t ar e authorize db y th e Minimu mStandard s t o engag e i n th e 'sal e an dinto-plan e delivery o f recognize dbrand s o f

aviatio n fiiel.' Minimu mStandards , 1 | A.l. " Th e Letter

the n state s tha t

Sterlin g i s not

an FB O o r

a"lin e services " provide r unde r th e Minimu mStandards
. Sterlin g agree s tha t the y ar e not

an FB O an dfiirther

note s tha t

Cessn ai s als o no t an FBO . I n fac t

th e Cessn aLeas e at

1|3.A prohibit s th e lesse e fromengagin g "i n an y othe r practice s normall y considere dthos e o f afixedbas e operator. " Thu s th e permissio n grante d t o Cessn ab y GMI A i n *|1 1 withregar dt o righ t t o dispens e fiiel "t o serv e th e requirement s o f Lesse e an dit s customers , busines s invitees , an dguest s only " canno t b e deeme dt o b e engagin g i n FB O typ e activity
. Discussio n Sterling' s Specialize dAircraf t Repai r Service s Sterlin g meet s th e Minimu mStandard s for Specialize dAircraf

t Repai r Services
. A provide r

o f specialize daircraf

t repai r service s mus t

b e aPart 14 5 repai r

statio n certificat e holde r for th e operatio n o r

operation s contemplated
. Minimu mStandards , T j C.2(b ) Th e operato r ma y provid e on e o r

mor e o f th e liste dservices , bu t

i s onl y require dt o provid e th e service s for whic hthei r

Par t 14 5 repai r

statio n certificat e allows
. Sterling' s Part 14 5 certificat e i s for

aMr . Randal l Fiert z

Marc h30 , 200 9 Pag e 4 o f 5 limite drating , whic hlimit s thei r maintenanc e capabilitie s t o specifi c make s an dmodels
. A Part 14 5 repai r certificat e withalimite dratin g meet s th e minimu mstandard s o f GMIA . Similarl y Situate d Bot hCessn aan dSterlin g hol dLimite dRating s for specifi c make s an dmodels
. B y natur e o f th e Part 14 5 Limite dRating , bothSterlin g an dCessn amee t th e GMI A Minimu mStandard s for Specialize dAircraf

t Repai r Services
. FA A Orde r

5190.6 A describe s th e responsibilitie s unde r Gran t Assuranc e 2 2 assume db y th e owner s o f publi c us e airport s develope dwithFedera l assistance
. Amon g thes e i s th e obligatio n t o trea t i n auniformmanne r

thos e user s makin g th e sam e o r similar us e o f th e airport

an dt o make al l airport

facilitie s an dservice s availabl e o n reasonabl e term s withou t unjus t discrimination
. [Se e FA A Orde r 5190.6A , Sees . 3- 1 an d4-14(a)(2) ] Cessn ai s no t

fuelin g transien t

traffic , onl y thos e wit hwho mthe y hav e abusines s relationship
. Similarly , Sterlin g doe s not wis ht o attrac t

an dfuel transien t

traffic , rathe r

the y simpl y see k

t o provid e fiael t o thei r

customers , busines s invitees , an dguest s i n th e sam e manne r a s Cessna . Unjus t Discriminatio n t o Preven t aSimilarl y Situate dTenan t Fro mEngagin g i n Similar Activitie s W e believ e tha t

GMI A woul db e violatin g thei r gran t assurance s b y denyin g Sterlin g th e righ t t o engag e i n similar

activitie s a s Cessna . Subsectio n (a ) o f Federa l Gran t

Assuranc e 22 , Economi c Discriminatio n require s tha t th e sponso r

o f afederall y obligate dairport "wil l mak e it s airport availabl e a s an airport

for publi c us e o n fair

an dreasonabl e terms , an dwithou t unjus t discrimination , t o al l types , kinds , an dclasse s o f aeronautica l uses. " Th e FA A wil l determin e that th e airport

i s actin g i n amanne r

tha t i s unjustl y discriminator y i f the y findtha t

"anothe r entity , i n asimilar

situation , was unjustl y denie dasimilar arrangement." ' Cessn ai s aFA A approve dPar

t 14 5 Repai r

Statio n specializin g i n repai r o f Cessn aCitatio n aircraft
. Milwauke e County grante dCessn ath e righ t t o fiiel aircraf

t o f it s customers , busines s invitee , an dguests . Sterlin g hold s aPart

14 5 repai r

statio n certificat e an da s discusse dabove i s similarl y situate dt o Cessna . Bot

hSterlin g an dCessn amee t th e requirement s o f

aSpecialize dAircraf

t Repai r Service s a s define db y th e Minimu mStandard s an dthu s shoul db e grante dth e sam e fiaeling rights
. Subsectio n (i) ^ o f

gran t Assuranc e 2 2 doe s represen t an exceptio n t o subsectio n (a ) t o permi t th e sponso r t o exercis e contro l o f

th e airport

an dprohibi t

and/o r limi t aeronautica l activity onl y i f suc hactio n i s necessary t o preven t unsaf e operation
. Ther e i s n o legitimat e basi s t o find

