Interim Policy, FAA Review of Solar Energy System Projects on Federally Obligated Airports, 63276-63279 [2013-24729]
Download as PDF
63276
Federal Register / Vol. 78, No. 205 / Wednesday, October 23, 2013 / Notices
Research and Innovative Technology
Administration
Aylward, Anne D.; Brecht-Clark, Jan M.;
Farley, Audrey L.; Hu, Patricia S.;
Ishihara, David S.; Johns, Robert C.;
Lang, Steven R.; Partridge, Ellen L.;
Schmitt, Rolf R.; Womack, Kevin C.
Saint Lawrence Seaway Development
Corporation
Middlebrook, Craig H.; Pisani, Salvatore
L.
[FR Doc. 2013–24813 Filed 10–22–13; 8:45 am]
BILLING CODE 4910–9X–P
DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
Interim Policy, FAA Review of Solar
Energy System Projects on Federally
Obligated Airports
Federal Aviation
Administration (FAA), DOT.
ACTION: Notice of interim policy;
opportunity to comment.
AGENCY:
This notice establishes
interim FAA policy for proposals by
sponsors of federally obligated airports
to construct solar energy systems on
airport property. FAA is adopting an
interim policy because it is in the public
interest to enhance safety by clarifying
and adding standards for measuring
ocular impact of proposed solar energy
systems which are effective upon
publication. FAA will consider
comments and make appropriate
modifications before issuing a final
policy. The policy applies to any
proposed on-airport solar energy system
that has not received from the FAA
either an unconditional airport layout
plan approval or a ‘‘no objection’’
finding on a Notice of Proposed
Construction or Alteration Form
7460–1.
DATES: The effective date of this interim
policy is October 23, 2013.
Comments must be received by
November 22, 2013.
ADDRESSES: You can get an electronic
copy of the interim policy and the
comment form on the FAA Airports
Web site at https://www.faa.gov/airports/
environmental/.
You can submit comments using the
Comments Matrix, using any of the
following methods:
Electronic Submittal to the FAA: Go
to https://www.faa.gov/airports/
environmental/ and follow the
instructions for sending your comments
electronically.
Mail: FAA Office of Airports, Office of
Airport Planning and Programming,
emcdonald on DSK67QTVN1PROD with NOTICES
SUMMARY:
VerDate Mar<15>2010
18:13 Oct 22, 2013
Jkt 232001
Routing Symbol APP–400, 800
Independence Avenue SW., Room 615,
Washington, DC 20591. Please send two
copies.
Fax: 1–202–267–5302.
Hand Delivery: To FAA Office of
Airports, Office of Airport Planning and
Programming, Routing Symbol APP–
400, 800 Independence Avenue SW.,
Room 615, Washington, DC 20591;
between 9 a.m. and 4 p.m., Monday
through Friday, except Federal holidays.
Please provide two copies.
For more information on the notice
and comment process, see the
SUPPLEMENTARY INFORMATION section of
this document.
Privacy: We will post all comments
we receive, without change, to https://
www.faa.gov/airports/environmental/,
including any personal information you
provide.
Comments Received: To read
comments received, go to https://
www.faa.gov/airports/environmental/ at
any time.
FOR FURTHER INFORMATION CONTACT:
Ralph Thompson, Manager, Airport
Planning and Environmental Division,
APP–400, Federal Aviation
Administration, 800 Independence Ave.
SW., Washington, DC 20591, telephone
(202) 267–3263; facsimile (202) 267–
5257; email: ralph.thompson@faa.gov.
SUPPLEMENTARY INFORMATION: The FAA
invites interested persons to join in this
notice and comment process by filing
written comments, data, or views. The
most helpful comments reference a
specific portion of the proposal, explain
the reason for any recommended
change, and include supporting data.
Availability of Documents
You can get an electronic copy of this
interim policy by visiting the FAA’s
Airports Web page at https://
www.faa.gov/airports/environmental/.
Authority for the Policy
This notice is published under the
authority described in Subtitle VII, part
B, chapter 471, section 47122 of title 49
United States Code.
Background
There is growing interest in installing
solar photovoltaic (PV) and solar hot
water (SHW) systems on airports. While
solar PV or SHW systems (henceforth
referred to as solar energy systems) are
designed to absorb solar energy to
maximize electrical energy production
or the heating of water, in certain
situations the glass surfaces of the solar
energy systems can reflect sunlight and
produce glint (a momentary flash of
bright light) and glare (a continuous
source of bright light). In conjunction
PO 00000
Frm 00119
Fmt 4703
Sfmt 4703
with the United States Department of
Energy (DOE), the FAA has determined
that glint and glare from solar energy
systems could result in an ocular impact
to pilots and/or air traffic control (ATC)
facilities and compromise the safety of
the air transportation system. While the
FAA supports solar energy systems on
airports, the FAA seeks to ensure safety
by eliminating the potential for ocular
impact to pilots and/or air traffic control
facilities due to glare from such projects.
