Strategic airports and aviation facilities - July 2014 State Planning Policy-state interest guideline
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Department of State Development, Infrastructure and Planning State Planning Policy—state interest guideline Strategic airports and aviation facilities July 2014 Great state. Great opportunity.
Preface Using this state interest guideline The Queensland Government established the State Planning Where interim development assessment requirements apply Policy (SPP) to define the specific matters of state interest for a state interest (because the relevant planning scheme in land use planning and development. To support the has not yet integrated the state interest or an amendment implementation of the SPP, each state interest in the SPP to the SPP has occurred subsequent to the scheme), the is supported by a state interest guideline such as this one. SPP quoted text defines requirements that must be applied in the assessment of applicable development applications. This state interest guideline must be read in conjunction with the SPP. Content within this state interest guideline that is not an excerpt from the SPP provides further context and explains Where text in this guideline is in a coloured text box, it is how the SPP policies can be applied. It does not introduce or an excerpt from the SPP and is the state’s policy about a define any new policies which do not exist in the SPP itself. matter of state interest. The use of such guidance material is optional—it does not form a statutory component of the SPP and hence is not a In relation to making or amending a planning scheme, the mandatory requirement of the state. SPP quoted text defines what a local government should do in preparing or amending a planning scheme (ie. the state prefers this policy but will consider alternative approaches based on specific local context or issues). 2
Contents PART A Background and core concepts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 PART B Integrating the state interest into planning schemes. . . . . . . . . . . . 5 PART C Application of interim development assessment requirements. . . . 12 PART D Model codes and provisions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 Appendix 1: Core concepts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24 Appendix 2: Aviation facilities—location and type. . . . . . . . . . . . . . . . . . . . . 33 Appendix 3: B uilding restricted areas for aviation facilities (communication). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41 Appendix 4: Guidance on the National Airports Safeguarding Framework. . . 57 Appendix 5: Guidance on development assessment processes. . . . . . . . . . 59 Appendix 6: Guidance on agency roles and contact information . . . . . . . . . 66 3
PART A PART A: Background and core concepts State interest—strategic airports and aviation facilities Planning protects the operation of strategic airports and aviation facilities, and enables the growth and development of Queensland’s aviation industry. Background Core concepts Strategic airports and aviation facilities play a key economic, Appendix 1 provides advice around those core concepts tourism, social and defence role in Queensland. The which must be considered in the integration of the Queensland Government recognises the need to protect state interest—strategic airports and aviation facilities, aviation assets to support growth of the state’s economy specifically: and tourism industry, regional communities and national defence. Protection of strategic airports and aviation • What is a strategic airport? facilities also supports Commonwealth, state and local • What is an aviation facility? government investment in aviation infrastructure assets and public passenger transport flights. • What is operational airspace? The Australian Government also has a direct role in • What is a public safety area (PSA)? protecting strategic airports and aviation facilities in Queensland. The role of the Australian Government is • What are the impacts of aircraft noise? highlighted in blue boxes throughout this guideline. • What is a building restricted area? State Planning Policy (SPP) code: Strategic airports and aviation facilities The SPP (part H) includes a development assessment code for strategic airports and aviation facilities. Local governments and development proponents are encouraged to use this code to assist in the integration of this state interest in both plan making and development assessment. 4
PART B PART B: Integrating the state interest into planning schemes Policy 1 Identifying strategic airports and aviation facilities, and associated operational airspace, public safety areas, lighting area buffer zones, wildlife hazard buffer zones, Australian Noise Exposure Forecast (ANEF) contours, and building restricted areas. How to appropriately integrate 1.2 The SPP Interactive Mapping System includes mapping layers depicting the location of strategic airports, the policy aviation facilities, operational airspace (with the exception of Height Restriction Zones), PSAs, ANEF 1.1 A local planning scheme should ensure that the contours and building restricted areas (with the location of strategic airports and aviation facilities exception of satellite ground station [SGS], glide path are identified in their local planning instrument and localiser facilities). and include airport environs overlay mapping. This mapping should include the below information in 1.3 Height Restriction Zones for a defence airfield or order to appropriately protect strategic airports and joint-user airport can be sourced directly from the aviation facilities. While available information will vary Department of Defence (DoD). In future, mapping of depending on the airport/aviation facility, this could Height Restriction Zones, lighting area buffer zones be done with overlays that show: and wildlife hazard buffer zones will also be available from the SPP Interactive Mapping System. It is highly • operational airspace—Obstacle Limitation Surface recommended local government request assistance (OLS) surface (for Leased Federal and other strategic from Airservices Australia to determine the building airports) or Height Restriction Zone (for defence restricted area for an aviation facility given the highly airfields and joint-user airfields) technical nature of the process. • lighting area buffer zone—areas within six kilometre 1.4 The SPP Interactive Mapping System will include the radius of a strategic airport’s runway measured from most recent airport environs overlay data required the aerodrome reference point and lighting intensity for each local government area. It is the role of the zones A–D Department of Transport and Main Roads (TMR) to liaise with all airport managers and Airservices • wildlife hazard buffer zone—areas within three, Australia to source the most up-to-date data for each eight and 13 kilometre radius of a strategic strategic airport and aviation facility. airport’s runway measured from the aerodrome reference point 1.5 In some instances, ANEF data may be limited or may not exist. In those cases, the airport has not developed • building restricted areas for aviation facilities an ANEF contour, and for that reason the local • PSAs government cannot include the ANEF constraints. • ANEF contours. 5
