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HomeMy WebLinkAboutRPT 3 J.W. VOR NAVIGATN 2-17-87 Inter- Corn DATE: FEBRUARY 18, 1987 TO: FROM: S U BJ ECT: WILLIAI4 A. HUSTON, CITY HANAG£R CHRISTINE SIIINGLETON, DIRECTOR OF COI~I~U#ITY DEYELOPIIEIIT JOHN NAYN£ AIRPORT VOR NAVIGATION SYSTEH RECOHI~E#DATION: It is recommended that the City Council authorize the Mayor to transmit a letter to the FAA requesting immediate resolution of current VOR obstruction. BACKGROUND: The City Council at their regular meeting on February 2nd requested that staff provide information on the current issues associated with obstruction by development of the VOR navigator system. VOR is an abbreviation for "very high frequency omnidirectional range". VOR is a. non-precision radio navigational transmitter standard which is used world-wide. Its function is two-fold: {1) as an approach beacon for instrument flight rules and approaches to John Wayne Airport; and {2) as a flight navigation beacon for airways 'over Southern California. ILS is an abbreviation for "instrument landing system". Both the VOR and the ILS for the John Wayne Airport are delineated on the attached map. On January 28, 1987, the Federal Aviation Administration {FAA) shut down the VOR at John Wayne Airport because of possible obstruction of the system by a building under construction at Hutton Center in Santa Ana. As soon as the building reaches it's ultimate height (possibly 6 to 8 weeks) the FAA will again test the system to determine if the building construction has impaired the VOR. If it does not impair the VOR then the system will be reopened. If it has impaired the system, then alternatives will have to be studied. A1 ternatives: A *few years ago a consortium was formed of large developers (Koll, Irvine Co., Birtcher, etc.) to work with the County of Orange and the FAA. At that time they proposed the construction of a new signal at the SE corner of McFadden and Grand Avenues. For the past two years the airport budget has had $500,000 earmarked for the relocation of the signal. The remainder of the cost was to be borne by the consortium of developers and the FAA. This signal was to be a Localizer Directional Aid (LDA) which is actually one-half of an ILS. Bill Huston VOR page two To date'this method still has to be tested to see if it would work so no decisions have been made. Attached for the Council's information is a memo from George Rebella, Airport Manager, to the Orange County Board of Supervisors which details the on-going situation between the County, City of Santa Ana and the FAA. Also attached to this memo is correspondence from Chairman Stanton to Congressman Dannemeyer. From the attached correspondence it. appears that the'County Board of Supervisors is trying to correct the situation as soon as possible. However, staff recommends that the City Council send a letter to the FAA with a copy to the Board of Supervisors, the City of Santa Aha and Congressman Dannemeyer requesting that this potentially hazardous situation be dealt wi th promptly. Attached is a draft letter for Council's consideration. Director of Commun~t~ Development CS:MAC:do atttach: B/S memo Dannemeyer correspondence Map Draft letter to FAA Community Development Department City of Tustin February 17, 1987 Community Development Department Dr. Homer C. McClure, Director AWP-1 The Federal Aviation Administration Western Pacific Region P.O. Box 92007 World Way Postal Center Los Angeles, CA 90009 Dear Dr. McClure: The City of Tustln is gravely concerned with the recent closing of the VOR at the John Wayne Airport. During instrument conditions, all arriving aircraft must now fly over the City of Tustin which decreases air safety and increases the noise impacts for our residents. The City of Tusttn has always willingly worked with the Land USe commission and FAA to resolve land use problems. The recent closing of the VOR shows the unresponsiveness of both the FAA and the City of Santa Aha to alleviate this serious condition. Rather than issue a determination of "hazard" on the high rise structure in Hutton Centre, FAA chose to close the VOR until the building is completed. Because of FAA's unwillingness to decree a "hazard situation", the State has been unable to require a State permit or as an alternative, restrain construction . The City of Santa Ana has also apparently not consulted airport staff nor do they appear overly concerned with the cumulative impacts of high rise construction to John Wayne navigation facilities, or air safety. If the VOR is no longer operational we would suggest immediate evaluation and placement of an LDA to improve air safety. As an additional precaution we would also strongly recommend more immediate restrictive legislation on local jurisdictions within the flight path requiring individual review of all permits for high-rise structures near airports. Our Council urges you to press forward with these alternatives so that airspace over our City is safe. A solution to this problem must be implemented promptly to avoid a possible catastrophe. Should you have any questions, please do not hesitate to call. response to our request is desired. Your timely Sincerely, DONALD J. SALTARELLI, Mayor 300 CentenniaiWay · Tustin, California 92680 · (714) 544-8890 City of Tustin February 17, 