Agenda Item   

AGENDA STAFF REPORT

 

                                                                                                                        ASR Control  19-000429

 

MEETING DATE:

04/23/19

legal entity taking action:

Board of Supervisors

board of supervisors district(s):

2

SUBMITTING Agency/Department:

John Wayne Airport   (Approved)

Department contact person(s):

Barry A. Rondinella (949) 252-5183 

 

 

Lawrence G. Serafini (949) 252-5270

 

 

Subject:  Adopt Resolutions for EIR 627 and General Aviation Improvement Program

 

      ceo CONCUR

County Counsel Review

Clerk of the Board

Concur

Approved Resolution to Form

Discussion

 

 

3 Votes Board Majority

 

 

 

    Budgeted: No

Current Year Cost: N/A

Annual Cost: N/A

 

 

 

    Staffing Impact:

No

# of Positions:

Sole Source: N/A

    Current Fiscal Year Revenue: N/A

  Funding Source: N/A

County Audit in last 3 years: No

 

 

    Prior Board Action: 09/27/2016 #28, 06/28/2016 #79

 

RECOMMENDED ACTION(S):

 

 

1.

Adopt proposed CEQA Resolution certifying Program Environmental Impact Report 627, including related CEQA Findings of Fact, Mitigation Monitoring and Reporting Program and Statement of Overriding Considerations.

 

2.

Adopt proposed Project Approval Resolution for the General Aviation Improvement Program, which approves Alternative 1 as the Project Proposed for Approval.

 

 

 

 

 

SUMMARY:

 

Certification of Final Program Environmental Impact Report 627 and adoption of the proposed General Aviation Improvement Program (Alternative 1) would allow John Wayne Airport to move forward with implementing a comprehensive plan for maximizing the efficiency and safety of general aviation facilities and facilitate prioritization of future general aviation improvements, including improvements proposed by Fixed Base Operators as part of potential future leases at John Wayne Airport.

 

 

BACKGROUND INFORMATION:

 

General aviation services and facilities at John Wayne Airport (JWA) have not been comprehensively studied since 1990 and the character of general aviation has changed significantly since that time. In 2015, JWA began a process of evaluating and planning for the future needs of the general aviation community at JWA through a comprehensive General Aviation Improvement Program (GAIP). Multiple factors led to the proposed comprehensive update of general aviation facilities including, but not limited to (1) the introduction of new aircraft into, and other changes within, the general aviation fleet; (2) the advanced age of some of JWA’s general aviation structures and resultant need for improvements; (3) the need to ensure compliance with Federal Aviation Administration (FAA) requirements related to proximity of buildings to taxiways and runways; and (4) expiration of a number of key general aviation-related leases (now on month-to-month leases).

After meetings with key stakeholders during the start of the planning process in 2015, project objectives were developed and a preliminary planning process was established. The project objectives for the GAIP are as follows:

  • To enhance safe and secure operations.
  • To utilize limited land area efficiently and economically.
  • To enhance compatibility between general and commercial aviation operations.
  • To embrace flexibility to allow for technological advances and market trends.
  • To maximize economic, self-sustaining, revenue producing facilities.
  • To assess the ability of existing infrastructure to support general aviation facilities.

In order to proceed with a comprehensive GAIP, in 2016 a team of aviation and environmental consultants was selected by the Board of Supervisors (Board).  Specifically, on June 28, 2016, after a competitive proposal process, the Board selected the firms of Landrum & Brown and AECOM to prepare the GAIP environmental analysis and aviation-related technical studies, respectively.  Following consultant selection, the Board approved agreements with each of these firms on September 9, 2016.  These firms then began studies to confirm preliminary GAIP options and subsequently, to prepare the technical and environmental studies necessary to fully evaluate GAIP alternatives.

 

As part of the preliminary GAIP assessment, multiple options for general aviation improvements were evaluated, consisting of varying layouts of Fixed Base Operators (FBO) and other related general aviation facilities, and conformance with FAA airport design standards and building height restrictions. Alternatives developed during this preliminary evaluation process were then carried into an environmental review and analysis process, in accordance with the California Environmental Quality Act (CEQA), the CEQA Guidelines and the County of Orange Local CEQA Procedures Manual. The project objectives were developed to aid in the alternative selection process by providing a standard against which to measure project alternatives.  

 

GAIP Description and Environmental Review Process

 

The GAIP has been prepared to provide the framework for general aviation improvements at JWA by conducting a comprehensive evaluation of the general aviation facilities. Adoption of a GAIP would maximize the efficiency and safety of facilities and facilitate prioritization of future general aviation improvements, including improvements proposed by FBOs as part of future leases at JWA.