The FAA established a crossorganizational working group in 2012,
to establish a standard for measuring
glint and glare, and clear thresholds for
when glint and glare would impact
aviation safety. The standards that this
working group developed are set forth
in this notice.
A sponsor of a federally-obligated
airport must request FAA review and
approval to depict certain proposed
solar installations (e.g., ground-based
installations and collocated installations
that increase the footprint of the
collocated building or structure) on its
airport layout plan (ALP), before
construction begins.1 A sponsor of a
federally-obligated airport must notify
the FAA of its intent to construct any
solar installation 2 by filing FAA Form
7460–1, ‘‘Notice of Proposed
Construction or Alteration’’ under 14
CFR Part 77 for a Non-Rulemaking case
(NRA) 3 4. This includes the intent to
permit airport tenants, including
Federal agencies, to build such
1 FAA Technical Guidance for Evaluating
Selected Solar Technologies on Airports, Section
2.3.5, states that ‘‘solar installations of any size,
located on an airport, that are not collocated on an
existing structure (i.e., roof of an existing building)
and require a new footprint, need to be shown on
the Airport Layout Plan (ALP). Collocated solar
installations need to be shown on the ALP only if
these installations substantially change the
footprint of the collocated building or structure.
Available at: https://www.faa.gov/airports/
environmental/policy_guidance/media/
airport_solar_guide_print.pdf. Title 49 of the United
States Code (USC), sec. 47107(a), requires, in part,
a current ALP approved by the FAA prior to the
approval of an airport development project. See
Grant Assurance No. 29, AC No. 150/5070–6B, and
FAA Order No. 5100.38.
2 Any solar installation means any ground-based
solar energy installation and those solar energy
installations collocated with a building or structure
(i.e., rooftop installations).
3 FAA Technical Guidance for Evaluating
Selected Solar Technologies on Airports Section 3.1
reads in part ‘‘All solar projects at airports must
submit to FAA a Notice of Proposed Construction
Form 7460 . . .’’. This section further states ‘‘Even
if the project will be roof mounted . . . the sponsor
must still submit a case’’ [i.e., file a Form 7460–1].
4 The requirements of this policy are not
mandatory for a proposed solar installation that is
not on an airport and for which a form 7460–1 is
filed under part 77 and is studied under the
Obstruction Evaluation Program. However, the FAA
urges proponents of off-airport solar-installations to
voluntarily implement the provisions in this policy.
E:\FR\FM\23OCN1.SGM
23OCN1
Federal Register / Vol. 78, No. 205 / Wednesday, October 23, 2013 / Notices
emcdonald on DSK67QTVN1PROD with NOTICES
installations. The sponsor’s obligation to
obtain FAA review and approval to
depict certain proposed solar energy
installation projects at an airport is
found in 49 U.S.C. 47107(a)(16) and
Sponsor Grant Assurance 29, ‘‘Airport
Layout Plan.’’ Under these latter
provisions, the sponsor may not make or
permit any changes or alterations in the
airport or any of its facilities which are
not in conformity with the ALP as
approved by the FAA and which might,
in the opinion of the FAA, adversely
affect the safety, utility or efficiency of
the airport.
Airport sponsors and project
proponents must comply with the
policies and procedures in this notice to
demonstrate to the FAA that a proposed
solar energy system will not result in an
ocular impact that compromises the
safety of the air transportation system.
This process enables the FAA to
approve amendment of the ALP to
depict certain solar energy projects or
issue a ‘‘no objection’’ finding to a filed
7460–1 form. The FAA expects to
continue to update these policies and
procedures as part of an iterative
process as new information and
technologies become available.
Solar energy systems located on an
airport that is not federally-obligated or
located outside the property of a
federally-obligated airport are not
subject to this policy. Proponents of
solar energy systems located off-airport
property or on non-federally-obligated
airports are strongly encouraged to
consider the requirements of this policy
when siting such systems.
This interim policy clarifies and adds
standards for measurement of glint or
glare presented in the 2010 Technical
Guidance document. Later this year the
FAA plans to publish an update to the
‘‘Technical Guidance for Evaluating
Selected Solar Technologies on
Airports,’’ (hereinafter referred to as
‘‘Technical Guidance’’) dated November
2010. This update to the technical
guidance will include the standards for
measuring glint and glare outlined in
this notice. It will also provide
enhanced criteria to ensure the proper
siting of a solar energy installation to
eliminate the potential for harmful glare
to pilots or air traffic control facilities.