1987 Community Development Department The Honorable William Dannemeyer Congressman, 39%h District 1235 H. Harbor Blvd., #100 Fullerton, CA 92632 Dear Congressman Dannemeyer: The City of Tustin is gravely concerned with the recent closing of the VOR at the John Wayne Airport. During instrument conditions, all arriving aircraft must now fly over the City of Tustin which decreases air safety and increases the noise impacts for our residents. The City of Tustin has always willingly worked with the Land Use Commission and FAA to resolve land use problems. The recent closing of the VOR shows the unresponsiveness of both the FAA and the City of Santa Ana to alleviate, this serious condition. Rather than issue a determination of "hazard" on the high rise structure in Hutton Centre, FAA chose to close the VOR until the building is completed. Because of FAA's unwillingness to decree a "hazard situation", the State has been unable to require a State permit or as an alternative, restrain construction . The City of Santa Ana has also apparently not consulted airport staff nor do they appear overly concerned with the cumulative impacts of high rise construction to John Wayne navigation facilities, or air safety. If the VOR is no longer operational we would suggest immediate evaluation and placement of an LDA to improve air safety. As an additional precaution we would also strongly recommend more immediate~ restrictive legislation on local jurisdictions within the flight path requiring individual review of all permits for high-rise structures near airports. Our Council urges you to press forward with these alternatives so that airspace over our City is safe. A solution to this problem must be implemented promptly to avoid a possible catastrophe. Should you have any questions, please do not hesitate to call. response to our request is desired. Your timely Sincerely, DONALD J. SALTARELLI, Mayor 300 Centennial Way · Tustin, California 92680 · (714) 544-8890 RO~ER R. STA. I~TTO1V February 2, 1987 The Honorable William Dannemyer Congressman, 39th District 1235 N. Harbor Blvd., Ste. 100 Fullerton, California 92632 Dear Bill: As you are aware, the John Wayne Airport high frequency omnirange facility (the VOR), was taken out of service by the FAA on January 28, 1987. The County and development community has been more than willing to work with the FAA, including providing funding to upgrade or relocate the VOR facility. The FAA has been totally unresponsive to the County, and as a result, the situation has eroded to the current state. I am especially concerned because this facility shutdown-forces all aircraft using an instrument landing approach to fly over the Tustin area. I hope you will intercede on the County's behalf to direct the FAA to resolve this problem as quickly as possible to benefit the citizens of Tustin and North Tustin. Thank you for your special interest. Sincerely, Rog~ on ChaI na_~_, B~ard of Supervisors Fir~ -District RRS:kbd CC: Mayor Donald Saltarelli, City of Tustin Tustin City Council members George Rebella, John Wayne Airport Manager ?-OUNTAIN VALLEY -- GARDEN GROVE -- MIDWAY CITY -- SANTA ANA -- TUSTIN -- WESTMINSTER county of Orange January 30, 1987 TO: FROM: SUBJECT: Members of the Board of Supervisors George Rebelia, Airport Manager Interim Closure of Airport Navigation Facility As you are aware, the JWA very high frequency omnirange facility ("the VOR") was taken out of service by the FAA on Wednesday afternoon, January 28, 1987. The VOR, which is operated and controlled by the FAA, performs a two-fold function: (1) as an approach beacon for instrument fligh~ rules ("IFR")' approaches to JWA and (2) as a flight navigation beacon for airways over southern California. My concern relates to stabilized approach routing to the Airport. During instrument conditions, arriving aircraft can be routed from a more northwesterly direction by using the VOR in conjunction with the northerly approach pattern resulting from use of the Instrument Landing System ("the ILS"). Yesterday, I met with our counsel and FAA regional staff to discuss the VOR situation. FAA indicated a continuing derogation of the VOR sigMai by reason of certain high-rise buildings being constructed in the Hutton Center complex in Santa Ana. A current building being constructed has given FAA concern as to the accuracy of the VOR signal; until the structure and facade of the building are completed (five to six weeks), and the appr6ach can be flight tested, the FAA cannot guarantee the approach. Thus, as a precautionary move, the VOR was temporarily shutdown. The Airport had approximately one hour's notice on Wednesday afternoon of this decision. FAA was advised that such unilateral action was entirely inconsistent with the cooperative approach to problems which the County and FAA have shared in resolving other issues in the past, such as the Access Plan and the Joint EIR/EIS 508 Master Plan Project. The FAA concurred that they should have informed Airport staff of the problem and their proposed decision earlier. My staff first became aware of the potential problem from this high-rise structure in the Hutton Center in May of 1986, by reason of the issuance by the FAA of a "Notice of Presumed Hazard, Subject to Additional Study," by reason of possible' interference of this