Strategic airports and aviation facilities - April 2016 State Planning Policy-state interest guideline - Queensland's ...
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Department of Infrastructure, Local Government and Planning State Planning Policy—state interest guideline Strategic airports and aviation facilities April 2016 Great state. Great opportunity.
Preface
Using this state interest guideline
The Queensland Government established the State Planning Where text in this guideline is in a coloured text box, it is
Policy (SPP) to define the specific matters of state interest an excerpt from the SPP and is the state’s policy about a
in land use planning and development. To support the matter of state interest.
implementation of the SPP, each state interest in the SPP
is supported by a state interest guideline such as this one. In relation to making or amending a planning scheme, the
SPP quoted text defines what a local government should do
This state interest guideline must be read in conjunction in preparing or amending a planning scheme (ie. the state
with the SPP. prefers this policy but will consider alternative approaches
based on specific local context or issues).
The SPP does not prioritise one state interest over another
and thus provides flexibility for local governments to Where interim development assessment requirements apply
respond to specific regional and local contexts. This allows for a state interest (because the relevant planning scheme
for the state interests to be considered as an entirety rather has not yet integrated the state interest or an amendment to
than as individual competing or conflicting priorities. the SPP has occurred subsequent to the scheme), the SPP
quoted text defines requirements that must be applied in
The SPP guiding principles carry equal weight with the state the assessment of applicable development applications.
interests and must be considered by local government as
part of the integration of state interests as an entirety rather Content within this state interest guideline that is not an
than as individual policies. This supports decision making excerpt from the SPP provides further context and explains
which integrates and balances the economic, environmental how the SPP policies can be applied. It does not introduce or
and social needs of current and future generations, define any new policies which do not exist in the SPP itself.
promotes innovative approaches to design and development The use of such guidance material is optional—it does not
where consistent with the strategic intent of a planning form a statutory component of the SPP and hence is not a
scheme and enables flexible and performance-based mandatory requirement of the state.
decisions as part of the assessment process.
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State interest guideline - Strategic airports and aviation facilities - April 2016 2Department of Infrastructure, Local Government and Planning
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 code provisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Appendix 1: Core concepts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Appendix 2: Aviation facilities—location and type. . . . . . . . . . . . . . . . . . . . . 33
Appendix 3: Building 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
State interest guideline - Strategic airports and aviation facilities - April 2016 3PART 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 in this guideline provides advice around those
tourism, social and defence role in Queensland. The core concepts which must be considered in the integration
Queensland Government recognises the need to protect of the state interest—strategic airports and aviation
aviation assets to support growth of the state’s economy facilities, 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?
written in italics 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.
State interest guideline - Strategic airports and aviation facilities - April 2016 4PART B
PART B: Integrating the state interest
into planning schemes
Policy 1
Identifying strategic airports and aviation facilities, and associated obstacle limitation surface (OLS) or height
restriction zone, 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). Mapping of Height
depending on the airport/aviation facility, this could Restriction Zones, lighting area buffer zones and
be done with overlays that show: wildlife hazard buffer zones is available from the SPP
Interactive Mapping System. It is highly recommended
• operational airspace—Obstacle Limitation Surface local government request assistance from Airservices
(OLS) surface (for Leased Federal and other strategic Australia to determine the building restricted area for
airports) or Height Restriction Zone (for defence an aviation facility given the highly technical nature of
airfields and joint-user airfields); the process.
• lighting area buffer zone—areas within a six 1.4 The SPP Interactive Mapping System will include the
kilometre radius of a strategic airport’s runway most recent airport environs overlay data required
measured from the aerodrome reference point and for each local government area. It is the role of the
lighting intensity 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; or government cannot include the ANEF constraints.
• ANEF contours.
