HomeMy WebLinkAboutCC AG PKT 2002-06-24 #ASOUTHERN CALIFORNIA REGIONAL AIRPORT AUTHORITY
MEMORANDUM
DATE: June 19, 2002
TO: Honorable Mayor and City Councilmembers
FROM: Peggy Ducey, Chief Executive Officer
SUBJECT: REGIONAL AVIATION PLAN
BACKGROUND
The Southern California Regional Airport Authority ( SCRAA) is a joint powers
authority with the express purpose of facilitating the development of a regional
aviation system for Southern California. Through State law and its joint powers
agreement, the SCRAA is legally empowered to acquire, construct, operate and
maintain airports and other related facilities and services. A five- member Board
of Directors consisting of an elected official from each member agency and a
non - voting member from the Southern California Association of Governments
(SCAG) governs the SCRAA. The member agencies are the counties of
Riverside, San Bernardino, Orange, and Los Angeles and the City of Los
Angeles. Attached is the SCRAA Work Plan.
With the passage of Measure W, the Orange County Initiative that prohibits an
airport at El Toro MCAS, the SCRAA Board directed staff to develop alternatives
to meet future regional aviation needs without a second Orange County
commercial airport. The intention was to develop the means to link the
passenger and cargo markets in Orange County to inland airports with excess
capacity that have a desire to serve the aviation market in the future. The goal is
to develop this link between aviation market demand and airport service
providers while disbursing the impacts that are associated with aviation service.
Unless impacts are adequately addressed, communities will quickly feel the
impact to their quality of life and no longer welcome expansion of their airport
services.
The SCRAA will make a presentation to the City Council about the proposed
regional alternatives and be available to answer questions.
RECOMMENDATION
Adopt Resolution supporting the SCRAA regional aviation plan.
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Southern California Regional Airport Authority
PMB 181 (949) 38848W - —�
32545 # B Golden Lantern (949) 388 -0892 fax Agenda Item
Dana Point, CA 92629 pdacey ®cox net
A RESOLUTION OF - -- IN
SUPPORT OF A REGIONAL AVIATION PLAN
FOR THE SOUTHERN CALIFORNIA REGION
WHEREAS, the regional aviation plan adopted by SCAG envisions a
decentralized system of air service that utilizes inland airports for increasing
aviation demand; and
WHEREAS, the aviation market, currently focused in Orange and Los
Angeles Counties, must be linked to airports with excess capacity which are
located in San Bernardino and Riverside Counties, and
WHEREAS, the impacts of airport operations must be addressed before
host communities are overburdened by environmental and other quality of life
impacts; and
WHEREAS, these environmental impacts must be addressed early in the
airport planning process both locally and regionally to allow for problem solving
and implementation of mitigation strategies; and
WHEREAS, there is no single entity or governmental organization that has
the authority or mission to coordinate regional aviation activities that integrate
both ground and air transportation; and
WHEREAS, regional cooperation between aviation operators and ground
transportation agencies will ensure an integrated, inter -modal transportation
system that links cargo and passenger markets efficiently to airports with excess
capacity; and
WHEREAS, planning and action prior to problems resulting from airport
impacts will ensure that communities continue to accept aviation service within
their cities.
NOW THEREFORE BE IT RESOLVED, that supports the efforts of
the Southern California Regional Airport Authority to initiate a regional
implementation plan for decentralized airport operations that will promote
economic growth for the entire region while disbursing environmental impacts
and providing a more balanced approach to provide aviation service for Southern
California.
Attachment I
SCRAA WORK PLAN
TO COORDINATE
A REGIONAL AVIATION PLAN
INTRODUCTION
On April 12th, the Southern California Association of Governments' (SCAG) Regional
Council approved the 2001 Regional Transportation Plan (RTP) update that includes a
plan for Southern California aviation service. The RTP Aviation Element supports a
regional allocation of air service. Specifically, it identifies the following guiding principles
and action items:
Guiding Principles
• Provide for regional capture of the economic development opportunities and job
growth created by the prospect of significant growth in air traffic in the region
between now and 2025.