building with the VOR. My staff brought this to the attention of the State Division of Aeronautics, which enforces, under .the Public Utilities Code, any hazards to air H8/3 F850-188(3/84) ~ Members of the Board of Supervisors January 30, 1987 Page 2 navigation by reason of land use decisions near airports.1 The State indicated that a "presumed hazard" would not require a state permit or allow enforcement by the State. The State indicated that the County must await the "further study" to determine if a "hazard" determination would, indeed, be forthcoming~ Construction began on the building in December. Airport staff was aware that. FAA was monitoring the construction and would upgrade their determination if a "hazard" became evident during the construction project. Rather than issue such a determination, the FAA chose to close the VOR until the building (at least its steel structure and facing) is completed to deter- mine if, in fact, a hazard exists. Thus, because of this structure and the unwillingness of FAA engineering staff to decree a "hazard" situation, the State is unable to require a state permit or alternatively, restrain construction. The City of Santa Ana has not consulted Airport staff nor does it appear overly concerned with the continuing cumulative impacts of these high-rise structUces to the JWA navigation facilities, or..air safety, which are near the Airport. I under- stand there are approximately twenty other proposed structures near the Airport which have been given the status of "presumed hazard, subject to additional study." FAA regional counsel was ultimately called into the meeting concerning this difference in terminology. He indicated his concern as to whether in fact a hazard determination should have been given at the outset of this construction rather than a mere presumption. As a result of this meeting, the following action is being taken, both regarding short-term effects of the closed facility and to prevent further incidents of this nature in the future. FAA is investigating operational directives to their tower personnel as to different approach angles of arriving aircraft under visual flight rules (VFR) conditions. FAA has also agreed to immediately flight test the VOR (upon completion of framing and facing of the building) for purposes of resuming operation of the VOR. Assuming (worse case) that the VOR becomes inoperable by reason of the building, I am beginning the process of evaluating i/While the FAA issues "determinations" as to hazards, it has no enforcement power to enjoin or otherwise restrict proposed construction. H8/3 Members of the Board of Supervisors January 30, 1987 Page 3 placement of a LDA (localizer-type approach beacon) to be used in place of the VOR. FAA has agreed to include my staff in its further evaluation process of this and other possible hazard/no hazard determinations, and at the very least, to give us a reasonable period of notice prior to actions at JWA which affect our facilities. Regional counsel is reviewing the hazard versus presumed hazard terminology. A confirming letter of'our meeting will be forwarded to FAA region, with a copy to regional and Washington counsel. I have directed our counsel to review the state statute requiring permits for high-rise structures near airports as to possible amending legislation to the "presumed hazard" situation. I will be contacting in writing the City of Santa Ana and the developer of this structure to advise of the seriousness and significance of allowing the construction of this building and the possible liability which may ensue from this or future conduct and to.ensure expedited completion of the structure to allow FAA to c6mplete its study. I have been informed that the City of Santa Ana has be~n less than cooperative with the Airport Land Use Commission. I will request the ALUC to investigate this matter and to ensure full evaluation of future projects, consistent with the Public Utilities Code. In summary, I have conveyed the County's extreme displeasure of the FAA's "hazard" monitoring process, especially with regard to this project and its action in closing the VOR with such little notice to the County. While our primary policy at JWA is to ensure the safety and adequacy of the Airport and related facilities, I believe early-on consultation and discussion between the County and FAA will ensure mutual problems are resolved and minimize any effects on the Airport or surrounding community by reason of County or FAA safety standards. I will continue to personally monitor this matter and will periodically advise the Board and Airport Commission as to 2/The ALUC is a separate statutory body created to review land use decisions surrounding airports which may affect, among others, the safety of air navigation. H8/3 Members of the Board of Supervisors January 30, 1987 Page 4 resolution of these issues. If you have any questions regarding this matter, please advise. DJD:hp cc: Airport Commission Larry Parrish, CAO County Counsel Michael S. Gatzke, Esq. H8/3 High-rise forces shutdown of .airport navigation aid Ail flights landing at Wayne must travel over Tustin By Jean O. Pasco The Register · The Federal Aviation Adminis- tTation has shut down one of two navigational systems for pilots landing at John Wayne Airport be- cause