VerDate Mar<15>2010
18:13 Oct 22, 2013
Jkt 232001
In advance of the planned update, as
part of this Notice, we are clarifying one
aspect of the Technical Guidance
relating to airport sponsor and FAA
responsibilities for evaluating the
potential for solar energy systems
installed on airports to either block,
reflect, or disrupt radar signals,
NAVAIDS, and other equipment
required for safe aviation operations.
Section 3.1 of the Technical Guidance,
entitled ‘‘Airspace Review,’’ correctly
states that this role is exclusively the
responsibility of FAA Technical
Operations (Tech Ops). However
subsection 3.1.3, ‘‘System Interference,’’
states: ‘‘[s]tudies conducted during
project siting should identify the
location of radar transmission and
receiving facilities and other NAVAIDS,
and determine locations that would not
be suitable for structures based on their
potential to either block, reflect, or
disrupt radar signals.’’
Reading the two sections together,
what is meant is that the airport
sponsor, in siting a proposed solar
energy system, is responsible for
limiting the potential for inference with
communication, navigation, and
surveillance (CNS) facilities. The
sponsor should do so by ensuring that
solar energy systems remain clear of the
critical areas surrounding CNS facilities.
FAA Advisory Circular (AC) 5300–13,
‘‘Airport Design,’’ Chapter 6, defines the
critical areas for common CNS facilities
located on an airport. Sponsors may
need to coordinate with FAA Technical
Operations concerning CNS facilities
not in AC 5300–13. As stated in Section
3.1, the FAA is responsible for
evaluating if there are any impacts to
CNS facilities. The FAA will conduct
this review after the Form 7460–1 is
filed for the construction of a new solar
energy system installation on an airport.
In summary, airport sponsors do not
need to conduct studies on their own to
determine impacts to CNS facilities
when siting a solar energy system on
airport. Section 3.1.3 will be revised
accordingly in the next version of the
Technical Guidance.
Interim Policy Statement
The following sets forth the standards
for measuring ocular impact, the
PO 00000
Frm 00120
Fmt 4703
Sfmt 4703
63277
required analysis tool, and the
obligations of the Airport Sponsor when
a solar energy system is proposed for
development on a federally-obligated
airport.
The FAA is adopting an interim
policy because it is in the public interest
to enhance safety by clarifying and
adding standards for measuring ocular
impact of proposed solar energy
systems. FAA will consider comments
and make appropriate modifications
before issuing a final policy in a future
Federal Register Notice. The policy
applies to any proposed solar energy
system that has not received
unconditional airport layout plan
approval (ALP) or a ‘‘no objection’’ from
the FAA on a filed 7460–1, Notice of
Proposed Construction or Alteration.
Standard for Measuring Ocular Impact
FAA adopts the Solar Glare Hazard
Analysis Plot shown in Figure 1 below
as the standard for measuring the ocular
impact of any proposed solar energy
system on a federally-obligated airport.
To obtain FAA approval to revise an
airport layout plan to depict a solar
installation and/or a ‘‘no objection’’ to a
Notice of Proposed Construction Form
7460–1, the airport sponsor will be
required to demonstrate that the
proposed solar energy system meets the
following standards:
1. No potential for glint or glare in the
existing or planned Airport Traffic
Control Tower (ATCT) cab, and
2. No potential for glare or ‘‘low
potential for after-image’’ (shown in
green in Figure 1) along the final
approach path for any existing landing
threshold or future landing thresholds
(including any planned interim phases
of the landing thresholds) as shown on
the current FAA-approved Airport
Layout Plan (ALP). The final approach
path is defined as two (2) miles from
fifty (50) feet above the landing
threshold using a standard three (3)
degree glidepath.
Ocular impact must be analyzed over
the entire calendar year in one (1)
minute intervals from when the sun
rises above the horizon until the sun
sets below the horizon.
E:\FR\FM\23OCN1.SGM
23OCN1
Federal Register / Vol. 78, No. 205 / Wednesday, October 23, 2013 / Notices
emcdonald on DSK67QTVN1PROD with NOTICES
Tool To Assess Ocular Impact
In cooperation with the DOE, the FAA
is making available free-of-charge the
Solar Glare Hazard Analysis Tool
(SGHAT). The SGHAT was designed to
determine whether a proposed solar
energy project would result in the
potential for ocular impact as depicted
on the Solar Glare Hazard Analysis Plot
shown above.
The SGHAT employs an interactive
Google map where the user can quickly
locate a site, draw an outline of the
proposed solar energy system, and
specify observer locations (Airport
Traffic Control Tower cab) and final
approach paths. Latitude, longitude, and
elevation are automatically recorded
through the Google interface, providing
necessary information for sun position
and vector calculations. Additional
information regarding the orientation
and tilt of the solar energy panels,
reflectance, environment, and ocular
factors are entered by the user.