PART B Policy 2 Facilitating development surrounding strategic airports that is compatible with, depends upon or gains economic advantage from being in proximity to a strategic airport, or supports the role of the strategic airport as a critical freight and logistics hub. How to appropriately integrate 2.2 Land surrounding strategic airports should also the policy be promoted for use by development that gains economic advantage from being in proximity 2.1 The strategic framework and land use strategies in to a strategic airport, or supports the role of a local planning instrument should ensure that the the strategic airport as a critical freight and aviation industry is supported by promoting the use logistics hub. These land uses include air charter of the land surrounding strategic airports for aviation businesses, air freight depots, logistic and industry activities. These land uses include industry distribution centres, flight training and skydiving involving the design, manufacture, maintenance and businesses, warehouses and service industries. repair of aircraft and aircraft components, aviation and aerospace research and technology facilities and facilities for aviation and aerospace education and training. 6
PART B Policy 3 Protecting strategic airports by ensuring: (a) development and associated activities do not create incompatible intrusions or compromise aircraft safety, in operational airspace. How to appropriately integrate 3(a)3 The development and activities that may create obstacles should also be avoided in operational the policy airspace for defence airfields, joint-user and other airports. In addition, development and activities with 3(a)1 Land use strategies in a local planning scheme should a propensity to attract wildlife (e.g. birds or bats) are ensure development and associated activities do not also considered to have the potential to adversely adversely impact the safety and viability of strategic impact on operational airspace and aircraft safety. airports by creating obstacles in operational airspace or compromising aircraft safety. 3(a)4 Land uses and associated activities which may adversely impact operational airspace and aircraft 3(a)2 Development and activities which may create an safety are listed in Table 1 below. When making obstacle in prescribed airspace for Leased Federal or amending a local planning instrument, local airports or compromise aircraft safety are defined as government should carefully consider allocation of ‘controlled activities’ under the Airports Act and the land in the vicinity of a strategic airport for the land Airport (Protection of Airspace) Regulations. uses listed in Table 1. Land in the vicinity of a strategic airport can be allocated for a use listed in Table 1 where the local government can demonstrate that the use will not result in adverse impacts on operational airspace or aircraft safety. Table 1—Land uses with the potential to adversely impact operational airspace and aircraft safety Activity Land uses Physical obstructions: • all land uses where building/structure height exceeds OLS or height restriction zone • temporary or permanent • renewable energy facility (wind farm) • natural or man-made. Transient obstructions Outdoor sport and recreational aviation activities (e.g. parachuting, hot air ballooning, hang gliding, shooting ranges). Lighting hazards: • industry • including reflected sunlight • port services • distracts or interferes with • warehouse pilot visibility • major sport, recreation and entertainment facility • creates pilot confusion • outdoor sport and recreation regarding approach or runway lighting. • outdoor lighting • roads (500–1000 m-long straights) • advertising device 7
PART B Activity Land uses Wildlife hazards • cropping • intensive animal industry • animal husbandry • aquaculture • industry involving food processing • major sport, recreation and entertainment facility • outdoor sport and recreation • utility installation (e.g. sewage/wastewater treatment facilities and waste management facilities [landfill and transfer stations]) • environmental facility (park/conservation estate) (e.g. wetlands) Gaseous plumes with high • medium and high impact industry velocity (exceeds 4.3 m • special industry (noxious and hazardous industry) per second) • extractive industry Airborne particulates that impair visibility • utility installation • crematorium Policy 3 Protecting strategic airports by ensuring: (b) development avoids increasing risk to public safety in defined public safety areas. How to appropriately integrate the policy 3(b)1 The policy outcome can be achieved by ensuring that the • uses that attract large numbers of people (e.g. local planning instrument does not allow the following sports stadia, shopping centres, industrial and types of development in a PSA: commercial uses involving large numbers of workers or customers) • accommodation activities • institutional uses (e.g. education establishments, • the manufacture or bulk storage of flammable, hospitals). explosive or noxious materials 8
PART B Policy 3 Protecting strategic airports by ensuring: (c) development mitigates adverse impacts of aircraft noise and is compatible with forecast levels of aircraft noise within the 20 ANEF contour or greater of strategic airports. How to appropriately integrate 3(c)3 Australian Noise Exposure Concept (ANEC) contour mapping cannot be included in a local planning the policy instrument airport environs overlay mapping because it is a hypothetical map and may not have been 3(c)1 Local government is encouraged to use both ANEF subject to review by relevant authorities such as system and alternative aircraft noise metrics such as Airservices Australia. ANEC maps are produced during single event contours (e.g. N70) to inform strategic land consideration of options for airport development and use planning decisions about use of land affected by are based on assumptions about runways, aircraft aircraft noise. Alternative aircraft noise metrics should types and so on and future operating conditions which not be used as a substitute for ANEF system information; may never occur. Alternative aircraft noise metrics rather they are a complementary tool that can assist (e.g. N70s) also cannot be included in a local planning local government in communicating the nature of aircraft instruments airport environs overlay mapping. Neither noise exposure at a specific location. ANEC mapping nor alternative noise metrics are considered to be a development assessment tool and REFER TO: Appendix 4: Guidance on the National therefore should not be used to assess aircraft noise Airports Safeguarding Framework guideline, impacts on individual development proposals during which provides information for local government development assessment processes. with further information about alternative aircraft noise metrics through direction to Attachment 1 of the National Aviation Safeguarding Framework, Alternative aircraft noise. 3(c)2 A local planning instrument should make development assessable as described in Table 2 and 3 to ensure incompatible development on land affected by aircraft noise reduces adverse noise impacts on the community to acceptable levels. REFER TO: PART C: Application of interim development assessment requirements for Table 2 and 3. 9