 

As the proprietor of JWA, the County of Orange (County) is the “lead agency” as defined by CEQA, for preparation of Program Environmental Impact Report (EIR) 627.  The first recommended action to the Board is to adopt the proposed CEQA Certification Resolution (Attachment A), including related CEQA Findings.  Based on the project objectives, Program EIR 627 evaluated two alternatives at an equal level of detail (Proposed Project and Alternative 1).  Program EIR 627 also evaluated Alternatives 2, 3 and the CEQA required No Project Alternative.  A description of the alternatives evaluated in Program EIR 627 follows:

 

Elements common to both the Proposed Project and Alternative 1 include:

 

·         Full Service and Limited Service FBO

·         Space for flight schools

·         Correction of non-standard conditions on airfield

·         General Aviation Terminal

·         General Aviation Facility providing dedicated customs screening for General Aviation aircraft arriving from outside the country (located at one FBO, but shared by all FBOs)

·         Self-service fueling for General Aviation aircraft

 

Proposed Project

·         One Full Service West FBO and one Full Service East FBO, for a total of two full service FBOs

·         Total general aviation aircraft storage capacity under this alternative is approximately 354 based aircraft

·         Projected (2026) annual number of general aviation operations: 167,900 (compared to 192,800 in 2016)

 

Alternative 1

·         One Full Service West FBO, one Full Service Northeast FBO, and one Full Service Southeast FBO, for a total of three full service FBOs

·         Total aircraft storage capacity for all the facilities included under this alternative is approximately 356 based aircraft

·         Projected (2026) annual number of general aviation operations: 168,600 (compared to 192,800 in 2016)

 

Alternative 1 is recommended to the Board as the “Project Proposed for Approval” based upon the ability of this alternative to best meet GAIP project objectives, discussed further below. 

 

Additionally, pursuant to CEQA and the CEQA Guidelines, a range of alternatives for the GAIP were also considered and evaluated in Program EIR 627.  In addition to the Proposed Project and Alternative 1, other alternatives for the GAIP were developed in the course of the planning and environmental review process as follows:

 

Alternative 2

·         One Full Service Northeast FBO, one Full Service Southeast FBO

·         Total aircraft storage capacity for all the facilities included under this alternative is approximately 361 based aircraft

·         Projected (2026) annual number of general aviation operations: 169,400 (compared to 192,800 in 2016)

 

Alternative 3

·         All FBOs and other general aviation facilities remain in their current locations but the following existing nonstandard conditions would be corrected:

o  Relocate the Vehicle Service Road (also known as Perimeter Road) along Taxiway A to comply with FAA clearance standard dimensions for Group V aircraft;

o  Remove obstructions (two community hangars from the Full Service Southeast FBO) to comply with FAA height restrictions; and

o  Remove 31 transient aircraft apron parking spaces from within the extended object-free area (OFA) in the approach to Runway 2L.

 

No Project Alternative

 

As defined by CEQA, when the project is the revision of an existing regulatory plan, policy or ongoing operation, the No Project Alternative will be the continuation of the existing plan, policy or operation into the future. The No Project Alternative would not implement any improvements or modifications to the general aviation facilities at JWA.  This alternative assumes there would be no change in the current (2016) aircraft fleet mix; therefore, estimated capacity of the existing facilities is approximately 596 based aircraft at JWA.  Even though no improvements are proposed, this alternative projects an increase in the number of operations of fixed-wing piston aircraft between 2016 and 2026.  However, because the types of facilities do not fully align with the demand in 2026, the total number of based aircraft is projected to be 505 aircraft. The projected (2026) annual number of general aviation operations are forecast to increase to 201,000 compared to 192,800 in 2016.

 

Program EIR 627 Analysis

 

Proposed Final Program EIR 627 was prepared pursuant to CEQA and the CEQA Guidelines. CEQA specifies that “where individual projects are, or a phased project is, to be undertaken and where the total undertaking comprises a project with significant environmental effect, the Lead Agency shall prepare a single program EIR for the ultimate project.”  Because the GAIP will be a phased project, a Program EIR was prepared.  Following preparation of an initial study by the County and pursuant to the CEQA Guidelines, certain environmental issues were assessed as having no, or less than significant, impacts and were identified in the CEQA scoping process as topical areas that would not receive further evaluation in Program EIR 627. The Program EIR has fully addressed all potential significant effects of the following topical areas:

 

  •   Aesthetics
  •   Air Quality
  •   Cultural/Scientific Resources
  •   Greenhouse Gas Emissions
  •   Hazards and Hazardous Materials
  •   Land Use and Planning
  •   Noise
  •   Transportation/Traffic
  •   Tribal and Cultural Resources
  •   Utilities and Service Systems
  •   Water Quality

 

Cumulative Impacts, Long-Term Implications of the Project and Alternatives are also addressed in proposed Final Program EIR 627.  A summary of all potential impacts, mitigation measures and the level of significance after mitigation can be found in Table 1-2 of Draft Program EIR 627.  (The entirety of Draft Program EIR 627 is included as Attachment C.)