If glare is found, the tool calculates
the retinal irradiance and subtended
source angle (size/distance) of the glare
source to predict potential ocular
hazards ranging from temporary afterimage to retinal burn. The results are
presented in a simple, easy-to-interpret
plot that specifies when glare will occur
VerDate Mar<15>2010
18:13 Oct 22, 2013
Jkt 232001
throughout the year, with color codes
indicating the potential ocular hazard.
The tool can also predict relative energy
production while evaluating alternative
designs, layouts, and locations to
identify configurations that maximize
energy production while mitigating the
impacts of glare.
Users must first register for the use of
the tool at this web address:
www.sandia.gov/glare.
Required Use of the SGHAT
As of the date of publication of this
interim policy, the FAA requires the use
of the SGHAT to demonstrate
compliance with the standards for
measuring ocular impact stated above
for any proposed solar energy system
located on a federally-obligated airport.
The SGHAT is a validated tool
specifically designed to measure glare
according to the Solar Glare Hazard
Analysis Plot. All sponsors of federallyobligated airports who propose to install
or to permit others to install solar
energy systems on the airport must
attach the SGHAT report, outlining solar
panel glare and ocular impact, for each
point of measurement to the Notice of
Proposed Construction Form 7460–1.
The FAA will consider the use of
alternative tools or methods on a case-
PO 00000
Frm 00121
Fmt 4703
Sfmt 4703
by-case basis. However, the FAA must
approve the use of an alternative tool or
method prior to an airport sponsor
seeking approval for any proposed onairport solar energy system. The
alternative tool or method must evaluate
ocular impact in accordance with the
Solar Glare Hazard Analysis Plot.
Please contact the Office of Airport
Planning and Programming, Airport
Planning and Environmental Division,
APP–400, for more information on the
validation process for alternative tools
or methods.
Airport sponsor obligations have been
discussed above under Background. We
caution airport sponsors that under
preexisting airport grant compliance
policy, failure to seek FAA review of a
solar installation prior to construction
could trigger possible compliance action
under 14 CFR Part 16, ‘‘Rules of Practice
for Federally-Assisted Airport
Enforcement Proceedings.’’ Moreover, if
a solar installation creates glare that
interferes with aviation safety, the FAA
could require the airport to pay for the
elimination of solar glare by removing
or relocating the solar facility.
E:\FR\FM\23OCN1.SGM
23OCN1
EN23OC13.002
63278
Federal Register / Vol. 78, No. 205 / Wednesday, October 23, 2013 / Notices
Issued in Washington, DC, on September
27, 2013.
Benito De Leon,
Director, Office of Airport Planning and
Programming.
[FR Doc. 2013–24729 Filed 10–22–13; 8:45 am]
BILLING CODE 4910–13–P
DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
Third Meeting: RTCA Tactical
Operations Committee (TOC)
Federal Aviation
Administration (FAA), U.S. Department
of Transportation (DOT)
ACTION: Third Meeting Notice of RTCA
Tactical Operations Committee.
AGENCY:
The FAA is issuing this notice
to advise the public of the third meeting
of the RTCA Tactical Operations
Committee.
SUMMARY:
The meeting will be held
November 7, 2013 from 9 a.m.–3 p.m.
ADDRESSES: The meeting will be held at
RTCA Headquarters, 1150 18th Street
NW., Suite 910, Washington, DC 20036.
FOR FURTHER INFORMATION CONTACT: The
RTCA Secretariat, 1150 18th Street NW.,
Suite 910, Washington, DC 20036, or by
telephone at (202) 833–9339, fax at (202)
833–9434, or Web site https://
www.rtca.org. Andy Cebula, NAC
Secretary can also be contacted at
acebula@rtca.org or 202–330–0652.
SUPPLEMENTARY INFORMATION: Pursuant
to section 10(a)(2) of the Federal
Advisory Committee Act (Pub. L. No.
92–463, 5 U.S.C., App.), notice is hereby
given for a meeting of the Tactical
Operations Committee (TOC). The
agenda will include the following:
DATES:
emcdonald on DSK67QTVN1PROD with NOTICES
November 19, 2013
• Opening of Meeting/Introduction of
TOC Members
• Official Statement of Designated
Federal Official
• Approval of July 23, 2013 Meeting
Summary
• FAA Report
• Notice to Airmen (NOTAM) Activity
Prioritization
• Regional Task Groups (RTGs)
• Reports on current activities
underway by Regional Task Groups:
Eastern, Central, Western
• VHF Omni-directional Range (VOR)
Minimum Operating Network
• New Tasking: Obstacle Clearance
• Anticipated Issues for TOC
consideration and action at the next
meeting
• Other Business
• Adjourn
VerDate Mar<15>2010
18:13 Oct 22, 2013
Jkt 232001
Attendance is open to the interested
public but limited to space availability.