PART B Policy 4 Protecting aviation facilities by ensuring development and associated activities within building restricted areas do not adversely affect their functioning. How to appropriately integrate the policy 4.1 When allocating land uses in areas where development has the potential to impact on the functioning of REFER TO: Appendix 3: Building restricted areas for aviation facilities, preference should be given to aviation facilities (communication) for information those uses that are unlikely to penetrate or impact on how to define the building restricted area for an on a facility’s building restricted area. Adverse effects aviation facility. on functioning of aviation facilities can arise from development that causes: • permanent or temporary physical obstructions • electrical or electro-magnetic interference • deflection or interference of signals. Policy 5 Identifying and protecting key transport infrastructure and corridors (passenger and freight) linking strategic airports to the broader transport network. How to appropriately integrate the policy 5.1 Strategic airports need to be linked to the broader 5.2 Key transport infrastructure and corridors (including transport network in order for their operations to be key freight routes) linking a strategic airport to the viable. Without roads and railways the airport would broader transport network are identified and protected not be able to be supplied with the passengers, from development which would compromise the freight, goods and services required to operate. function of the transport route. 10
PART B Policy 6 Including the SPP code: Strategic airports and aviation facilities or similar development assessment requirements. How to appropriately integrate the policy 6.1 The SPP code: Strategic airports and aviation facilities 6.2 In those instances, and when drafting new local provides the foundation for local government when planning instrument codes that vary from the SPP drafting their local planning instrument assessment code, the local government must be able to adequately codes. In some instances, a local government may demonstrate that the intent of the current policy has have already developed an airport environs code, to been addressed. reflect the former state interest, which may not align with the intent of the code. REFER TO: SPP Code: strategic airports and aviation facilities located in Part H of the SPP. 11
PART C PART C: Application of interim development assessment requirements • emissions from a development do not significantly increase air turbulence, reduce visibility or compromise Development assessment the operation of aircraft engines in a strategic airport’s requirement 1 operational airspace • development does not significantly increase the risk of Complies with the SPP code: Strategic airports and wildlife hazards in a strategic airport’s operational airspace. aviation facilities Intrusions into operational airspace Permanent or temporary physical (natural or man-made) or How to appropriately address the assessment transient obstacles in operational airspace may adversely requirement impact safety and efficiency of aircraft operations of The following information provides local government with strategic airports. information to assist in the assessment of development Generally, buildings and structures exceeding 12 metres against the SPP code: Strategic airports and aviation facilities. in height should be assessed for their potential impact The guidance is structured in accordance with the relevant on operational airspace as measured in Australian Height performance outcomes of and acceptable outcomes within Datum (AHD). the code and needs to be read in conjunction with the SPP While the Procedures for Air Navigation Services—Aircraft code: Strategic airports and aviation facilities. Operational Surfaces (PANS-OPS) is not included within a local planning instrument overlay, it will be considered as PO1 to PO4—operational airspace part of the airport manager/Australian Government agency A development proposal should not adversely impact on assessment of an infringement into operational airspace. the operational safety and viability of strategic airports by creating obstacles or compromising aircraft safety in The height of operational airspace in relation to local operational airspace. This policy outcome will be achieved if: topography needs to be taken into account when considering height restrictions for buildings or structures. Generally, • development does not include or create a permanent or the further the distance a proposed structure is from the temporary physical or transient obstruction in a strategic runway(s), the taller the structure can be without intruding airport’s operational airspace into operational airspace. This is because the height of the surface for operational airspace (above ground level) • development does not include or create external lighting increases as the distance from runways increases (see or reflective surfaces that could distract or confuse pilots Figure 1). The exception to this trend is where topography surrounding an airport is mountainous or undulating. Therefore appropriate height restrictions for a structure need to be determined following advice from the relevant airport manager. Figure 1—Conceptual illustration of operational airspace 12