 

Implementation of the Project Proposed for Approval (Alternative 1) would result in significant direct and cumulative land use and planning impacts in connection with compatibility with surrounding land uses. (This is also identified as a significant direct and cumulative impact associated with the Proposed Project alternative studied in Program EIR 627). As a result of the incremental increase in noise associated with the change in fleet mix under the Project Proposed for Approval, there would be an increased number of sensitive receptors and physical area projected to occur within the 65 to 70 dB Community Noise Equivalent Level contour, due to the area exposed within this contour increasing by 0.01 square mile when compared to the 2016 baseline.  Although the County has a sound insulation program in place, three of these residential units have not participated in the program and it cannot be certain that these residential units would qualify for the program based on FAA criteria or take part in the program.  Therefore, the land use and planning impact is a significant, unavoidable impact.  Impacts could be avoided or reduced to less than significant for all other environmental topical areas evaluated in Program EIR 627. 

 

Public Review Process

 

The County issued a Notice of Preparation (NOP) of Draft Program EIR 627 on March 30, 2017, requesting responsible agencies, other interested public agencies, key interest groups and members of the general public to provide input on the scope and content of Draft Program EIR 627.  Additionally, the County held a public scoping meeting on April 12, 2017, to receive input on the NOP.  The County received comments in response to the NOP for a period of 30 days, through May 1, 2017.  JWA staff and its environmental consultants reviewed and considered all the comments received on the NOP as part of the preparation of the Draft Program EIR and accompanying technical studies.

 

The County circulated the GAIP Draft Program EIR 627 for public review and comment to state, federal and local agencies, including all responsible and trustee agencies that are responsible for discretionary actions related to the Project, as well as to all cities in Orange County and other parties that have expressed interest in the Project.  The public comment period on Draft Program EIR 627 began on September 20, 2018, and was advertised to end on November 6, 2018.  A Public Notice of Availability of Draft Program EIR 627 was published in the Orange County Register, a newspaper of general circulation; sent (via U.S. mail or email, dependent on the contact information provided) to all organizations and individuals previously requesting notice and to the attendees of the public scoping meeting; and was posted on the JWA and OC Public Works’ websites.  A total of 756 notices were sent to various agencies, elected official, organizations, businesses and individuals.

 

Prior to the end of the Draft Program EIR 627 public review period, the County received requests for a time extension.  The County extended the review period until November 21, 2018, resulting in a 60-day public review period.  In conjunction with the time extension, the County sent letters on November 1, 2018, to all the original recipients of the Draft Program EIR and the Notice of Availability to inform them of the time extension.  In addition, a notice of time extension was published in the Orange County Register.  The notice was also posted on the JWA website.   

 

The County provided copies of Draft Program EIR 627 with supporting technical appendices and cited or referenced studies or reports to 11 public libraries in the vicinity of JWA and to the State Clearinghouse, which, in turn, distributed Draft Program EIR 627 to all interested state agencies for review and comment.  The reports were made available for review at the JWA Administrative Offices located at 3160 Airway Avenue in Costa Mesa, California 92626, and were also available online at www.ocair.com/DEIR627.

 

During the public review period, a public meeting was held on September 26, 2018, at the JWA Administrative Offices in Costa Mesa.  The presentation at the public meeting provided an overview of the GAIP and the findings of the Draft Program EIR.  The public was also given an opportunity to provide input on the Draft Program EIR and to ask questions about the GAIP.  A transcript of the public meeting was prepared and is included in Volume IB of the Responses to Comments on the Final Program EIR (Attachment B).

 

A total of 288 comment letters/cards/e-mails were received during the 60-day review period. Of these, 150 letters were a standardized form letter.  Additionally, a number of the commenters submitted the same set of comments more than once or in multiple formats (e.g., electronically and hard copy).  In addition, 28 comment letters/cards/e-mails were received after the end of the public review period, 10 of which were the standardized form letter. Responses have been prepared addressing all written and oral comments received within the Draft EIR 627 comment period, as well as late comments, and are included in the Draft EIR 627 Responses to Comments report (Attachment B).