With the approval of the chairman,
members of the public may present oral
statements at the meeting. Persons
wishing to present statements or obtain
information should contact the person
listed in the FOR FURTHER INFORMATION
CONTACT section. Members of the public
may present a written statement to the
committee at any time.
Issued in Washington, DC, on October 18,
2013.
Edith V. Parish,
Senior Advisor, Mission Support Services, Air
Traffic Organization, Federal Aviation
Administration.
[FR Doc. 2013–24968 Filed 10–22–13; 8:45 am]
BILLING CODE 4910–13–P
DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
Public Notice for Waiver of
Aeronautical Land-Use Assurance
Federal Aviation
Administration (FAA), DOT.
ACTION: Notice of intent of waiver with
respect to land; French Lick Airport;
French Lick, Indiana.
AGENCY:
The FAA is considering a
proposal to change a portion of airport
land from aeronautical use to nonaeronautical use and to authorize the
sale of airport property located at
French Lick Airport, French Lick,
Indiana. The aforementioned land is not
needed for aeronautical use. The
proposal consists of 18.606 acres located
in the southern section of airport
property which is not being used by the
airport presently. The land is to be sold
to Commissioners of Orange County for
the construction of County Road CR 300
South/Airport Road to facilitate access
to the airport.
DATES: Comments must be received on
or before November 22, 2013.
ADDRESSES: Documents are available for
review by appointment at the FAA
Airports District Office, Azra Hussain,
Program Manager, 2300 E. Devon
Avenue, Des Plaines, Illinois 60018
Telephone: (847) 294–8252/Fax: (847)
294–7046 and Zachary D. Brown,
French Lick Municipal Airport, 9764
West County Road 375 South, French
Lick, Indiana, 47933.
Written comments on the Sponsor’s
request must be delivered or mailed to:
Azra Hussain, Program Manager,
Federal Aviation Administration,
Airports District Office, 2300 E. Devon
Avenue, Des Plaines, Illinois (847) 294–
7046.
SUMMARY:
PO 00000
Frm 00122
Fmt 4703
Sfmt 9990
63279
Azra
Hussain, Program Manager, Federal
Aviation Administration, Airports
District Office, 2300 E. Devon Avenue,
Des Plaines, Illinois 60018. Telephone
Number: (847) 294–8252/FAX Number:
(847) 294–7046.
FOR FURTHER INFORMATION CONTACT:
In
accordance with section 47107(h) of
Title 49, United States Code, this notice
is required to be published in the
Federal Register 30 days before
modifying the land-use assurance that
requires the property to be used for an
aeronautical purpose.
The subject land consists of two
parcels. Parcel 1 (approx. 16.667 acres)
was acquired through the Federal Aid to
Airport Program dated July 28, 1963 and
Parcel 2 (approx. 1.939 acres) was
acquired by the sponsor as part of a
larger parcel (approx. 9.97 acres) for the
nominal sum of One Dollar and zero
cents ($1.00) on April 19, 2010. The
Commissioners of Orange County intend
to purchase the property for a nominal
sum of One Dollar and zero cents
($1.00) for the construction of County
Road CR 300 South/Airport Road.
Construction of the road will facilitate
access to the airport. The
aforementioned land is not needed for
aeronautical use, as shown on the
Airport Layout Plan. There are no
impacts to the airport by allowing the
airport to dispose of the property.
This notice announces that the FAA
is considering the release of the subject
airport property at French Lick Airport,
French Lick, Indiana, subject to
easements and covenants running with
the land. Approval does not constitute
a commitment by the FAA to financially
assist in the disposal of the subject
airport property nor a determination
that all measures covered by the
program are eligible for grant-in-aid
funding from the FAA. The disposition
of proceeds from the sale of the airport
property will be in accordance with
FAA’s Policy and Procedures
Concerning the Use of Airport Revenue,
published in the Federal Register on
February 16, 1999 (64 FR 7696).
SUPPLEMENTARY INFORMATION:
Issued in Des Plaines, Illinois on
September 30, 2013.
James Keefer,
Manager, Chicago Airports District Office,
FAA, Great Lakes Region.
[FR Doc. 2013–24738 Filed 10–22–13; 8:45 am]
BILLING CODE 4910–13–P
E:\FR\FM\23OCN1.SGM
23OCN1
Agencies
[Federal Register Volume 78, Number 205 (Wednesday, October 23, 2013)]
[Notices]
[Pages 63276-63279]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2013-24729]
-----------------------------------------------------------------------
DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
Interim Policy, FAA Review of Solar Energy System Projects on
Federally Obligated Airports
AGENCY: Federal Aviation Administration (FAA), DOT.
ACTION: Notice of interim policy; opportunity to comment.