• Reflect environmental, environmental justice and local quality of fife constraints at
existing airports that operate in built -out urban environments.
• Distribute maximum opportunity to Southern California airports where population
and job growth over the next two decades are expected to be strong and where
local communities desire the air traffic for economic reasons.
• Reflect that each county should have both the obligation and the opportunity to
meet its own air traffic needs where feasible.
Action Items
➢ Action — Support the expansion of capacity at major existing and potential
regional airports to handle anticipated increases in both passenger and
cargo volume.
➢ Action - Mitigate the effects of expanding existing airports and consider
commercial aviation reuse of military bases with operations limited to
ensure that air carrier noise impacts on the neighboring communities are
less than military aircraft noise impacts
D Action - Maximize air cargo and air passenger utilization of outlying
airports in less populated areas.'
Although the Federal government recognizes the RTP as the regional planning
blueprint, adoption of this Plan does not ensure that air service will, in fact, conform to
the plan. Successful implementation requires operational, legal, and administrative
activities that may involve multiple jurisdictions and require cooperation between the
public and private sectors. An implementing body like the SCRAA, a joint powers
' southern California Association of Governments 2001 Regional Transportation Plan Update, December
14, 2000, pages 90 -91.
authority duly formed under State law, can assist in the implementation of a regional
aviation system for the Southern California region. The purpose of this work plan is to
outline a potential implementation process for the SCRAA to follow to promote
implementation of a regional aviation system similar to that proposed in the SCAG RTP
Aviation Element.
REGIONAL PROCESS OF COOPERATION
Historically, considerable controversy has surrounded airport and aviation service
issues in the Southern California region. The SCRAA proposes to minimize conflicts
through a cooperative, collaborative process to unite key aviation players and
stakeholders in a process of consensus building.
The following key areas must be addressed in a collaborative process to ensure a
comprehensive approach to implementation:
• Airport Utilization
• Passengers and Other Aviation Consumers
• Air Carriers
• Airport Operators /Airport Owners
• Host Community
• Airspace Management and Safety
• FAA
• SCAG
• Local Airspace Users
• Ground Access /Ground Transportation
• Traffic Impacts from Airport Operations
• Local Access and Transportation Improvements
• Regional Transportation System Linking Airports
• Funding
• Legal and Administrative Considerations
• Legal Barriers
• Administrative Issues
ACTION PLAN
SCRAA VISION: A REGIONAL AVIATION PLAN
The SCRAA will work to develop a regional aviation strategic plan that provides for a
system of regional airports which support Los Angeles International Airport as the
primary international airport of the region supported by a decentralized, coordinated
system of regional airports that will be developed to meet Southern California's future
aviation demand. In developing the Regional Aviation Strategic Master Plan, the
SCRAA will employ a consensus building process that includes all stakeholders. The
process will develop the Regional Aviation Strategic Master Plan and use the
consensus building process to define collaborative, synergistic solutions to overcome
the challenges and maximize the opportunities. The Regional Aviation Strategic Master
Plan will identify actions needed to implement the regional aviation system including
federal and state legislative and regulatory changes, public - private partnerships
including incentive programs, public and private sector financing, and amendments to
regional and local land use and circulation plans and airport master plans.
As the Metropolitan Planning Organization (MPO), SCAG has the federally mandated
authority to plan for regional aviation activities, based upon passenger and cargo
forecasts, and the impact of air services on ground transportation. SCAG's final product
is the Regional Transportation Plan, which details future aviation service for Southern
California based on airport resources and aviation service projections. The first SCRAA
action should be to endorse the regional aviation concept contained in the SCAG RTP
Aviation Element as an implementation framework for the SCRAA. The partnership
between SCAG and the SCRAA is one based on collaboration and complimentary
responsibilities. As the implementing agency for the RTP Aviation Element, the SCRAA
activities dovetails into, rather than duplicates, SCAG's planning efforts. .
AUTHORITY ACTIVITIES:
A. SCRAA Board endorses the regional aviation solution concept contained in the
SCAG RTP Aviation Element as an implementation framework for aviation
services in the Southern California region.