PART C Consideration should also be given to any ancillary projections (e.g. antennae, satellite dishes, masts, signs, lift overruns etc.) on buildings and any cranes that REFER TO: Appendix 4: Guidance on the National are likely to be used during construction. Development Airports Safeguarding Framework. applications should ensure ancillary projections are included in all calculations of the height of the proposed obstacle. Information about any cranes to be used during Australian Government role construction should also be provided with the original application. Planting of tree species that have potential to A development proposal involving a building, structure, grow to a height that intrudes into operational airspace is crane or other construction equipment which encroaches inappropriate for developments close to runway ends. into the operational airspace of a Leased Federal or other strategic airport must be referred to the airport manager for Height restrictions may be relaxed if the impacts of a assessment who will on refer the proposal to the Australian proposed development are shielded by existing structures. Government if required. Encroachments into a Height The airport manager can identify areas of ‘obstacle Restriction Zone for a defence or joint-user airfield must shielding’ where buildings or other structures of an agreed be referred to DoD for assessment. height would not cause an obstruction in operational airspace (e.g. a new building proposed in a central business Appendix 5: Guidance on development assessment district with existing tall buildings and structures). However, processes and Appendix 6: Guidance on agency roles approval is still required from the Australian Government if provides more information regarding the Australian the proposed development will encroach into operational Government’s role and assessment processes for intrusions airspace. Obstacle shielding enables those developments into operational airspace of strategic airports. that would otherwise impact on operational airspace to be assessed as achieving the performance outcome for protecting operational airspace. Sporting and recreational aviation activities (e.g. parachuting, hot air ballooning or hang gliding) can also adversely affect the safety and efficiency of aircraft operations if they occur within an airport’s operational airspace. Material changes of use for permanent sites including such activities may need to include conditions restricting the operational of these activities to prevent intrusions into a strategic airport’s operational airspace. Guideline F of the National Aviation Safeguarding Framework, Managing the risk of intrusions into the protected airspace of airports provides local government and proponents of development with further information about how to address risks to aviation safety posed by development. 13
PART C Lighting and reflective surfaces Pilots are reliant on the specific patterns of aeronautical REFER TO: Appendix 4: Guidance on the National ground lights (i.e. runway lights and approach lights), to Airports Safeguarding Framework. safely approach and land aircraft at a strategic airport during inclement weather and outside daylight hours. Aeronautical ground lights enable pilots to align their aircraft with the runway in use and land the aircraft at the appropriate part Australian Government role of the runway. A development proposal within six kilometres of a strategic Lighting associated with development within six kilometres airport involving installation of external lighting that is likely of a strategic airport can have adverse effects on operational to affect aircraft operations must be referred to the airport airspace if it is configured in such a way as to: manager for assessment who will on refer the proposal to the Australian Government if required. Both the Civil • confuse pilots because of similarities with approach or Aviation Safety Authority (CASA) (under the Civil Aviation runway lighting Act 1988 and Regulation 94 of the Civil Aviation Regulations 1988) and DoD have legislative powers to cause lighting • distract or interfere with a pilot’s vision while in control of which may cause distraction, confusion or glare to pilots approaching or departing aircraft, for example because of flying aircraft to be turned off or modified. brightness or glare. Lighting design matters should be addressed during Configurations of lights in straight parallel lines 500–1000 pre-lodgement stage of development assessment processes metres long, particularly in the vicinity of large unlit areas, to avoid CASA or DoD directives to modify lighting after can replicate the appearance of airport runways at night. it has been installed. CASA can provide advice about the Such lighting configurations could be associated with roads, design and installation of lighting within six kilometres large parking/storage handling areas, container parks, of a strategic airport on the request of local government wharves and sporting fields. Glare or flashes from sporting or an applicant. stadia, flare plumes, refineries, upward shining lights, flashing or sodium (yellow) lighting and reflected sunlight can distract pilots at critical moments. It is important that lighting associated with development in the vicinity of a strategic airport is not configured in a way that pilots could be distracted or mistake such lighting as the aeronautical ground lights from the airport. Development involving significant external lighting, flare plumes, laser lights and other such bright light sources within six kilometres of an airport needs to be designed so that the lighting does not increase the risk of an aircraft incident. Guideline E of the National Aviation Safeguarding Framework, Managing the risk of distractions to pilots from lighting in the vicinity of airports provides local government and proponents of development with further information about how to address risks to aviation safety posed by development. 14
PART C Emissions Australian Government role A gaseous plume with a velocity exceeding 4.3 metres Any plume rise exceeding a velocity of 4.3 metres per second per second at exit must be referred to the airport manager who will on refer the proposal to CASA for assessment. CASA will assess Exhaust plumes can originate from several sources including: the potential hazard and dangers under Regulation 139.370 of the Civil Aviation Safety Regulations and Regulation 6 of • stacks or vents from industrial facilities the Airspace Regulations 2007. • industrial flares creating an instantaneous release of The Advisory Circular AC 139–5(1) provides guidance to hot gases proponents regarding the plume rise assessment process • cooling towers producing large volumes of buoyant gases and the information required from proponents to initiate a plume rise assessment by CASA. CASA can provide advice • exhaust gases from power generation facilities. and conduct a preliminary screening of the location for local government or applicants during the pre-lodgement stage Development incorporating stacks or vents that can of development assessment. emit high velocity gaseous plumes have the potential to adversely impact aircraft operations by affecting the handling characteristics of an aircraft in flight. In such situations there is danger of a momentary loss of control of the aircraft. Where a development involves plume rises exceeding a velocity of 4.3 metres per second, mitigation measures may be required. In some circumstances, mitigation will not be possible without adversely affecting the operational safety and efficiency of the strategic airport. Airborne particulates that may impair visibility Australian Government role Development with the potential to produce steam, dust, A development proposal involving emission of airborne smoke, ash and other airborne particles or pollutants particulates that may impair visibility in operational (e.g. extractive industries) into operational airspace may airspace must be