-----------------------------------------------------------------------
SUMMARY: This notice establishes interim FAA policy for proposals by
sponsors of federally obligated airports to construct solar energy
systems on airport property. FAA is adopting an interim policy because
it is in the public interest to enhance safety by clarifying and adding
standards for measuring ocular impact of proposed solar energy systems
which are effective upon publication. FAA will consider comments and
make appropriate modifications before issuing a final policy. The
policy applies to any proposed on-airport solar energy system that has
not received from the FAA either an unconditional airport layout plan
approval or a ``no objection'' finding on a Notice of Proposed
Construction or Alteration Form 7460-1.
DATES: The effective date of this interim policy is October 23, 2013.
Comments must be received by November 22, 2013.
ADDRESSES: You can get an electronic copy of the interim policy and the
comment form on the FAA Airports Web site at https://www.faa.gov/airports/environmental/.
You can submit comments using the Comments Matrix, using any of the
following methods:
Electronic Submittal to the FAA: Go to https://www.faa.gov/airports/environmental/ and follow the instructions for sending your comments
electronically.
Mail: FAA Office of Airports, Office of Airport Planning and
Programming, Routing Symbol APP-400, 800 Independence Avenue SW., Room
615, Washington, DC 20591. Please send two copies.
Fax: 1-202-267-5302.
Hand Delivery: To FAA Office of Airports, Office of Airport
Planning and Programming, Routing Symbol APP-400, 800 Independence
Avenue SW., Room 615, Washington, DC 20591; between 9 a.m. and 4 p.m.,
Monday through Friday, except Federal holidays. Please provide two
copies.
For more information on the notice and comment process, see the
SUPPLEMENTARY INFORMATION section of this document.
Privacy: We will post all comments we receive, without change, to
https://www.faa.gov/airports/environmental/, including any personal
information you provide.
Comments Received: To read comments received, go to https://www.faa.gov/airports/environmental/ at any time.
FOR FURTHER INFORMATION CONTACT: Ralph Thompson, Manager, Airport
Planning and Environmental Division, APP-400, Federal Aviation
Administration, 800 Independence Ave. SW., Washington, DC 20591,
telephone (202) 267-3263; facsimile (202) 267-5257; email:
ralph.thompson@faa.gov.
SUPPLEMENTARY INFORMATION: The FAA invites interested persons to join
in this notice and comment process by filing written comments, data, or
views. The most helpful comments reference a specific portion of the
proposal, explain the reason for any recommended change, and include
supporting data.
Availability of Documents
You can get an electronic copy of this interim policy by visiting
the FAA's Airports Web page at https://www.faa.gov/airports/environmental/.
Authority for the Policy
This notice is published under the authority described in Subtitle
VII, part B, chapter 471, section 47122 of title 49 United States Code.
Background
There is growing interest in installing solar photovoltaic (PV) and
solar hot water (SHW) systems on airports. While solar PV or SHW
systems (henceforth referred to as solar energy systems) are designed
to absorb solar energy to maximize electrical energy production or the
heating of water, in certain situations the glass surfaces of the solar
energy systems can reflect sunlight and produce glint (a momentary
flash of bright light) and glare (a continuous source of bright light).
In conjunction with the United States Department of Energy (DOE), the
FAA has determined that glint and glare from solar energy systems could
result in an ocular impact to pilots and/or air traffic control (ATC)
facilities and compromise the safety of the air transportation system.
While the FAA supports solar energy systems on airports, the FAA seeks
to ensure safety by eliminating the potential for ocular impact to
pilots and/or air traffic control facilities due to glare from such
projects.
The FAA established a cross-organizational working group in 2012,
to establish a standard for measuring glint and glare, and clear
thresholds for when glint and glare would impact aviation safety. The
standards that this working group developed are set forth in this
notice.
A sponsor of a federally-obligated airport must request FAA review
and approval to depict certain proposed solar installations (e.g.,
ground-based installations and collocated installations that increase
the footprint of the collocated building or structure) on its airport
layout plan (ALP), before construction begins.\1\ A sponsor of a
federally-obligated airport must notify the FAA of its intent to
construct any solar installation \2\ by filing FAA Form 7460-1,
``Notice of Proposed Construction or Alteration'' under 14 CFR Part 77
for a Non-Rulemaking case (NRA) 3 4. This includes the
intent to permit airport tenants, including Federal agencies, to build
such
[[Page 63277]]
installations. The sponsor's obligation to obtain FAA review and
approval to depict certain proposed solar energy installation projects
at an airport is found in 49 U.S.C. 47107(a)(16) and Sponsor Grant
Assurance 29, ``Airport Layout Plan.'' Under these latter provisions,
the sponsor may not make or permit any changes or alterations in the
airport or any of its facilities which are not in conformity with the
ALP as approved by the FAA and which might, in the opinion of the FAA,
adversely affect the safety, utility or efficiency of the airport.