II. AIRPORT UTILIZATION
To be successful, a regional, decentralized approach must have cooperation from four
key stakeholders— airlines, passengers/consumers, airport operators and owners, and
host communities. Airlines, not government, basically decide where they will provide
service, choosing markets with strong profit potential beyond the initial capital outlay.
This usually means focusing on one hub airport in the regional area to capitalize on
revenues. Airlines will establish service at secondary regional airports if the local
market generates sufficient demand, or if there is an economic advantage over the
primary airport. Providing financial and operational incentives that don't conflict with
federal law may shift airlines to secondary sites. The incentives, however, must
realistically motivate airlines to undertake the potential risk of an unproven airport.
Dialogue must begin immediately with the airline industry to determine appropriate
incentives as well as potential barriers that will affect airline decision - makers.
Airport passengers and consumers choose particular airports for a variety of reasons,
including location, accessibility, fares, and schedules. To support a decentralized,
regional approach, air passengers must be willing to travel to regional airports.
Passenger incentives such as free parking, free transit or shuttle service, and
discounted fares may induce passengers to regional airports, however, market research
is necessary to determine if specific incentives will, in fact, influence consumer
behavior.
Working with airport operators is another key element of this plan. The Southern
California region hosts twelve operating or proposed airports, which provide unique
opportunities to serve the growing aviation needs of the region. This regional planning
process views all current and proposed airports as integral to future aviation service.
The RTP Aviation Element clearly details the importance of all airports, including El
Toro, in serving air passenger and cargo operations into the future. The SCRAA will
work closely with all these airports to ensure successful integration into the regional
aviation system.
An airport's ability to host air service can be constrained by limited infrastructure,
operational and administrative policy, environmental conditions, and airspace
limitations. Integral to discussions with airlines is dialogue with airport operators to
determine rapacity, operational plans, project limitations, and legal barriers to creating
an optimal service environment, with the goal to develop strategies to address these
issues.
Host communities impacted by aviation operations will also need to be involved in
determining the service plan as it relates to their communities. Efforts to minimize the
impacts such as air quality, noise, and traffic congestion all need to be incorporated into
any overall implementation strategy.
The SCRAA will coordinate discussions between air carriers, airport operators and host
communities to develop a strategy of incentives and policy activities to create economic
and operational advantages for air carriers to commit to service to regional airports in
Southern California. Coordination with existing and potential airport host communities
is also needed to ascertain their economic, infrastructure, environmental and quality of
life issues.
AUTHORITY ACTIVITIES
A. Create an Airoort Utilization Committee, composed of two SCRAA Board
Members, with one acting as Chairperson, to facilitate dialogue, studies, and
agreements among stakeholders, and coordinate other activities as described in
this section of the work plan.
1. Identify and engage in dialogue with other agencies that are implementing
successful regional approaches that can be used as models for the
Southern California regional aviation plan.
B. Interface with host communities, both public and private sector, to identify issues
R concern as well as opportunities for agreement to promote more effective use
of airports in their community.
C. Initiate dialogue with the aviation industry to evaluate any issues of concern and
opportunities for agreement for a decentralized service approach and ascertain
air carrier interest in operating from regional airports.
1. Initiate discussions with large, medium, and small airlines to determine
their interest and needs to implement a regional aviation system. This
should include airlines providing passenger and/or cargo services.
2. Initiate discussions with the Air Transport Association (ATA) to identify
industry trends, future needs, and potential market incentives for air
carriers.
3. Working with SCAG, initiate discussions with cargo carriers to assist in
updating the SCAG Regional Cargo Analysis to determine whether
realistic goals have been established for air cargo services to regional
airport.
4. Prepare a market study to determine potential future routes and gaps in
the regional air service market, identifying both short and long -term
opportunities for service. Initiate other market studies, as necessary, to
facilitate airline cooperation.
D. Interface with airport operators, to determine needs, issues of concern, and goals
for future airport development.
1. Request that SCAG's ATAC Committee establish a sub - committee of
airport operators and owners to interface with the SCRAA to initiate
discussion and implement activities that are consistent with the regional
plan.