a nearby hil;h-rise building under construct!on has obliterated its signal. The action means ali incoming airplanes will fly over Tustin and Lemon Heights, where the remain- ing navigation system mutes them. About half of the planes had been directed over Santa Ana us- ing the now-crippled system, called a VOR, or very high fre- quency omnidirectional range; Planes will use the Tustin ap- proach~ called an ILS or instru- ment-landing system, until the of- fending building in Hutton Centre is completed in December, FAA spokesman Russell Park said. Then, the agency will test the VOR to determine if it can besalvaged. A 1985 study showed that if the building were built, it would "ruin" the VOR, said Jay Maag, FAA coordinator at John Wayne Airport. ~Jthough the loss of the system will not affect safety, he said, it mbs the airport of a backup landing system. The VOR system, which cost $533,000 when it was in- stalled in 1971, was shut down Wednesday. Don Belveal, a Tustin resident appointed by the City Council to monitor aircraft noise, said Friday that he is furious about rerouting. "This is an unreasonable bur- den," he said. "Not o~ty do we have to deal with noise pollution, but the potential horrible loss of life and property (in plane crash- es). I really think it's outrageous." Pfl0ts trying to locate the airport with cockpit instruments often rely on the VOR, a cone-shaped instru- ment located near'the runways. The VOR sends out signals on a 360- degree radius, like spokes in a bi- cycle tire, that pilots tune in with cockpit instruments to determine their location in relation to the air- Since 198S, a handful of tall build- ings has sprouted around the air- port, interfering with the signals, which bounce off reflective glass surfaces of the buildings. Each re- flective building interferes with the "spokes" of the VOR. By comparison, the ILS directs planes on a single beacon. It is Please see AIRPORT/B5 AIRPORT: signaI reflects off .high-rises FROM B1 more precise than the VOR be- cause'it routes jets on a specific glide path into the airport. Ed Pinto, spokesman for the Air- craft Owners and Pilots Associa- tion, said Friday he is concerned about the shutdown. He said the VOR system is a "very important road map" for planes navigating up to 50 miles from the airport. "We're not very happy about it," he said. "We're going to be looking into it." ' Santa ^na officials and the de- veloper of the building, Hutton De- velopment Co., admitted Friday that they received a letter !ast year from the FAA warning that the high-rise could be the last straw in destroying the VOR system. Mike Haack, development procedures coordinator for Santa Ana, said the city issued a building permit to' the developer because the FAA was "foot dragging" on evaluating the building. By the time the'FAA's warning was received, the building was ready for construction, he said. Richard Lay, Santa Ana's assis- tant city attorney, said even if a warning had been sent before the permit was issued, the city could not have halted the building based solely on the FAA's warning. But Savoy Bellavia, vice presi- dent of Hutton Development Co., said he received the FAA's letter before receiving the building per- mit in Maroh1986. When told about the FAA's concern about his build- ing, he said, "That's interesting. "We 'have a letter on file that says, without further study, the building could be considered a haz- ard (to navigation) if built," he said.."The letter said it could be considered a hazard or may be, but it never said it is a hazard." He said the building sits about 150 yards from another strudture that is taller, larger and closer to the airport. "How can you allow one and 150 yards away say that one could be a hazard," he said. "It's somewhat hard to accept." John Wayne Airport's Maag said airport-area developers were warned the VOR was in trouble in April 1985, when the FAA imposed a three-month freeze on reviewing construction applications. An air- space study, paid for by develop- ers, showed new buildings were taking little chnnks from the VOR system, he said. Last year, developers attempted to pay to relocate the system 21/: miles away, but ran into a snag when they couldn't assure the FAA Air traffic rerouted ~gh-r~ building u~er con~n in Hu~ O~tre All ¢~s.~ iii F . I ,¢,*:. ,/ ., , it~ McFaOden Ave ~ ~f~ .~:~.~*' '~¢ :~: ,} la~ing ~ ~ ~ system s~e / - / / that construction around its new location wouldn't render it useless again. In the past, the FAA l~as threat- ened to protest all development ap- plications, potentially affecting a builder's ability to get insurance, until the VOR problem is solved. Th~ Re~ister Cities generally deny building per- mits for structures the FAA deems hazardous. Maag said developors still are looking for ways to salvage the sys- tem, although that search has been suspended in light of Wednesday's shutdown. Air traffic rerouted The Federal Aviation Administration I'tas shut:dowr~ ~.:landing system. called a VOR. at Jol-,n Wayne Aiqx~; t3ecause of interference from a ~igh.nSe building under constt~"lJon in Hutton Centre. Alt. panes now must land ove~ Tustin using a second system, called a~ ILS. ATTACHMENT I AI-FAC~ENT II REPORTS NO. 3 2-17-87 .\ !I, / I ~, CNEL CONTOURS 60/65/70/75 EXISTING CONTOURS 1985 SCALE 1"=4000'