---------------------------------------------------------------------------
\1\ FAA Technical Guidance for Evaluating Selected Solar
Technologies on Airports, Section 2.3.5, states that ``solar
installations of any size, located on an airport, that are not
collocated on an existing structure (i.e., roof of an existing
building) and require a new footprint, need to be shown on the
Airport Layout Plan (ALP). Collocated solar installations need to be
shown on the ALP only if these installations substantially change
the footprint of the collocated building or structure. Available at:
https://www.faa.gov/airports/environmental/policy_guidance/media/airport_solar_guide_print.pdf. Title 49 of the United States Code
(USC), sec. 47107(a), requires, in part, a current ALP approved by
the FAA prior to the approval of an airport development project. See
Grant Assurance No. 29, AC No. 150/5070-6B, and FAA Order No.
5100.38.
\2\ Any solar installation means any ground-based solar energy
installation and those solar energy installations collocated with a
building or structure (i.e., rooftop installations).
\3\ FAA Technical Guidance for Evaluating Selected Solar
Technologies on Airports Section 3.1 reads in part ``All solar
projects at airports must submit to FAA a Notice of Proposed
Construction Form 7460 . . .''. This section further states ``Even
if the project will be roof mounted . . . the sponsor must still
submit a case'' [i.e., file a Form 7460-1].
\4\ The requirements of this policy are not mandatory for a
proposed solar installation that is not on an airport and for which
a form 7460-1 is filed under part 77 and is studied under the
Obstruction Evaluation Program. However, the FAA urges proponents of
off-airport solar-installations to voluntarily implement the
provisions in this policy.
---------------------------------------------------------------------------
Airport sponsors and project proponents must comply with the
policies and procedures in this notice to demonstrate to the FAA that a
proposed solar energy system will not result in an ocular impact that
compromises the safety of the air transportation system. This process
enables the FAA to approve amendment of the ALP to depict certain solar
energy projects or issue a ``no objection'' finding to a filed 7460-1
form. The FAA expects to continue to update these policies and
procedures as part of an iterative process as new information and
technologies become available.
Solar energy systems located on an airport that is not federally-
obligated or located outside the property of a federally-obligated
airport are not subject to this policy. Proponents of solar energy
systems located off-airport property or on non-federally-obligated
airports are strongly encouraged to consider the requirements of this
policy when siting such systems.
This interim policy clarifies and adds standards for measurement of
glint or glare presented in the 2010 Technical Guidance document. Later
this year the FAA plans to publish an update to the ``Technical
Guidance for Evaluating Selected Solar Technologies on Airports,''
(hereinafter referred to as ``Technical Guidance'') dated November
2010. This update to the technical guidance will include the standards
for measuring glint and glare outlined in this notice. It will also
provide enhanced criteria to ensure the proper siting of a solar energy
installation to eliminate the potential for harmful glare to pilots or
air traffic control facilities.
In advance of the planned update, as part of this Notice, we are
clarifying one aspect of the Technical Guidance relating to airport
sponsor and FAA responsibilities for evaluating the potential for solar
energy systems installed on airports to either block, reflect, or
disrupt radar signals, NAVAIDS, and other equipment required for safe
aviation operations. Section 3.1 of the Technical Guidance, entitled
``Airspace Review,'' correctly states that this role is exclusively the
responsibility of FAA Technical Operations (Tech Ops). However
subsection 3.1.3, ``System Interference,'' states: ``[s]tudies
conducted during project siting should identify the location of radar
transmission and receiving facilities and other NAVAIDS, and determine
locations that would not be suitable for structures based on their
potential to either block, reflect, or disrupt radar signals.''
Reading the two sections together, what is meant is that the
airport sponsor, in siting a proposed solar energy system, is
responsible for limiting the potential for inference with
communication, navigation, and surveillance (CNS) facilities. The
sponsor should do so by ensuring that solar energy systems remain clear
of the critical areas surrounding CNS facilities. FAA Advisory Circular
(AC) 5300-13, ``Airport Design,'' Chapter 6, defines the critical areas
for common CNS facilities located on an airport. Sponsors may need to
coordinate with FAA Technical Operations concerning CNS facilities not
in AC 5300-13. As stated in Section 3.1, the FAA is responsible for
evaluating if there are any impacts to CNS facilities. The FAA will
conduct this review after the Form 7460-1 is filed for the construction
of a new solar energy system installation on an airport. In summary,
airport sponsors do not need to conduct studies on their own to
determine impacts to CNS facilities when siting a solar energy system
on airport. Section 3.1.3 will be revised accordingly in the next
version of the Technical Guidance.
Interim Policy Statement
The following sets forth the standards for measuring ocular impact,
the required analysis tool, and the obligations of the Airport Sponsor
when a solar energy system is proposed for development on a federally-
obligated airport.