2. Focus on development of the following operating airports as the first
priority of the regional plan: Ontario International, Palmdale, March Inland
Port, San Bernardino International (Norton), and Southern California
Logistical Airport (George).
3. Update current and future capacity estimates for all airports in the region.
Identify operational constraints, potential air service gaps, and duplication
of services.
4. Assist in the development of regional airport facilities. Request that airport
operators provide annual updates of their development plans. Develop
SCRAA activities to assist in implementing plans, including both onsite
and offsite improvements.
5. Facilitate development of cooperative principles that could be used to
develop synergistic operational agreements between airports.
6. Negotiate with regional airport operators focusing on cargo to determine
ability to serve, infrastructure needs, and barriers to their participation in a
cooperative approach to decentralized cargo service.
7. Advocate for regional airport utilization by cargo carriers and develop
cooperative agreements between airports to engage a service system that
distributes cargo economic benefits and diffuses environmental impacts.
8. Identify expansion trends at existing Southern California airports over the
past five years to determine growth trends and future potential gaps in
service to evaluate opportunities for future growth in regional airports.
9. Determine which aviation industries are most actively developing around
local airports and evaluate development trends to determine economic
forecasts for future business opportunities for regional airports.
E Conduct air passenger and caroo carrier market research to determine
motivation and behavior and test potential incentives to determine successful
motivators for outlying airport use.
1. Through market research, determine passenger motivation to travel to
regional airports and identify means of travel most attractive to
passengers within various geographic areas.
2. From market survey results, recommend passenger and cargo carrier
incentives to increase use of regional airports. Determine legal or
administrative action necessary to implement incentives.
F. Develop Decentralized Air Service Strategy.
1. Determine any legal barriers prohibiting the specific incentives
recommended, based upon air carrier and airport operator discussions.
2. Develop a final air carrier incentive strategy, based upon airline and airport
operator input, which identifies market, financial, and operational
incentives that would encourage airline decision - makers to commit
resources to regional airports. Identify any necessary legal or
administrative actions to ensure incentives can be implemented.
3. Identify and assess regulatory tools for achieving decentralized aviation
objective and institutional framework for implementation.
4. Develop strategy to assure availability and utilization of regulatory tools.
5. Secure FAA, Congressional, and Administration support for incentive plan
and necessary legal actions to ensure successful plan implementation.
G. Develop Incentive Strategic Plan based upon passenger and cargo carrier
research and dialogue with host communities, air carriers and airport operators.
The Plan will integrate both passenger and air carrier incentive
recommendations, and will identify all legislative, operational, and administrative
actions necessary to successfully carry out the Incentive Strategic Plan.
Ill. GROUND TRANSPORTATION /GROUND ACCESS
There needs to be a direct and cooperative link between ground and air transportation
for passengers, goods, and services. Ground traffic generated by airport use not only
impacts host communities, but also impacts regional freeway and local surface street
systems as passengers and cargo are moved within the region. A process of
integrating these ground and aviation transportation venues begins with the
development and approval of the RTP. Actually integrating ground transport with
aviation service is a necessary and significant focus that SCAG, County transportation
commissions, and the SCRAA must cooperate on.
A potential obstacle to utilizing regional airports is a means to transport passengers and
cargo in an efficient way. While communities are growing in areas surrounding regional
airports that will ultimately provide a significant passenger stream, there is also a need
to link these airports to other urban areas not closely located to regional aviation
service. While some may be willing to travel longer distances for financial and non-
financial benefits, many Southern Californians will avoid driving long distances if it is
coupled with severe traffic congestion. Over the next twenty years, Southern California
will witness a 40% increase in residents, which is expected to overwhelm our regional
freeway system. SCAG forecasts that freeway congestion will significantly increase,
with 26% of local freeways experiencing speeds of less than 17 mph during peak hours.
Traffic of this magnitude will severely impact the use of regional airports. The goal must
be to provide an efficient, effective regional transportation system that:
Provides efficient and cost -effective transportation to regional airports;
Minimizes the environmental and quality of Irfe impacts to travelers and
local residents.