 

As required by Section 15132(d) of the CEQA Guidelines, the Final Program EIR responds to comments regarding “significant environmental points raised in the review and consultation process." Many of the comments received do not identify any environmental issues or questions on the adequacy of the Draft Program EIR; therefore, pursuant to CEQA, no response is required.  However, as part of these Responses to Comments, information is provided in the Responses to enhance the commenters’ understanding of the GAIP.  The majority of this information is contained in the Draft Program EIR and the additional response information does not constitute significant new information requiring recirculation but rather, this additional information merely clarifies, amplifies, or makes minor modifications in an adequate Draft Program EIR.

 

Recommendation to adopt Alternative 1 as the GAIP Project Proposed for Approval

 

It is recommended that the Board: 1) adopt the proposed Certification Resolution (Attachment A) certifying the adequacy and completeness of Program EIR 627 for purposes of CEQA, including related CEQA Findings, Statement of Overriding Considerations and the Mitigation Monitoring and Reporting Program and 2) adopt the Project Approval Resolution, included as Attachment D, approving GAIP Alternative 1 (the Project Proposed for Approval).

 

The Project Proposed for Approval (Alternative 1) would most fully achieve the Project Objectives identified above and includes the following key design elements:

  • Three Full Service FBOs, two on the east side of JWA and one on the west side of JWA, each with hangars and based aircraft located on the apron;
  • Provisions for an optional general aviation terminal and General Aviation Facility (GAF) that would be constructed at one of the Full Service FBO locations but would be accessible to all general aviation users;
  • One Limited Service FBO, in addition to the Martin Aviation Limited Service FBO, for a total of two Limited Service FBOs;
  • Correction of four existing non-standard design features (relocation of the perimeter road on east and west side of the airfield because they are within the OFA of Taxiways A and B, respectively; removal of two community hangars from the existing Full Service Southeast FBO to comply with FAA height restrictions; and removal of 31 transient aircraft apron parking areas at the southeast portion of JWA currently in the OFA for the approach to Runway 2L;
  • Facilities to serve the Orange County Sherriff’s Department (OCSD) (hangar and tie-downs for OCSD helicopters);
  • Flight schools, with aircraft parking on the apron;
  • Capacity for approximately 356 based aircraft located in box hangars, community hangars, T-hangars, tie-downs and FBO apron spaces;
  • Forecasted 168,600 annual aircraft operations (an operation is defined as either a takeoff or landing, each counting as one operation);
  • Vehicle parking to accommodate the various uses, including a possible shared parking structure on the east side for the two Full Service FBOs;
  • A self-service aircraft fueling station and aircraft wash rack;
  • A potential left turn lane on Campus Drive to provide access to the east side Full Service FBOs; and
  • Redesign of the Campus Drive and Quail Street access point to allow both ingress and egress (right-in and right-out) at the intersection. The redesign would require the security entrance gate to be moved further from the Campus Drive. The curb line would remain the same as existing conditions.

Alternative 1 Meets Project Objectives

The general aviation facilities have remained mostly unchanged for more than 20 years. Many are in need of repairs and do not meet the current aviation facility demands.  The Project Proposed for Approval (Alternative 1) would provide the mechanism for upgrading these facilities.

 

The aging general aviation facilities do not meet the current fleet mix demands.  The Project Proposed for Approval would provide for facilities to better meet the current and future general aviation fleet mix demand in light of the space constraints at JWA.

The correction of existing non-standard design features to meet FAA design criteria will enhance the safety of operations at JWA. The improvements intend to reduce incursions between aircraft and ground vehicles and eliminate known obstructions to airport airspace.

Adoption of the Project Proposed for Approval provides improvements that will enhance JWA’s safety by meeting FAA design standards to the maximum extent feasible. Correcting the existing non-standard design features would facilitate FAA’s approval of JWA’s future Airport Layout Plan submittals.

Adoption of the Project Proposed for Approval encourages economic growth within the region by providing for the employment of construction workers and construction supply workers.

Adoption of the Project Proposed for Approval implements JWA’s goals, objectives and performance targets for sustainability within proposed development projects. All new facilities would need to comply with the current requirements for sustainability.

The Project Proposed for Approval fully implements all of the Project Objectives and will result in economic, legal, social and technological benefits compared to the other project alternatives studied.

 

Other Alternatives Studied in Final Program EIR 627 and Ability to Meet Project Objectives

Project objectives were developed to aid in the selection process by providing a standard against which to measure project alternatives.   