State interest guideline - Strategic airports and aviation facilities - April 2016 5PART B
Department of Infrastructure, Local Government and Planning
Policy 2
Facilitating development surrounding strategic airports that is compatible with, depends upon or gains
significant economic advantage from being in proximity to a strategic airport, or supports the airport's role as a
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 to a
2.1 The strategic framework and land use strategies in strategic airport, or supports the role of the strategic
a local planning instrument should ensure that the airport as a critical freight and logistics hub. These
aviation industry is supported by promoting the use land uses include air charter businesses, air freight
of the land surrounding strategic airports for aviation depots, logistic and distribution centres, flight training
industry activities. These land uses include industry and skydiving businesses (however, Table 1 should
involving the design, manufacture, maintenance and be consulted for transient obstructions caused by
repair of aircraft and aircraft components, aviation parachuting), warehouses and service industries.
and aerospace research and technology facilities
and facilities for aviation and aerospace education
and training.
State interest guideline - Strategic airports and aviation facilities - April 2016 6PART B
Department of Infrastructure, Local Government and Planning
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 on 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
State interest guideline - Strategic airports and aviation facilities - April 2016 7PART B
Department of Infrastructure, Local Government and Planning
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 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); and
• accommodation activities;
• institutional uses (e.g. education establishments,
• the manufacture or bulk storage of flammable, hospitals).
explosive or noxious materials;
State interest guideline - Strategic airports and aviation facilities - April 2016 8PART B
Department of Infrastructure, Local Government and Planning
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
therefore should not be used to assess aircraft noise
REFER TO: Appendix 4: Guidance on the National impacts on individual development proposals during
Airports Safeguarding Framework, which provides development assessment processes.
further information to local government 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 (pg. 20-21)
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.
State interest guideline - Strategic airports and aviation facilities - April 2016 9PART B
Department of Infrastructure, Local Government and Planning
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; or
• 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.
State interest guideline - Strategic airports and aviation facilities - April 2016 10PART B
Department of Infrastructure, Local Government and Planning
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
(SPP - Appendix 5) provides the foundation for planning instrument codes that vary from the SPP
local government when drafting their local planning code, the local government must be able to adequately
instrument assessment codes. In some instances, demonstrate that the intent of the current policy has
a local government may have already developed been addressed.
an airport environs code, to 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.
State interest guideline - Strategic airports and aviation facilities - April 2016 11PART 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; and
• 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
State interest guideline - Strategic airports and aviation facilities - April 2016 12PART C
Department of Infrastructure, Local Government and Planning
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 and
approval is still required from the Australian Government if contact information provides more information regarding
the proposed development will encroach into operational the Australian Government’s role and assessment processes
airspace. Obstacle shielding enables those developments for intrusions 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 operation 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.
State interest guideline - Strategic airports and aviation facilities - April 2016 13PART C
Department of Infrastructure, Local Government and Planning
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.
State interest guideline - Strategic airports and aviation facilities - April 2016 14PART C
Department of Infrastructure, Local Government and Planning
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
or plume rise assessment by CASA. CASA can provide advice
and conduct a preliminary screening of the location for local
• exhaust gases from power generation facilities. government or applicants during the pre-lodgement stage
of development assessment.
Development incorporating stacks or vents that can
emit high velocity gaseous plumes have the potential Australian Government role
to adversely impact aircraft operations by affecting the
handling characteristics of an aircraft in flight. In such A development proposal involving emission of airborne
situations there is danger of a momentary loss of control particulates that may impair visibility in operational
of the aircraft. airspace must be referred to the airport manager who will
on refer the proposal to CASA for assessment. Proposals
Where a development involves plume rises exceeding a with the potential to affect visibility in a Height Restriction
velocity of 4.3 metres per second, mitigation measures may Zone for a defence or joint-user airfield must be referred
be required. In some circumstances, mitigation will not be to DoD for assessment.
possible without adversely affecting the operational safety
and efficiency of the strategic airport. Appendix 5: Guidance on development assessment
processes and Appendix 6: Guidance on agency roles
Airborne particulates that may impair visibility provides more information regarding the Australian
Government’s role and assessment processes for intrusions
Development with the potential to produce steam, dust, into operational airspace of strategic airports.