' Ken t J . Ashto n v . Cit

y o f Concord , Docke t

No . 16-99-09 , 200 0 WL1387887 , * 1 6 (Fina l Decisio n an dOrder)(Jul y 3 , 2000) ; Se e FA

A Orde r 5190.6A , Sees . 4-14(a)(2 ) an d3- 1 (describin g th e responsibilitie s unde r Assuranc e 2 2 t o includ e a n obligatio n t o trea t

i n auniformmanne r

thos e user s makin g th e sam e o r simila r us e o f th e airport

an dt o make al l airport

facilitie s an dservic e availabl e o n reasonabl e term s withou t unjus t discrimination.)
. ^ Assuranc e 22(i ) ("Th e sponso r ma y prohibi t o r limi t an y give n type , kin do r

clas s o f aeronautica l us e o f

th e airport if suc hactio n i s necessary for th e saf e operatio n o f

th e airport

o r necessary t o serv e th e civi l aviatio n need s o f th e public")
.Mr . Randal l Fiert z

Marc h30 , 200 9 Pag e 5 o f 5 Sterling' s exercis e o f

th e sam e fuelin g right s grante dt o Cessn awoul db e unsafe , an dneithe r th e County no r

anyon e els e ha s eve r

allege dtha t

safet y i s an issue
. Sterlin g i s require db y th e Federal Aviatio n Regulation s t o maintai n al l aircraf t o n thei r Part 13 5 certificat e at

al l times
. Eve n i f an aircraf t wishe s t o fly unde r

Part 91 , Sterlin g mus t

releas e th e aircraf

t t o th e owne r

i n orde r t o ensur e that

Sterlin g complie s withit s ongoin g maintenanc e responsibilitie s unde r Part 135 . Whil e bothSterlin g an dCessn aperformmaintenanc e t o th e hig hstandard s impose dunde r Par t 145 , onl y Sterlin g i s require dt o mee t th e maintenanc e standard s o f Part 13 5 for al l o f it s customers . T o clai mth e operatio n i s unsafe , (whic hn o on e ha s an dw e onl y mentio n for th e purpos e o f

completenes s o f

thi s letter ) woul db e clearl y unfounde dan dmisguide da s Cessn aha s bee n allowe dt o provid e fuel service s t o customers , busines s invites , zin dguest s for

almos t twenty years . Th e disparity i n fuelin g right s t o similarl y situate daeronautica l servic e provider s violate s Federa l Gran t Assuranc e 22 , Economi c Discrimination
. Th e sponso r ha s a n obligatio n t o mak e th e airport availabl e for

aeronautica l us e o n reasonabl e an dnot unjustl y discriminator y term s t o similarl y situate daeronautica l servic e providers
. Sterlin g respectfull y request s th e FAA' s guidanc e whether , assumin g th e fact s tha t w e hav e presente di n thi s letter : 1 ) Does Sterlin g mee t

th e GMI A Minimu mStandard s o f aSpecialize dAircraf

t Repai r Service s provider ? 2 ) I s Sterlin g similarl y situate dt o Cessna ? 3 ) Woul di t

b e unjus t discriminatio n t o den y Sterlin g th e sam e o r similar fiieling right s a s Cessna ? W e greatl y appreciat e you r assistanc e i n resolvin g thi s matter . Pleas e le t u s kno w i f

yo u woul d like any additiona l information
. Than k you . Sincerely , JACKSO N & WADE , L.L. C