A number of transportation proposals that link urban centers to regional airports have
been proposed. The SCAG RTP addresses regional transportation partially through the
proposed Intra - Regional Maglev High Speed Rail (Maglev) that would connect major
transportation centers in Los Angeles, Orange, Riverside, and San Bernardino
Counties. The system could connect several airports. While SCAG's financial analysis
projects that the Maglev system could generate sufficient ridership and revenue for
construction and operational costs, some are concerned about the financial impact and
lack of operational flexibility rail travel provides. With this is mind, other regional
transportation alternatives, such as dedicated freeway lanes and regional airport
shuttles, will need to be explored to determine their viability as reasonable solutions.
Besides Maglev, other rail variations need to be evaluated, including high speed and
fixed rail, such as Metrolink. It seems clear that without a quick and convenient
transportation link to regional airports, passengers may be unlikely to use them as the
RTP proposes.
Ground access issues also include airport- generated local traffic congestion. Host
communities need to be assured that airport traffic improvements will mitigate
congestion and be financed from sources other than local funds. Addressing ground
access and regional intra -modal transportation systems will ensure that passengers can
conveniently use airports other than LAX.
AUTHORITY ACTIVITIES:
A. Create Transportation Committee, composed of two SCRAA Board Members,
with one acting as Chairperson, to interface with SCAG to create and implement
an integrated regional ground access plan that would link urban centers to
regional airports. The committee will function as a clearinghouse for information,
and a coordinating body between SCAG and SCRAA.
B. Evaluate SCAG's Maglev oroposal, in cooperation with SCAG, including
financing plan, to determine the feasibility of SCRAA involvement in its further
promotion and development.
1. Evaluate the need for additional feasibility and technical studies.
2. Evaluate funding options, including the development of a public- private
partnership.
3. Explore government grants and other sources of funds to finance
environmental review process as well as construction of the system.
4. Explore other high -speed rail options, as well as fixed rail systems, to
compare costs and benefits for alternative rail transportation.
C. Explore alternative around transportation systems for airport access to determine
passenger utilization rate and community impacts, including:
1. High speed or fixed rail (e.g. Metrolink) links between airports, as well as
between airports and urban population centers.
2. Airport shuttles or "fly -ways" and satellite airport terminals for linkage to
regional airports.
3. Auto - related airport linkages such as dedicated freeway lanes and tollway
privileges.
4. New transportation technology to link regional airports, including alternate
fuel vehicles.
5, Other transportation modes that are determined to be attractive to
passengers, based on the market survey and research completed in
conjunction with passenger incentive research.
D. Evaluate traffic impacts on host communities from existing airports.
1. Determine whether action by the SCRAA can facilitate traffic mitigation,
including support for Federal or State infrastructure financing.
2. Identify local traffic ordinances that effectively manage airport- related
traffic such as Chicago's traffic ordinance for O'Hare Airport.
E. Prepare a Ground Transportation Strategic Plan that determines the most viable
transportation modes to regional airports, be upon detailed evaluation of all
potential options.
1. Prepare Ground Transportation Strategic Plan including identification of
necessary technical and environmental studies. The Plan will identify
implementing agencies, estimate necessary implementation costs and
evaluate financing options, including grants, private funds, and other
funding solutions.
2. Coordinate discussions with jurisdictions potentially impacted by proposed
transportation system to determine level of support and identify concerns.
3. Work with the SCAG Transportation and Communications Committee
(TCC) to include the Ground Transportation Plan in the Regional
Transportation Plan (RTP).
10
IV. AIRSPACE ANALYSIS
Currently, the Southern California airspace is one of the most crowded in the world.
The number of aircraft and air operations is expected to significantly increase in the
region over the next twenty years, undoubtedly creating severe airspace capacity
constraints. Currently, the FAA is sponsoring the National Airspace Redesign to review,
redesign, and restructure the national airspace to better meet the needs of the aviation
sector. This national study requires that FAA regional offices coordinate the evaluation
of local airspace management, to be ultimately incorporated into the national study.
The National Airspace Redesign program offers the opportunity to have the FAA
complete a comprehensive airspace analysis on a parallel track with other SCRAA
activities, thereby ensuring that the SCRAA Regional Aviation Strategic Master Plan
would ultimately integrate into the FAA's local airspace system.