referred to the airport manager who will affect aircraft safety by reducing pilot or air traffic control on refer the proposal to CASA for assessment. Proposals (ATC) visibility, or impacting engine operation. Impacts on with the potential to affect visibility in a Height Restriction visibility can cause a change from visual to instrument flight Zone for a defence or joint-user airfield must be referred rules which can in turn reduce the handling capacity of to DoD for assessment. operational airspace by as much as 50 per cent. Appendix 5: Guidance on development assessment Development that emits airborne particles is incompatible processes and Appendix 6: Guidance on agency roles with operational safety and efficiency of strategic airports provides more information regarding the Australian if it occurs on land beneath operational airspace. Government’s role and assessment processes for intrusions into operational airspace of strategic airports. It is recommended proponents seek CASA or DoD advice during pre-lodgement stage of development assessment processes. 15
PART C Wildlife hazards—managing the risk of strike in the Guideline C of the National Aviation Safeguarding Framework, vicinity of airports Managing the risk of wildlife strikes in the vicinity of airports provides local government and proponents of development All wildlife on or around an airport should be regarded as with further information about how to address risks to a potential hazard to aircraft safety. Most wildlife strikes aviation safety posed by development. occur on and in the vicinity of airports, where aircraft fly at lower elevations. Flying vertebrates (e.g. birds or bats) mainly use airspace within 300 metres of the ground so are likely to conflict with aircraft when they are at their most REFER TO: Appendix 4: Guidance on the National vulnerable, i.e. immediately after take-off and during landing Airports Safeguarding Framework. approaches or other low flying manoeuvres. The risk of a wildlife strike by an aircraft is relative to the level and form of wildlife activity within the boundary of an Australian Government role airport and in surrounding areas. Certain land uses (see Table 1) can attract wildlife which then migrate onto the Local government may refer a development proposal in airport or across flight paths, increasing the risk of strikes. the vicinity of a strategic airport that may increase risk of Airports actively reduce wildlife populations and manage the wildlife strike to the airport manager for advice if required. risk of strikes on airport land. A development proposal in the vicinity of a defence or joint-user airfield that may increase risk of wildlife strike Where local government seek to approve land uses which should be referred to DoD for assessment. may increase the risk of wildlife strike near existing airports, steps should be taken to mitigate risk in consultation with the airport manager and qualified bird and wildlife management experts. Risk mitigation measures that should be considered in such cases include: • a requirement for a wildlife hazard management program • the establishment of wildlife management performance standards • allowance for changes to design and/or operating procedures at places where land use has been identified as increasing the risk of wildlife strike to aircraft • establishment of appropriate habitat management for incompatible land uses • creation of performance bonds over increased risk development to ensure clean-up and compensation should obligations not be met • authority for airport operators to inspect and monitor properties close to airports where wildlife hazards have been identified • consistent and effective reporting of wildlife events in line with Australian Transport Safety Bureau (ATSB) guidelines. 16
PART C Risk associated with wind turbine installations (wind Australian Government role farms) or wind monitoring towers A proponent must notify the airport manager, CASA and Wind farms can be hazardous to aviation as wind turbines Airservices Australia when wind turbines over 110 metres are tall structures with the potential to come into conflict above ground level are proposed within 30 kilometres of with low-flying aircraft. Temporary and permanent wind a strategic airport. DoD must be notified of any wind farm monitoring towers can be erected in anticipation of, or in proposal in Queensland. Pre-lodgement meetings are association with, wind farms and can also be hazardous recommended with the airport manager, CASA, DoD and to aviation, particularly given their low visibility. These the Department of State Development, Infrastructure and structures can also affect the performance of aviation Planning (DSDIP). facilities operated by Airservices Australia and DoD. Appendix 5: Guidance on development assessment A state code for wind farm developments is being developed processes and Appendix 6: Guidance on agency roles by DSDIP, which will inform the planning, construction provides more information regarding the Australian and operation of wind farms in Queensland, including Government’s role and assessment processes for intrusions consideration of potential aviation impacts. Wind farms into operational airspace of strategic airports. in Queensland will be required to comply with this code. Guideline D of the National Aviation Safeguarding Framework, Managing the risk of wind turbine farms as physical obstacles to air navigation provides local government and proponents of development with further information about how to address risks to aviation safety posed by development. Risk associated with shooting ranges If a new shooting range is proposed beneath a strategic airport’s operational airspace, CASA should be notified. CASA has interests in the siting of shooting ranges in the vicinity of airports. Bullets, shots or pellets associated with shooting ranges should not penetrate operational airspace. CASA (under the Civil Aviation Act 1988, Civil Aviation Safety Regulations 1998 and manual of operational standards) can provide advice on safety areas, distances and range orientation. 17