The FAA is adopting an interim policy because it is in the public
interest to enhance safety by clarifying and adding standards for
measuring ocular impact of proposed solar energy systems. FAA will
consider comments and make appropriate modifications before issuing a
final policy in a future Federal Register Notice. The policy applies to
any proposed solar energy system that has not received unconditional
airport layout plan approval (ALP) or a ``no objection'' from the FAA
on a filed 7460-1, Notice of Proposed Construction or Alteration.
Standard for Measuring Ocular Impact
FAA adopts the Solar Glare Hazard Analysis Plot shown in Figure 1
below as the standard for measuring the ocular impact of any proposed
solar energy system on a federally-obligated airport. To obtain FAA
approval to revise an airport layout plan to depict a solar
installation and/or a ``no objection'' to a Notice of Proposed
Construction Form 7460-1, the airport sponsor will be required to
demonstrate that the proposed solar energy system meets the following
standards:
1. No potential for glint or glare in the existing or planned
Airport Traffic Control Tower (ATCT) cab, and
2. No potential for glare or ``low potential for after-image''
(shown in green in Figure 1) along the final approach path for any
existing landing threshold or future landing thresholds (including any
planned interim phases of the landing thresholds) as shown on the
current FAA-approved Airport Layout Plan (ALP). The final approach path
is defined as two (2) miles from fifty (50) feet above the landing
threshold using a standard three (3) degree glidepath.
Ocular impact must be analyzed over the entire calendar year in one
(1) minute intervals from when the sun rises above the horizon until
the sun sets below the horizon.
[[Page 63278]]
[GRAPHIC] [TIFF OMITTED] TN23OC13.002
Tool To Assess Ocular Impact
In cooperation with the DOE, the FAA is making available free-of-
charge the Solar Glare Hazard Analysis Tool (SGHAT). The SGHAT was
designed to determine whether a proposed solar energy project would
result in the potential for ocular impact as depicted on the Solar
Glare Hazard Analysis Plot shown above.
The SGHAT employs an interactive Google map where the user can
quickly locate a site, draw an outline of the proposed solar energy
system, and specify observer locations (Airport Traffic Control Tower
cab) and final approach paths. Latitude, longitude, and elevation are
automatically recorded through the Google interface, providing
necessary information for sun position and vector calculations.
Additional information regarding the orientation and tilt of the solar
energy panels, reflectance, environment, and ocular factors are entered
by the user.
If glare is found, the tool calculates the retinal irradiance and
subtended source angle (size/distance) of the glare source to predict
potential ocular hazards ranging from temporary after-image to retinal
burn. The results are presented in a simple, easy-to-interpret plot
that specifies when glare will occur throughout the year, with color
codes indicating the potential ocular hazard. The tool can also predict
relative energy production while evaluating alternative designs,
layouts, and locations to identify configurations that maximize energy
production while mitigating the impacts of glare.
Users must first register for the use of the tool at this web
address: www.sandia.gov/glare.
Required Use of the SGHAT
As of the date of publication of this interim policy, the FAA
requires the use of the SGHAT to demonstrate compliance with the
standards for measuring ocular impact stated above for any proposed
solar energy system located on a federally-obligated airport. The SGHAT
is a validated tool specifically designed to measure glare according to
the Solar Glare Hazard Analysis Plot. All sponsors of federally-
obligated airports who propose to install or to permit others to
install solar energy systems on the airport must attach the SGHAT
report, outlining solar panel glare and ocular impact, for each point
of measurement to the Notice of Proposed Construction Form 7460-1. The
FAA will consider the use of alternative tools or methods on a case-by-
case basis. However, the FAA must approve the use of an alternative
tool or method prior to an airport sponsor seeking approval for any
proposed on-airport solar energy system. The alternative tool or method
must evaluate ocular impact in accordance with the Solar Glare Hazard
Analysis Plot.
Please contact the Office of Airport Planning and Programming,
Airport Planning and Environmental Division, APP-400, for more
information on the validation process for alternative tools or methods.
Airport sponsor obligations have been discussed above under
Background. We caution airport sponsors that under preexisting airport
grant compliance policy, failure to seek FAA review of a solar
installation prior to construction could trigger possible compliance
action under 14 CFR Part 16, ``Rules of Practice for Federally-Assisted
Airport Enforcement Proceedings.'' Moreover, if a solar installation
creates glare that interferes with aviation safety, the FAA could
require the airport to pay for the elimination of solar glare by
removing or relocating the solar facility.
[[Page 63279]]
Issued in Washington, DC, on September 27, 2013.
Benito De Leon,
Director, Office of Airport Planning and Programming.
[FR Doc. 2013-24729 Filed 10-22-13; 8:45 am]
BILLING CODE 4910-13-P