The national airspace study is an operational strategy that facilitates, as necessary,
operational changes and policy revisions to achieve the most efficient airspace design,
while maintaining the highest standards for safety. The desired outcome is to maintain
system safety, decrease delays, increase system flexibility and predictability, and
increase user access. The overriding goal is to reduce complexity and increase
efficiency. Current and future technology will continue to create opportunities for
greater efficiencies and increased safety consideration.
The regional office of the FAA has responsibility for coordinating the airspace study.
The SCRAA will coordinate with SCAG and the FAA to initiate the airspace study,
requesting that modeling include an evaluation of the approved SCAG RTP Aviation
Element as well as other modifications that may be proposed to the Element. The
SCRAA will necessarily monitor and interface with the FAA and SCAG since
modifications to the Aviation Element could have significant impact on the airspace
system.
AUTHORITY ACTIVITIES.,
A. Join SCAG in requesting the FAA to sponsor the local airspace study to coincide
with the SCRAA efforts to develop a Regional Aviation Strategic Master Plan for
the SCAG Aviation Element. Request the FAA study evaluate the RTP Aviation
Element as well as any SCRAA proposed modifications, as regional
implementation planning progresses.
B. Request that FAA incorporate new airspace management technology as it relates
to existing and proposed airports to evaluate its potential impact on airport
efficiency and operational capacity.
C. Coordinate closely with SCAG and the FAA to monitor progress, communicate
modifications and request further evaluations as necessary to explore
opportunities for greater efficiency.
11
D. Actively promote, facilitate, and assist in the completion of the study within
twenty -four months.
E. Promote involvement of airspace users, including airport owners and operators
as stakeholders, through coordination with the SCAG Airspace Users Group.
12
V. LEGAL, INTER - GOVERNMENTAL AND ADMINISTRATIVE
CONSIDERATIONS
Currently, there is a national dialogue between Congress and the Department of
Transportation as to the future of aviation services and airport operations. Issues of
congestion, airspace management and safety, runway development, and excessive
delays further affect future aviation policy. Community opposition to airport expansion is
also driving policy, shifting the aviation debate from economic benefits for local
communities to quality of fife and environmental justice issues. With policy revisions
currently being considered, it is critical that the SCRAA become an active participant in
the review of federal airport policy so that the needs of the region are included in any
policy changes, thus permitting the successful implementation of a truly regional airport
plan. It is also important that the SCRAA promotes the necessary legislative and
regulatory tools and authority to ensure it has the power and ability to implement the
necessary activities to make this regional approach successful.
Specifically, coordination and interface with public agencies such as the U. S.
Department of Transportation, FAA, Caltrans, and local transportation agencies that
have interest and a stake in the final regional aviation plan is essential. Members of
Congress, California Senate and Assemblymembers, and county and city elected
officials who represent constituents affected by airports also need to be continually
consulted, informed and updated as to the process.
Legal considerations should include a review of existing Federal and State law as well
as pending or completed legislation or litigation that may have application to the
SCRAA's activities. Recently, the El Toro Reuse Planning Authority (ETRPA) filed legal
action against SCAG regarding the Regional Transportation Plan. Future voter
initiatives, similar to Orange County's Measure F, may also impact regional aviation
planning efforts. Administrative considerations may include changes in the Authority's
organizational structure after completing the feasibility, investigation and study period.
AUTHORITY ACTIVITIES:
A. Create an Intergovernmental Committee composed of two SCRAA Board
Members, with one acting as Chairperson, to coordinate legislative efforts of the
SCRAA.
B. Promote a national, state, and local dialogue regarding aviation services and
airport management that advocates for a regional aviation approach.
1. Initiate discussions with federal officials and Congress to identify existing
legislative barriers to a regional aviation approach and advocate for
proposed solutions.
2. Develop and promote federal and state legislative aviation policies that will
encourage a decentralized regional approach to aviation.
3. Identify public sources of funds and secure adequate financial support for
the regional aviation planning process, individual airport development, and
local and regional airport access projects consistent with the RTP.
13
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