Attachment s Sterlin g Leas e Cessn aLeas e GMI A Minimu mStandard s

## FAP

^ -E^lnibZ-

^ \ X+e M IS " \jx.te \ -Ifirt ^



### AP R 3 0 200 9 Mr
. Ken t S
. Jackso n Jackso n & Wade
. LL C 2162 8 Midlan d Driv e Shawnee , Kansa s 6621 8 Dea rMr
. Jackson : Randal l Fiert z ha s aske d m e t o respon d t o you rlette ro f Marc h 3 0 abou t self-fuelin g issue s a t Genera l Mitchel l Internationa l Airport (MKE ) i n Milwaukee , Wisconsin
. I n you rletter , yo u stat e tha t yo u woul d lik e t o provid e informatio n relativ e t o th e fuelin g right s o f Steriin g Aviatbn
. Yo u als o not e tha t a previou s lette rfro m Anderso n & Kreiger
. L.L.P. , counse l fo rMK E (date d Augus t 12 , 2008) , containe d variou s materia l omission s an d misstatement s o n thi s sam e Issu e an d yo u wis h t o clarif ycertai n infomiatbn
. A s yo u ma yknow , th e Federa l Aviatio n Administratio n (FAA ) ha s a n infomia l an d a forma l complain t proces s availabl e t o someon e directl yan d substantiall yaffecte d b yth e action s o r inaction s o f a Federall yobligate d airport sponsor . Yo u stat e i n you rlette rtha t yo u ar e askin g fo rcomplianc e advice , however , i t appear s fro m you rlette ran d attachment s tha t yo u ar e seekin g a findin g fro m th e FAA
. Yo u shoul d kno wth e FAAcanno t prejudg e a futur e forma l o r informa l complaint
. Th e question s i n you rlette rar e th e type s o f question s tha t generall yca n onl yb e answere d wit h a n investigatio n o f th e issue s throug h th e complain t process ; eithe ra n informa l complain t throug h th e FA

ARegiona l office , o ra forma l complain t unde r1 4 CF R Par t 1 6 throug h th e Washingto n D.C
. office
. W e ar e unabl e t o giv e yo u a definitiv e answe rt o you rspecifi cinquir y withou t additiona l Informatio n tha t woul d b e availabl e throug h th e complain t process . Wit h tha t i n min d an d wit h th e recognitio n tha t i t I s th e specifi cfact s presente d bybot h partie s tha t wil l ultimatel yb e evaluate d i f a complain t i s received , I a m respondin g t o you rquestion s wit h genera l guidanc e o n self-fueling
. Adisput e regardin g th e righ t t o self-fue l fall s unde rtw o separat e Federa l gran t obligations : gran t assuranc e 22(d ) an d gran t assuranc e 22(f}
. Assuranc e 22(d ) covers th e righ t fo ra n ai r carrie rt o servic e itsel f an d assuranc e 22(f ) cover s th e righ t o f a n aircraf t owne rt o servic e it s ow n aircraf t wit h it s ow n equipmen t an d it s ow n emptoyees
. Assuranc e 22(d ) allow s a n ai rcarrie rt o servic e itsel f o rt o us e an yfixed-bas e operato rtha t i s authorize d o rpermitte d b yth e airport t o servic e a n ai rcarrier
. Assuranc e 22(f ) prohibit s a n airport fro m restrictin g a corporation' s right t o perfor m service s o n it s ow/ 7 aircraf t bu t ther e mus t b e evidenc e tha t ther e i s adequat e ownershi p interes t i n th e aircraf t t o qualif ya s 'ow n aircraft, " fo rth e purpose s o f thi s Assurance
.I f a tenan t i s expandin g it s self-fuelin g activit yt o includ e fuelin g aircraf t tha t i t doe s no t own ,

lease , ren t o roperat e fo rit s exclusiv e use , i t i s outsid e th e definitio n an d protectio n o f Assuranc e 22
. Fo ra n airport sponso rt o offe ra tenan t th e right t o expan d it s self-fuelin g activit yt o aircraf t tha t i t doe s no t own , lease , rent , o roperat e fo rit s exclusiv e use , woul d b e outsid e th e definitio n an d protectio n o f Assuranc e 22
. Thi s coul d lea d t o allegation s tha t a n airport sponso rwa s actin g i n a n unjustl ydiscriminatorymanne rtoward s it s tenant s tha t hav e th e righ t t o sel l fue l commercially
. A n airport sponso rma yestablis h reasonabl e minimu m standard s an d rule s an d regulation s t o b e followe d whe n conductin g self-servic e operatk>ns
. Assuranc e 2 2 wa s neve rintende d t o provid e a n absolut e righ t fo raeronautica l user s t o engag e i n fuelin g operation s withou t meetin g reasonabl e minimu m standard s an d oile s an d regulations
. A s a n example , I hav e enclose d a cop yo f a lette rtha t addresse d a Par t 13 5 operator' s concer n regardin g self-fueling
. I n thi s letter , i t wa s determine d tha t aircraf t managemen t lease s an d join t ventur e arrangement s di d no t constitut e a n "ownershi p interest " fo rth e purpose s o f self-fueling
. I f yo u wis h t o pursu e a n informa l complaint , submi t th e detail s o f you rcomplain t t o m yoffice , car e o f Mr
. Thoma s Schauer , Complianc e Officer
. I f yo u wis h t o fil e a fontia l complaint , pleas e submi t you rcomplain t i n accordanc e wit h 1 4 CF R Par t 16
. I hop e thi s infomnatlo n ha s bee n helpfu l t o you . Sincerely , X^iGINAL SIGNE D B

