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Vicinity of Canadian Airports

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Vicinity of Canadian Airports THE I]NIVERSITY OF MANITOBA LAND_USE PLANNING IN THE VICINITY OF CANADIAN AIRPORTS by DONALD H. DRACKLEY A THESTS SUBMITTED TO THE DEPARTMENT OF CITY PLANNING rN PARTIAI FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF CITY PLANNING DEPARTMENT OF CITY PLANNING I^IINNIPEG, MANITOBA OCTOBER, l9BO LAND_UST PLANNING iN THE VICINITY OF CANADIAN AIRPORTS BY DONALD HERBERT DRACKLEY A the sis sLrblllitted to the IracLrlty of'Gradrrate Studies ol the Utliversity of Manitoba in partial lLrllillnlent of the requirerrients of tlle degree of I'IASTTR OF CiTY PLANNTNG ovl9B0 Pennission has been granted to the LIBIìAIìY OF TI-IE UNIVER- SITY OIr MANITOBA to le nd or sell co¡rics of this thesis, to tlte NATIONAL LIBRARY OF CANADA to microlilrn this tltesis and to lend or sell copics of'the t'ilm, and UNIVERSITY MICROIìILMS to pLrblish an abstract ot'this thesis. The aLrthor reserves otlier prrblication rights, allcl lrcithcr the thcsis nor cxtellsive extracts f¡-onl it ntay be printer.l or other- wise reprodLrced withotrt the aLrthor's written ¡rerntission. -ii- PRtrFACE The ímportance of aír transportation on a national and ínternational scale ís an indíspurable fact, but at the same time it must-,be admitted that the impact of airport activities has raised substantial questions concerning their desírabilíty in urban or rural areas. The problems of noise, property devaluatíon and land use control, for example, have only recently been considered. As a result, this thesÍs will address ítself to land-use planning in the vicinity of airports. It Ís hoped that by review- ing problems and analysing present responses, alternatíve land-use planníng technÍques may be suggested which recognize the symbioËic relationship of aírports and surroundíng areas The disturbances caused by airport operations adversely affect those r"rho live or r¡rork ín the írnmedíate vicinity. Unless these disturbances are solved or substantially ameliorated, t.he problem also threatens to stifle the development of air coTnmerce itself. If the rísing conceïrt for the environment is any indication, the result may well be the banníng of airporËs from economically attractíve, convenient urban sites, to more distant rural areas. Conversely, the expansion of avíation facilities, especially within urban areas, has resulted in addítional restrictions in respect to the use and occupation of private lands in the airport vicinity. The potential effects and consequences of airport-related problems on the adjacent community, air safety and air commerce dictate that the control of land use throughout the area of airport influence is essential. In Canada, exísting federal aírport.-related legislation generally prescríbe height limítations and restrict hazardous uses or devices within the airport boundary and formatly-defíned adjacent property. However, the vast majority of airport-related legislation in this counËry contains no -l-11- provisions which would restrict specifíc types of land uses, proven to be incompatíble wíth airport operatíons, from developing adjacen¡ to airports. This responsíbility has been shared by 1oca1 and provincíal governments, along with the prívate development sector, resulting in ínadequate correlation with the existing or potentíal interests of the airport. The intent of thís investigative, or project-oríented thesis is to review existing airport zoning po\¡/ers in terms of overall urban and regíonal development planning, and to ínvestígate potential methods of regulatíng and controlling land use in the vicinity of Canadían airports. These methods will then be systematically analysed., in terms of effective land-use planning, as they affect airport operations, peripheral protection, and overall developmenÈ planning. The main acknowledgment for assistance with this thesis goes to the staff of the Winnipeg Area Airports Systern Study, Transport'Canada, where initial theories and project directions were tested, and fína1 methodologies developed. Special recognítion is directed to Mr. H. 8e11, Project Director, and Mr. H. Taylor, AirporËs specialist, who provided the author r¿ith an indespensible library of technícal daËa and a practical, airport-related working envirorunent. Structural assistance \^ras provided by the thesis advísor, professor ll. Carvalho of the CiËy Planning Department, University of Manitoba, who also assisted in the initial theory development and refinemenË. Similar recognition is offered to Professor R. Foster of the Geography Department, who acted as Èhe major reader of the Ëhesis and made specific recournendaËions regarding format and sËyle. -av- TASLE OF CONTENTS Page PREFACE a1 Table of Contents iv Table of Figures vi Chapter I. INTRODUCTION The Airport/Community