PANS-OPS

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Airspace regulations surrounding Essendon Airport are placing a restriction on the maximum height for high rise building developments being planned for the Melbourne central business district (CBD). The development community is fast learning the impact of these regulations and contemplating how to undertake proposed developments in light of these restrictions.

By way of background, the state planning laws administered by the Department of Transport, Planning and Local Infrastructure (DTPLI) are distinct from the federal airspace regulations administered by the Department of Infrastructure and Regional Development. These aviation regulations apply in all states of Australia and are contained in the Airports (Protection of Airspace) Act 1996 (The Act).

In essence The Act seeks to protect the airspace around an airport that are required for aircraft operations from proposed building or other physical encroachment. It is intended to ensure that aircraft operations in, out and around an airport can be performed safely.

The Act requires that an airport owner-operator designate prescribed airspace when air transport operations take place. There are two types of prescribed airspace, an obstacle limitation surface (OLS) and PANS-OPS surface. It is important to emphasise that a planning permit granted by DTPLI does not enable a building to enter the prescribed airspace around an airport. Separate approval must be gained from the Department of Infrastructure and Regional Development.

An OLS provides protection for general aircraft operations around an airport. It caters for aircraft flying visually or under instruments. An OLS defines various categories of obstruction surfaces surrounding a runway. It extends outward to a maximum of 15km from the airport. Regulations prevent the construction or placement of obstructions in the surfaces closest to the runway. However, obstructions can be placed in other surfaces subject to there being no significant risk to aviation safety.

The other form of prescribed airspace is the PANS-OPS surface (an abbreviation for Procedures for Air Navigation Services-Operations), which protects airspace for aircraft flying under instrument flight rules (termed-IFR) around an airport. When an aircraft is flying IFR it is presumed that it cannot see the ground until it is close to landing, or perform its own separation from other aircraft or physical obstructions on the ground. These aircraft determine their position from ground based navigation aids or satellites. They fly on defined flight paths when arriving and departing an airport. Most air transport operations are undertaken in accordance with IFR requirements.

<figure><a class="colorbox colorbox-insert-image" href="https://res.cloudinary.com/dz9xllyip/image/fetch/q_auto:good/https://s3-ap-southeast-2.amazonaws.com/www.urban.com.au/s3fs-public/pictures/article-images/141022_pans_ops_presentation_4.jpg" rel="gallery-all" title="Height limits increase as distance from an aerodrome increases - image supplied by Elenberg Fraser"><img alt="" class="image-article-full-width-580px" height="306" src="/sites/urbanmelbourne.info/files/styles/article_full_width_580px/public/pictures/article-images/141022_pans_ops_presentation_4.jpg?itok=U10ohi2p" title="Height limits increase as distance from an aerodrome increases - image supplied by Elenberg Fraser" width="580"></a>

<figcaption>Height limits increase as distance from an aerodrome increases - image supplied by Elenberg Fraser</figcaption></figure>Regulations governing the PANS-OPS surface are significantly more restrictive than those for an OLS. No permanent obstruction is permitted in a PANS-OPS surface. A permanent obstruction includes buildings plus items such as lift overruns or aerials that may be placed on top of the building.

The Act does provide the opportunity for temporary penetration of a PANS-OPS surface. A temporary penetration can extend for a maximum of three months. Penetration of the PANS-OPS surface by a construction crane would fall within this categorisation. However, it is important to note that this temporary penetration of the PANS-OPS surface is subject to achieving the agreement of the airport operator-company.

Four organisations are identified in the Act. The Civil Aviation Safety Authority (CASA) is responsible for assessing the safety implications from a temporary or permanent application to enter an OLS or PANS-OPS surface. Airservices Australia is responsible for developing instrument flight procedures around an airport. It has ultimate responsibility for determining the height of the PANS-OPS surface. An airport operator-company manages the application process to enter prescribed airspace. The federal Department of Infrastructure and Regional Development is the agency responsible for granting approval for the application. An appeal process is available through the Administrative Appeals Tribunal.