V JERI ALLE S Jer i Alle s Manager , Airport s Divisio n Enclosur e AGL-620;TSchauer:701-323-7383:4/29/200 9 cc : AGL-600/AGL-601/AGL-62 0 File : Jack5on(MKE )

## F A A^^W.y-i ^ 1 X4e H 1 ^ 1 ^



## )a:^(^- '
Cessn a Aircraf t Compan yoperate s 1 0 company-owne d servic e center s aaos s th e Unite d State s an d Europe
. Ope n 2 4 hoi j seve n day s a week , 36 5 day s a year , eac h servic e cente ri s full yequippe d t o mee t th e need s o f it s Citatio n customers
. Greensbor o Citatio n Servic e Cente r Th e facilit yi s a n FAA-certifie d Par t 14 5 Repai rStatio n an d i s IS O 900 1 certifie d a s well
. Th e Greenstwr o Citatio n Servic e Cente rha s complet e lin e o f airfram e an d engin e maintenance , a s wel l a s inspectio n an d repai rcapability
. Th e facilit yals o ha s ful l avionic s troubleshooting , repai ran d modificatio n capability
. Dat e opened : 199 3 Facilities : 45,00 0 squar e fee t Receive d th e FA ADiamon d Awar d fo rth e fift h consecutiv e yea r Greensbor o Citatio n Servic e Cente r Piedmon t Tria d Internationa l Airpor t 61 5 Servic e Cente rDriv e Greensboro , N C 2741 0

Greensbor o Citatio n Servic e Cente r Milvyrauke e Citatio n Servic e Cente r Th e Milwauke e Citatio n Servic e Cente ri s locate d a t Genera l Mitchel l Internationa l Airpor t an d i s dedicate d t o th e suppor t o f Citatio n aircraf t i n th e uppe rMidwest
. Th e facilit ywa s opene d fo rbusines s i n th e fal l o f 199 0 an d i s prou d o f th e year s o f experienc e it s staf f workforc e posses s o n Citatio n aircraft
. Dat e opened ; 199 0 Facilities : 45,71 5 squar e fee t Milwauke e Citatio n Servic e Cente r Genera l Mitchel l Internationa l Airpor t 21 0 E
. Citatio n Wa y Milwaukee
. W l 5320 7

Milwauke e Citatio n Servic e Cente r Ne wYor k

Citatio n Servic e Cente r Th e Ne wYor k

Citatio n Servic e Cente r(NYCSC ) i s a full-servic e Par t 14 5 repai rstation
. Owne d an d operate d b yCessn a Aircraf t Company , it s sol e purpos e i s t o suppor t th e owner s an d operator s o f th e Cessn a Citatio n flee t o f aircraft
. Th e fedlityoffer s a compl e lin e o f airfram e maintenance , inspectio n an d repai rcapability
. Dat e opened : 197 2 Facilities : 41,66 0 squar e fee t Ne wYor k

Citatio n Servic e Cente r Stewar t Internationa l Airpor t 3 Expres s Driv e Newburgh , N Y 1255 0
http://www.cessna.com/about/citation-service-centers.htm l 11/24/200 9Ne wYor k Citatio n Servic e Cente r Orland o Citatio n Servic e Cente r Th e Orland o Citatio n Servic e Cente ri s th e larges t Citatio n Servic e Cente routsid e o f Wichita
. Th e fadlit ywa s establishe d i n 197 8 i n Pal m Beac h an d the n move d t o Orland o i n 1983
. I n 2004 , th e Servic e Cente rexpande d fi-o m a previou s facilitya t th e Orland o Internationa l Airpwrt int o a new , large rstate-of-the-ar t tajilding
. Dat e opened : 198 3 Facilities : 187,00 0 squar e fee t Receive d th e FA ADiamon d Awar d fo r200 7 Oriand o Citatio n Servic e Cente r Orland o Internationa l Airpor t 413 4 Bea rR d Oriando , F L 3282 7