PART C PO5—Protection of aviation facilities Local government and proponents of development can REFER TO: Appendix 6: Guidance on agency roles determine whether a proposed development is located for further information. in a building restricted area and, if so, which zone of the building restricted area the development is located in by consulting the SPP Interactive Mapping System and Appendix 3: Building restricted areas for aviation facilities Where a development is proposed on land within Zone (communication). A/B, local government and/or the proponent of the development will need to use the information provided in In most cases, a building restricted area is divided into two Appendix 3: Building restricted areas for aviation facilities zones: Zone A and Zone A/B. Radar and very high frequency (communication) to determine whether the proposed (VHF) facilities have a third zone called the area of interest development will be located in Zone A or Zone B. Whether (see Figure 2). Each zone has a different level of restriction a development is in Zone A or B depends on the location on the type of structures and activities that can occur in the and height of the development, relative to the aviation zone and different assessment requirements. facility. If the height of the development is such that it will not encroach into the airspace defined as Zone A, the Zone A describes the dimensions of airspace around an development will not need to be assessed against the aviation facility that is critical for the functioning of the requirements of the SPP code: Strategic airports and aviation facility. Development proposals on land in Zone A should facilities or referred to Airservices Australia for assessment. comply with the SPP code: Strategic airports and aviation facilities and be referred to Airservices Australia for Where a development is proposed on land within an assessment of the impacts of the development on the facility. area of interest, it is not required to be referred to Airservices Australia for assessment unless it encroaches into protected airspace for a radar facility as defined in Appendix 3: Building restricted areas for aviation facilities (communication). A A/B Area of interest Figure 2—Conceptual illustration of zones within a building restricted area 18
PART C Generally, the types of development proposals which require assessment, if proposed within a building restricted area include: REFER TO: Appendix 6: Guidance on agency roles for contact details. • buildings (multistorey offices or residential, sheds, car parks etc.) • hangars and warehouses Australian Government role • infrastructure including bridges and motorway/freeway, A development proposal on land located within a building overpasses etc. restricted area should be referred to Airservices Australia or DoD for assessment in accordance with the requirements • power station stacks and plumes outlined in Appendix 3: Building restricted areas for aviation facilities (communication). Airservices Australia or DoD will • power lines, power poles and light poles provide local government and proponents with authoritative advice about the impact of a proposed development on • telecom towers the function of an aviation facility, requirements for risk • commercial signage and advertising billboards assessment processes and mitigation methods. It is recommended advice is sought during pre-lodgement stage • construction cranes (mobile, tower and luffing etc.) of development assessment processes to avoid objections from Airservices Australia or DoD. • wind turbines and wind monitoring masts. If a development adversely affects the functioning of an Applications for development in a building restricted aviation facility, CASA (under the Civil Aviation Act 1988) area should contain sufficient information about the site has legislative powers to cause buildings and structures and development proposal for the assessment manager to be modified, an activity to cease, or other action to be and Airservices Australia to be able to establish that the taken as necessary to remove the interference. proposed use would not adversely affect the functioning of aviation facilities. Height limits for development within/beneath an aviation facility’s building restricted area may be relaxed if the impacts of any proposed use are shielded by existing structures. Airservices Australia can identify areas of ‘obstacle shielding’ where buildings or other structures to an agreed height would not cause an obstruction in building restricted area. It should be noted that the SPP Interactive Mapping System does not include mapping of the building restricted areas for SGS antennas or instrument landing systems (ILS) (localisers and glide paths) due to the complexity of the dimensions of these areas. Local government and proponents of development in the vicinity of these types of facilities can contact the relevant airport manager or Airservices Australia for advice in these circumstances 19
PART C PO6—Public safety areas PO7—Aircraft noise Development should not increase the risk to public safety in When assessing an application, a material change of use a PSA. Any development involving a material change of use should be consistent with compatible and incompatible or reconfiguration of a lot in a PSA should avoid: land use within ANEF contours as outlined in Table 2. • increasing the numbers of people living, working or Where Table 3 classifies a land use as assessable congregating in the PSA development, approvals for material changes of use should be subject to a condition requiring associated building • the use or storage of hazardous, explosive or flammable work to incorporate noise attenuation measures that materials. achieve the indoor design sound levels set out in Table 4. Noise attenuation measures should be determined by an Any assessment of a development’s compatibility with the appropriately qualified acoustic professional. policy intent of a PSA should consider: Guideline A of the National Aviation Safeguarding • direct impacts to aircraft passengers and people on the Framework, Measures for managing impacts of aircraft noise ground in the case of an aircraft accident in a PSA provides local government and proponents of development • indirect impacts arising from damage to ground facilities with further information about how to address adverse such as storage facilities for explosive, flammable or impacts on development from aircraft noise. other hazardous materials. REFER TO: Appendix 3: Guidance on the National Airports Safeguarding Framework for further information. Table 2—Compatible and incompatible land uses within ANEF contours Compatibility of use within ANEF contour of site Sensitive land uses Compatible Compatible subject Incompatible to conditions Accommodation activity (except short–term accommodation, Less than 20 ANEF 20–25 ANEF 25–40 ANEF rooming accommodation), residential care facility Short-term accommodation, hotel, rooming accommodation Less than 25 ANEF 25–30 ANEF 30–40 ANEF Educational establishment, child care centre Less than 20 ANEF 20–25 ANEF 25–40 ANEF Hospital, health care service Less than 20 ANEF 20–25 ANEF 25–40 ANEF Community use, places of worship Less than 20 ANEF 20–30 ANEF 3–40 ANEF Office Less than 25 ANEF 25–35 ANEF 35–40 ANEF Source: Adapted from AS 2021 (as adopted 7 July 2000). Note: 1. Table 2 only considers aircraft noise impacts on indoor spaces specifically. 2. AS 2021 should be referred to by those seeking information/background on the basis for Table 2. 20