Interface 2 The Off-Airport Planning Problero 10 Table of References 13 II. REVIEI,I OF OFF-AIRPORT PROBLEMS AND CONCERNS I4 Envirorunpntal Concerns T4 Land-Use Planning Problems 1B Table of References 26 III. TECHNIQUES TO CONTROL OFF-AIRPORT LAND USE 27 Airport Related Legislation 27 Environmental Control Regulations 32 Land-Use Control Techniques 42 DistribuËíon of Off-AirporË Land Use 49 Airport/CommunÍty Comprehensive Planning 51 Table of References 54 IV. ALTERNATIVE OFF-AIRPORT PLANNING TECHNIQUES 55 Provincial Legislatíon and Specíal Zoning Powers of Provincíal Government 57 Airport Vicínity Protection Areas 5B AVPA Adninistration 60 AVPA Land Use Schemes 62 Local ZonLng Bylaws 63 Triparti-te Planning 67 Edmont,on Area Aviation Master Plan SÈudy 69 Winnipeg Area Aírports System Study 72 Land Or,mership by the Airport AuÈhority 77 Federal LegislaÈion B1 Table of References 8B V. CONCLUSIONS B9 -v- Page APPENDIX A - Aírport 0perational Guídelines 100 APPENDIX B - Examples: Land Use Conpatibí1ity Matrir< 110 SELECTED BIBLIOGRAPI{Y 136 -vl_- TABLE OF FIGUR-ES Figure Page 1. Passenger Aircraft Capacity Growth Trend 7 2. Takeoff and Landing Field Length Trend B 3. Landside/Off-Airport Interaction: Edmonton Ïfunici_pal AirporË I9 4. NEF Zones - L979 ' Edmonton International Airport : 36 4.1. Flight Interference and Obstructíon Clearance Areas IO2 L.2. Clear and Airport Hazard Areas 103 4.3. Typical ILS System Site Configuration lO5 Ã.4. Bird Hazard Areas I^Iinnipeg Internatíonal Airport IO7 4.5. Airport Operational Zones (Aírport Control Areas) 10g CHAPTER I INTRODUCTION An airport coexísts in an intricate relationship with the courmunity or region in v¡hích it is located. Over the years, hÍstorical , economic and political decÍsions have 1ed to development in and around airports. At one time, most existing Canadian airports were located on the outer fringe of urban devefopment, wíth few adjaceút residences:or non-agricultural land uses. Following I^iorld War II, an increase in civil air traffíc coincided with rapid urbanízation. Consequently, what was once an airport on the frínge of a city became an t'airport in the cÍtyrr, surrounded by íntensive urban development. This set the stage fo-r a range of problems involving environmental, edologícal, economic and social issues. Efforts toward compatibility of the airporE vrith its environs can be undertaken by proper airport planning, conLrol of pollution generating sources, and proper off-airport land-use planning.l The purpose of such planning is to maintain or create an airport/community interface which protects the needs of the airport whíle providing for the requirements of the adjacent community and ecological environment- Only in this ivay will the future.viability of the airport within an ur:ban or rural setting be- preserved. Because of the poÈential social and economic impacts generated by the airport activities, airport planning must be recognized as an Í-ntegral a -L- part of the overall comprehensive planníng area in which it is located. All physical aspects of airport operations must be coordinated with existing and potential patterns of adjacent residential, commerci-a1, industrial, agrícultural and recreatíonal land use. Conversely, the growth and development of these community areas in the vícinity of an airport must reflect present and future airport operations. Planning of compatlble airport/community relationships is a proper descriptíon of the process necessary to achieve an optimum relationship between an aÍrport and off- airport larrd ,rses.2 It is the intent of this thesís to revíew existing Canadian airport zoning pov/ers and operational regulations ín terms of providíng compatible airportfconrnunity relationships, and to investígate potentíal methods of regulating and controlling off-airporË land use. The thesis wÍll examíne the hypothesis that existing.airport zoníng legislaËion and operaËional regulatíons have little effect in ensuring that off-airporË land use-ís physically, socially and economically eompatible to airport operations. Not only will exísting control mechanisms be critically evaluated, but alternative techniques to provide land use compatibility will be investigated in terms of airport. operations, perípheral proËection, overall development planning, ímplemenËation and consequences. The Airport/Cornmunity Interf ace The existence of airport facilities and.operations generates many sígnifícant physical, social and economic externalitie-s on surrounding areas. The interface between aírport operations and local industrial, commercial and residential land use results in both desirable and undesirable externalities. I^Ihere airport operations are found to be incompatable with adjacent - l- off-aírport land uses, the undesirable externalitíes involved often contribute to economic
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