smoke, ash and other airborne particles or pollutants
(e.g. extractive industries) into operational airspace may It is recommended proponents seek CASA or DoD
affect aircraft safety by reducing pilot or air traffic control advice during pre-lodgement stage of development
(ATC) visibility, or impacting engine operation. Impacts on assessment processes.
visibility can cause a change from visual to instrument flight
rules which can in turn reduce the handling capacity of
operational airspace by as much as 50 per cent.
Development that emits airborne particles is incompatible
with operational safety and efficiency of strategic airports
if it occurs on land beneath operational airspace.
State interest guideline - Strategic airports and aviation facilities - April 2016 15PART C
Department of Infrastructure, Local Government and Planning
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 seeks 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; and
• consistent and effective reporting of wildlife events
in line with Australian Transport Safety Bureau (ATSB)
guidelines.
State interest guideline - Strategic airports and aviation facilities - April 2016 16PART C
Department of Infrastructure, Local Government and Planning
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 Infrastructure, Local Government and
structures can also affect the performance of aviation Planning (DILGP).
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 DILGP, 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.
State interest guideline - Strategic airports and aviation facilities - April 2016 17PART C
Department of Infrastructure, Local Government and Planning
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
State interest guideline - Strategic airports and aviation facilities - April 2016 18PART C
Department of Infrastructure, Local Government and Planning
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.); and 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.
State interest guideline - Strategic airports and aviation facilities - April 2016 19PART C
Department of Infrastructure, Local Government and Planning
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; and 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; and
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 12 February 2015).
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.
State interest guideline - Strategic airports and aviation facilities - April 2016 20PART C
Department of Infrastructure, Local Government and Planning
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
State interest guideline - Strategic airports and aviation facilities - April 2016 21PART C
Department of Infrastructure, Local Government and Planning
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 12 February 2015).
Note:
1. AS 2021 as adopted 12 February 2015, should be referred to for advice and information about the indoor design sound levels in Table 4.
State interest guideline - Strategic airports and aviation facilities - April 2016 22PART D PART D: Model code provisions There are no model code provisions for this state interest, instead refer to the SPP code: Strategic airports and aviation facilities located in Appendix 5 in the SPP. State interest guideline - Strategic airports and aviation facilities - April 2016 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 Australian Government
in aviation matters? 2. defence airfields;
3. joint-user; or
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; and
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; and 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;
State interest guideline - Strategic airports and aviation facilities - April 2016 24APPENDIX 1
Department of Infrastructure, Local Government and Planning
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; and 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; and
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).
State interest guideline - Strategic airports and aviation facilities - April 2016 25APPENDIX 1
Department of Infrastructure, Local Government and Planning
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
Height Restriction Zones re-design of flight paths which increases the population
exposed to high levels of aircraft noise.
The DACR specifies Height Restriction Zones for Queensland
defence airfields at Royal Australian Air Force (RAAF) base
Townsville, RAAF base Amberley, RAAF base Scherger and Australian Government role
Army Aviation Centre, Oakey. The height restrictions may Part 12 of the Airports Act 1996 and the Airports (Protection
limit the height of new structures or additions to existing of Airspace) Regulations 1996 establishes mechanisms
structures to heights of 7.5, 15, 45 or 90 metres above for the declaration of ‘prescribed airspace’ at and around
ground level. If a building, structure or natural object (e.g. a Leased Federal airports.
tree) encroaches into the Height Restriction Zone prescribed
for the defence airfield, an approval is required from DoD. CASA sets the standards used to determine the OLS and
PANS-OPS surface for strategic airports. An airport manager
is responsible for determining the OLS and PANS-OPS
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.
State interest guideline - Strategic airports and aviation facilities - April 2016 26You can also read