PART C Table 3—Levels of assessment for development within ANEF contours Level of assessment Land uses Self-assessable Assessable Accommodation activity (except short-term accommodation, Less than 25 ANEF Reconfiguration of a lot rooming accommodation), residential care facility or material change of use on land within the 25–40 ANEF Short-term accommodation, hotel, rooming accommodation Less than 30 ANEF Material change of use on land within the 30–40 ANEF Educational establishment, child care centre Less than 25 ANEF Material change of use on land within the 25–40 ANEF Hospital, health care service Less than 25 ANEF Material change of use on land within the 25–40 ANEF Community use, places of worship Less than 30 ANEF Material change of use on land within the 30–40 ANEF Office Less than 35 ANEF Material change of use on land within the 35–40 ANEF 21
PART C Table 4—Desirable indoor design sound levels for sensitive land uses Location within development Indoor design sound Land use level dB(A) Accommodation activities Sleeping areas 50 Residential care facilities Other habitable 55 Short-term accommodation Sleeping areas 55 Hotels Rooming accommodation (hostel) Educational establishments Libraries 50 Child care centres Classrooms, study areas Sleeping areas Teaching area, assembly areas 55 Hospitals Wards, theatres, treatment and 50 consulting rooms Health care services Laboratories 65 Community uses 50 Places of worship Offices Private offices, conference rooms 55 Open offices 65 Source: Adapted from AS 2021 (as adopted 7 July 2000). Note: 1. AS 2021 as adopted 7 July 2000, should be referred to for advice and information about the indoor design sound levels in Table 4. 22
PART D PART D: Model codes and provisions Refer to the SPP code: Strategic airports and aviation facilities located in Appendix 4 in the SPP. 23
APPENDIX 1 Appendix 1: Core concepts This Appendix provides advice around those core concepts c) supporting existing and planned urban/regional which must be considered in the integration of the state areas and townships interest—strategic airports and aviation facilities. d) being a major freight and logistics hub or providing Specifically: significant industry and employment opportunities • What is a strategic airport? e) supporting both community access to essential air services and social connectivity for regional • What is an aviation facility? communities. • What is operational airspace? Airports meeting the above criteria are listed in the SPP Table 2: Strategic airports. The airports are categorised as • What is a PSA? one of four different types to assist in differentiating the • What are the impacts of aircraft noise? planning requirements that apply to land in the vicinity of the strategic airport: • What is a building restricted area? 1. Leased Federal • What is the role of the Commonwealth Government in aviation matters? 2. defence airfields 3. joint-user What is a strategic airport? 4. other (either owned by a local authority or private entity or leased from the state). A strategic airport is an airport that is considered by the state to be essential to the national and state air transport Table 2 of the SPP identifies the name the strategic airport network or the national defence system. An airport is a identified in the SPP and affected local governments. strategic airport for the purposes of the SPP if it meets one of the following criteria: 1. The airport is listed as a ‘Commonwealth place’ as What is an aviation facility? defined by the Commonwealth Places (Application of An aviation facility is a communication, navigation or Laws) Act 1970 and comes under the regulatory regime surveillance (CNS) facility that allows: of the Airports Act 1996. • pilots to navigate while en-route between airports 2. The airport is a defence airfield subject to the Defence Act (Areas Control) Regulations 1989, implemented by • pilots to utilise terminal area navigation aids to conduct DoD under the Defence Act 1903. instrument approach procedures 3. The airport is deemed to be public passenger • dialogue between pilots and ATC transport infrastructure that is serviced by regular public transport services and it has more than 50 000 • ATC to monitor and confirm an aircraft location. passenger movements per annum consisting of: The aviation facilities protected by the SPP are listed a) aircraft with a capacity to carry greater than in Appendix 2: Aviation facilities—location and type. 30 passengers per flight These facilities are: b) aircraft with a weight of greater than • directly associated with the operations of a strategic 3400 kilograms. airport listed in Table A and operated by the airport owner or 4. The airport is deemed to be essential to the state for economic or social reasons. Such reasons include, but • a system-wide (or en-route) aviation facility operated are not limited to: by Airservices Australia, DoD or another agency under contract with the Australian Government. a) being used as an international gateway or international alternate Further information about communication, navigation and surveillance facilities is provided on the next page. b) enabling services necessary to support both existing tourism and identified tourism opportunities 24
APPENDIX 1 Communication facilities What is operational airspace? Communication facilities enable air-to-ground communications between pilots and ATC or communications Airports need airspace around it to enable aircraft to take- between major ATC and other aviation facilities. off, land or manoeuvre safely and efficiently. This airspace Communication facilities used in Queensland are: is called ‘operational airspace’ or ‘prescribed airspace’ for Leased Federal airports. • VHF radio transmitters and receivers During take-off, landing or manoeuvring operations, pilot • high frequency (HF) radio transmitters and receivers workload is greatest and an aircraft is least manoeuvrable. Therefore, it is very important that operational airspace • SGS antennas. remains clear of any obstacles or activities that could Signal reception between aircraft and ground facilities is distract or interfere with the safe operation of an aircraft. by line of sight or via a satellite link. Development (such as buildings and structures), natural landscape features and transient activities can have adverse Navigation facilities impacts on the safety, viability and efficiency of airport A network of ground-based navigation aids is used for operations if it encroaches into operational airspace. The instrument navigation by pilots of suitably equipped aircraft. effects of individual obstacles may be relatively minor when Generally, navigation aids are located at airports or at key assessed using Collision Risk Modelling, however together points on air routes. Navigation aids used in Queensland are: a number of obstacles may seriously limit runway utilisation, cause airspace congestion and reduce the effective handling • the ILS, including associated localisers, glide paths and capacity of a strategic airport. For example, a tall building marker beacons that encroaches into operational airspace may result in the minimum descent altitude for an approaching aircraft being • the non-directional beacon (NDB) lifted to account for the new, taller obstacle. As a result, • VHF omnidirectional range (VOR), conventional very high