Oriand o Citatio n Servic e Cente r Europea n Citatio n Servic e Cente r Th e Cessn a Cifatio n Europea n Servic e Cente ri s th e onl yCessna-owne d servic e cente routsid e o f th e Unite d States
. Ou rfacilit yi s locate d a t L e Bourge t airport , on e o f th e mos t visite d airport s i n Europe , an d i s onl y2 0 minute s fro m downtow n Paris
. Th e facilityoff t Citatio n owner s th e convenienc e o f a n "internationa l busines s CTOSsroads." Dat e opened : 199 7 Facilities : 44,90 0 squar e fee t Europea n Citatio n Servic e Cente r Aeropor t d e Paris , L e Bourge t Zon e d'Aviatio n d'Affaire s 9335 2 L e Bourge t Cedex , Franc e

Europea n Cifatio n Servic e Cente r Sacrament o Cifatio n Servic e Cente r Th e servic e cente ri s capabl e of , an d experience d in , airfram e inspection s an d maintenance
. Wit h a n avionic s sho p on-site , th e fadli offer s avionic s troubleshootin g an d modifications
. Also , i t i s capabl e o f performin g inspection s an d coordinatin g overhaul s fo ral l Cif a aircraf t engines
. http://www.cessna.com/about/citation-service-centers.htm l 11/24/200 9Dat e opened : 1972

Facilities : 62,57 6 square fee t Receive d th e FA

ADiamon d Award fo r200 7 Sacrament o Cifatio n Servic e Cente r Sacrament o Internationa l Airpor t 585 0 Cifatio n Wa

y SaCTamento , CA9583 7

Sacrament o Cifatio n Servic e Cente r Sa n Antoni o Cifatio n Servic e Cente r Th e Sa n Antoni o Cifatio n Servic e Cente rwa s th e first o f th e nex t generatio n Cifatio n Servic e Centers Cessn a designe d t o facilifat e ti computer-t)ase d need s that th e newe raircraft require
. Seve n computer s strategicall ypositione d o n sho p floorallo wou rtechnidan s t acces s th e Illustrate d Part s Manuals , Maintenance Manuals , an d th e Cifatio n Exper t Troubleshootin g Syste m nea rth e aircraft i n wo r Dat e opened : 199 7 Fadlities : 60,68 0 squar e fee t Sa n Antoni o Cifatio n Servic e Cente r Sa n Antoni o Internationa l Airpor t On e Cessn a Drive Sa n Antonio , T

X 7821 6

Sa n Antoni o Cifatio n Servic e Cente r Wichif a Cifatio n Servic e Cente r Th e Wichif a Citatio n Servic e Cente ri s locate d o n a 124-acre sit e a t Wichifa' s Mid-Continen t Airport
. Th e facilityca n servic e ove r10 0 Cifatlon s simulfaneously
. Th e buildin g ha s numerou s custome rlounge s an d offices , flight plannin g areas , a resfaurant , an d a gif t shop
. Th e exterio ro f th e faci i equippe d wit h a dedicate d run-u p area , two compas s roses , an d fou rfue l farms
. Dat e opened : 197 1 Facilities : 477,00 0 square fee t Receive d th e FA

AEmploye rDiamon d Award fo rtiBining i n 200 7 Wichif a Cifatio n Servic e Cente r 212 1 S
. Hoove r Wichifa , K

S 6720 9

http://www.cessna.com/about/citation-service-centers.htm l 1 1 /24/200 9Wichif a Citatio n Servic e Cente r

Mes a Citatio n Servic e Cente r Cessn a opene d it s Mes a Cifatio n Servic e Cente radjacen t t o th e William s Gatewa yAirpor t i n Mesa , Ariz. , o n Monday , Jan
. 5
. Th e compan yconstiucte d a ne w101,000-square foo t fadlit ythat indude s 62,40 0 squar e fee t o f hanga rspac e alon g wit h offic e an d bac k areas . Cessn a has devetope d 1 2 acre s o f it s tract flanking thre e 10,000-foo t runways an d a 124,800-square foo t aircraft ramp , leavi r roo m fo rexpansio n a s needed
. Dat e opened : 200 9 Facilities : 101,00 0 square fee t Mes a Citatio n Servic e Cente r 553 3 Sout h Sossama n Roa d Mesa , AZ 8521 2

Mes a Citatio n Servic e Cente r

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