 

The Proposed Project and Alternative 2 would not be as effective as the Project Proposed for Approval (Alternative 1) in providing the flexibility to meet future market trends (Project Objective 4: “To embrace flexibility to allow for technological advances and market trends"). By offering a greater number of community hangars, the Project Proposed for Approval would be better able to adapt to potential changes in the fleet mix. Additionally, Alternative 2 may result in the need to tow aircraft across the airfield and cross Runway 20R/2L, which is used by commercial carriers; therefore, it would not enhance compatibility between general and commercial aviation operations.

 

Alternative 3 would correct the same existing non-standard conditions as the Project Proposed for Approval. However, this alternative does not propose any of the other facility improvements that are offered by the Project Proposed for Approval. Alternative 3 would not be as effective in meeting the Project Objectives because it would maintain one split-location FBO, where a portion of the northeast side Full Service FBO would still remain on the west side of JWA. This necessitates the need to tow aircraft across the airfield and cross Runway 20R/2L, which is used by commercial carriers; therefore, it would not enhance compatibility between general and commercial aviation operations. As a result of the correction of non-standard conditions, Alternative 3 would provide fewer community hangar space compared to Baseline (2016) and the Project Proposed for Approval (i.e., removal of two community hangars from the Full Service Southeast FBO). Alternative 3 would not fully meet the Project Objectives of “utilize limited land area efficiently and economically” nor “maximize economic, self-sustaining, revenue-producing facilities” because, based on the trends in general aviation fleet mix, Alternative 3 would result in facilities going unused because they are not responsive to the type of facilities required (i.e., Alternative 3 provides more tie-down area for more small aircraft than there is demand for). Since this alternative would not provide replacement/upgrades of any of the facilities, it would not be responsive to the national trends, which have been experienced at JWA to accommodate the increased demand for general aviation jet aircraft.

The No Project Alternative would not implement any improvements or modifications to the general aviation facilities at JWA. This alternative assumes no change in the Baseline aircraft fleet mix and the theoretical Airport capacity would remain at 596 based aircraft. The No Project Alternative would not enhance safe and secure operations because it would not correct the existing non-standard design features at JWA. It also would not meet the objective pertaining to flexibility to allow for technological advances and market trends because no improvements would be provided.

The No Project Alternative, which maintains a portion of a full service FBO on the west side of JWA, necessitates the need to tow aircraft across the airfield and cross Runway 20R/2L used by commercial carriers. Therefore, it would not enhance compatibility between general and commercial aviation operations. The No Project Alternative would not fully meet the Project Objectives of “utilize limited land area efficiently and economically” nor “maximize economic, self-sustaining, revenue-producing facilities” because, based on the trends in general aviation fleet mix, facilities going unused because they are not responsive to the type of facilities required (e.g., providing more tie-down area for more small aircraft than there is demand for). Since this alternative would not provide replacement/upgrades of any of the facilities, it would not be responsive to the national trends, which have been experienced at JWA to accommodate the increased demand for general aviation jet aircraft.

With adoption of Project Proposed for Approval (Alternative 1), general aviation at JWA would continue to serve fixed wing piston aircraft (single-and multi-engine), fixed wing turbine aircraft (turboprop and turbojet); and helicopters. However, capacity would be reduced for based aircraft by 26 percent compared to the number of based aircraft at JWA in the Baseline (2016) condition. The Project Proposed for Approval would provide facilities to serve an increase in the number of general aviation jets.

CEQA does not require that a public agency achieve every objective with the adoption of a selected project; however, the Board is to consider each of the project objectives for the Project Proposed for Approval prior to reaching a final decision.

 

Actions of the Orange County Airport Commission

 

At the April 17, 2019 meeting of the Orange County Airport Commission, the Commission evaluated and considered the General Aviation Improvement Program EIR 627.  (The Airport Commission recommendation will be provided to the Board after its action is taken.)

 

Compliance with CEQA: As the proprietor of JWA, the County is the “lead agency” as defined by CEQA for preparation of EIR 627.  The Board’s first recommended action is to adopt the proposed CEQA Certification Resolution (Attachment B), including related CEQA Findings.

 

 

 

 

FINANCIAL IMPACT:

 

N/A

 

STAFFING IMPACT:

 

N/A

 

ATTACHMENT(S):

 

Attachment A - CEQA Certification Resolution (Exhibits: CEQA Findings and MMRP)
Attachment B - Final DEIR 627 Responses to Comments Report
Attachment C - Draft EIR 627 (which, by definition, includes DEIR 627)
Attachment D - Proposed Project Approval Resolution