aircraft operators may have to reduce the amount of fuel, frequency omni-directional range (CVOR) and doppler number of passengers and/or weight of cargo carried by an VHF omni-directional range antennas (DVOR) aircraft, or restrict the number of aircraft that may be able to land during inclement weather. • distance measuring equipment (DME). The SPP uses the following tools to ensure operational airspace is protected: Surveillance facilities Surveillance facilities monitor air routes and aircraft • for Leased Federal and other airports—the OLS and the movements to assist ATC with more accurate information PANS-OPS surface on aircraft position. This reduces the need for voice communications between ATC and the pilot. Surveillance • for defence airfields and joint-user airfields—Height facilities used in Queensland are: Restriction Zones pursuant to the Defence (Areas Control) Regulations 1989 (DACR) under the Defence Act 1903. • Primary Surveillance Radar (PSR) • Secondary Surveillance Radar (SSR) • Automatic Dependent Surveillance Broadcast (ADS-B) surveillance system • Advanced Surface Movement Guidance and Control System (A-SMGCS). 25
APPENDIX 1 Obstacle Limited Surface (OLS) Procedures for Air Navigation Services—Aircraft The OLS for an airport is a surface which defines the Operations Surface (PANS-OPS) operational airspace that should be kept free of obstacles The PANS-OPS surface determines the operational airspace for aircraft operations being conducted under visual a pilot is required to use when flying an aircraft under non- operations. The OLS can extend up to 15 kilometres from visual operations, that is, when relying on instruments for the end of runways at major airports. navigation. This normally occurs during poor visibility or inclement weather. The PANS-OPS surface protects aircraft An obstacle that encroaches into OLS airspace is not from colliding with obstacles when flying using instruments. automatically prohibited. However, pre-existence of a structure or other obstacle in OLS airspace does not Under Regulation 9 of the Airports (Protection of Airspace) necessarily mean that a new proposal to encroach into Regulations 1996, a permanent encroachment into PANS- OLS airspace will be approved. The aim is to ensure that all OPS airspace for a Leased Federal airport is not permitted. obstacles that encroach into OLS airspace can be identified For other airports, development should seek to avoid and assessed by the relevant airport manager, CASA and/ any permanent encroachments into PANS-OPS airspace. or Airservices Australia for their potential impact upon the However, if all stakeholders agree that a permanent safety and efficiency of airport operations. The assessment encroachment into PANS-OPS airspace is essential, the will determine whether the encroachment is permissible and PANS-OPS surface should be raised so it is clear of the if so, whether any risk mitigation requirements (e.g. lighting) development causing the intrusion. This may cause need to be imposed to protect operational safety. operational restrictions for airport operations and could result in greater impacts on the community, for example re-design of flight paths which increases the population exposed to high levels of aircraft noise. Height Restriction Zones Australian Government role The DACR specifies Height Restriction Zones for Queensland Part 12 of the Airports Act 1996 and the Airports (Protection defence airfields at Royal Australian Air Force (RAAF) base of Airspace) Regulations 1996 establishes mechanisms Townsville, RAAF base Amberley, RAAF base Scherger and for the declaration of ‘prescribed airspace’ at and around Army Aviation Centre, Oakey. The height restrictions may Leased Federal airports. limit the height of new structures or additions to existing structures to heights of 7.5, 15, 45 or 90 metres above CASA sets the standards used to determine the OLS and ground level. If a building, structure or natural object (e.g. a PANS-OPS surface for strategic airports. An airport manager tree) encroaches into the Height Restriction Zone prescribed is responsible for determining the OLS and PANS-OPS for the defence airfield, an approval is required from DoD. surface applicable to the airport. Height Restriction Zones for Queensland’s defence airfields are depicted by maps in the schedules of the Defence (Areas Control) Regulations. Under Part 139 of the Civil Aviation Safety Regulations, CASA must be notified of any object extending to a height of 110 metres or more above ground level (even if the obstacle to located outside of OLS airspace). Any object extending to a height of 150 metres or more above ground level is considered to be an obstacle unless assessed by CASA to be otherwise. 26
APPENDIX 1 What is a public safety area? PSAs are also required for other runways (i.e. secondary or cross-runways) of strategic airports where the runway meets (PSA) the aircraft movements threshold listed above (i.e. has greater than 10 000 aircraft movements per year [excluding A PSA is a defined area at the end of a strategic airport’s light aircraft movements]). runway where there is potentially an increased risk of an aircraft accident occurring. The probability of an accident The strategic framework and land use strategies in a local occurring during any single aviation operation is very low. planning instrument should ensure that future land uses However, an analysis of aircraft accidents reported to the and development do not increase risk to public safety by International Civil Aviation Organisation since 1970 suggests avoiding: most accidents that do occur, occur immediately beyond the ends of a runway—up to 1000 metres before the runway • significant increases in people living, working or during landing or up to 500 metres beyond the runway end congregating in a PSA on take-off. During this time the aircraft is aligned with • the use or storage of hazardous, explosive or flammable the extended runway centreline and is relatively close materials in a PSA. to the ground. Table A on the next page identifies the strategic airports PSAs define the area in which development should be which require a PSA for the specific runways and those restricted in order to protect the safety of both aircraft strategic airports where the local government has put a passengers, property and people on the ground in the PSA in place at their own discretion. event of an aircraft accident during landing or take-off. A PSA is required at the each end of a strategic airport’s main runway if: • the airport is listed as a ‘Commonwealth place’ under the Commonwealth Places (Application of Laws) Act 1970 • the airport is a defence airfield subject to the Defence Act (Areas Control) Regulations 1989 • the runway meets the following criteria: – regular public transport jet aircraft services are provided, or – greater than 10 000 aircraft movements occur per year (excluding light aircraft movements). 27
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