The Melbourne CBD falls within the prescribed airspace of Essendon Airport. Essendon Airport Ltd (EAL) developed prescribed airspace (i.e. OLS and PANS-OPS surface) around the airport. The Melbourne CBD is located beneath an area designated as the ‘Outer Horizontal’ surface of the OLS.

This outer horizontal surface is a flat plane extending from around 5km to 15km from Essendon Airport. It has a lower level of 150m above the height of Essendon Airport aerodrome reference point. This means that the height of the OLS above the Melbourne CBD is 228.5m AHD. Building and other obstructions can enter the OLS provided there is no significant risk to aviation safety and with the approval of the Department of Infrastructure and Regional Development.

Helicopters operate in the OLS around the Melbourne CBD. One of the main strategies to mitigate risks to these operations is by placing lights on the top corners of the buildings. Cranes are required to have alternating colours along the boom. Strobe lights are also required to be placed at the top of the boom.

The height of PANS-OPS surface above the Melbourne CBD is governed by the missed approach associated with the ILS runway 26 at Essendon Airport. This missed approach procedure requires the aircraft to climb on a 130 deg track, toward the CBD. Unlike the OLS, the PANS-OPS surface rises at a 2.5% gradient from Essendon Airport. A 2.5% climb gradient is a commonly adopted performance standard. It assumes a modestly performing aircraft that has one engine inoperative.

<figure><a class="colorbox colorbox-insert-image" href="https://res.cloudinary.com/dz9xllyip/image/fetch/q_auto:good/https://s3-ap-southeast-2.amazonaws.com/www.urban.com.au/s3fs-public/pictures/article-images/141022_pans_ops_presentation_5.jpg" rel="gallery-all" title="Missed approach diagram for Essendon airport runway 26 - image supplied by Elenberg Fraser"><img alt="" class="image-article-full-width-580px" height="306" src="/sites/urbanmelbourne.info/files/styles/article_full_width_580px/public/pictures/article-images/141022_pans_ops_presentation_5.jpg?itok=nd8sMEy6" title="Missed approach diagram for Essendon airport runway 26 - image supplied by Elenberg Fraser" width="580"></a>

<figcaption>Missed approach diagram for Essendon airport runway 26 - image supplied by Elenberg Fraser</figcaption></figure>The Melbourne CBD spans an area approximately 9-10.5km from Essendon Airport. Taking into consideration the gradient of the PANS-OPS surface, developments in the Southbank area can be built to a higher level than those planned for the northern fringe of the CBD. Maximum building heights on the northern fringe can be around 280m AHD, while developments in Southbank area are able to reach 320m AHD.

The issue of cranes used to construct these high rise developments presents far greater complexity, particularly for those buildings planned for just beneath the PANS-OPS surface. Cranes cannot penetrate the PANS-OPS surface for duration greater than three months.

Construction companies favor the use of a luffing tower crane for high rise developments. These cranes often require the raised boom to penetrate the PANS-OPS surface. A three month penetration is not adequate to perform the necessary construction activities for develops that sit just beneath the PANS-OPS surface. These developments will also be restricted by the maximum height penetration permitted into the PANS-OPS by cranes.

Construction companies are currently evaluating alternative construction methodologies and crane solutions to address this height penetration problem. This includes exploring whether ‘hammerhead’ cranes could replace the luffing form. Despite these initiatives, without a change to the three month maximum duration and having a suitable height penetration for cranes, buildings will probably need to be constructed to a lower height.

A penetration of the PANS-OPS surface requires a change to the flight procedures. This can mean raised approach minima for aircraft on approach to land, different flight paths to avoid an area of building development or the requirement for a higher climb gradient on a missed approach procedure.

Presently over a dozen high rise developments are mooted for the Melbourne CBD that will likely penetrate either the OLS or have a crane seek to enter the PANS-OPS surface. These developments will likely penetrate prescribed airspace during the period 2017 through 2020. From an aviation perspective, although no one construction crane may penetrate the PANS-OPS surface for more than three months, the cumulative impact of these developments will likely require revised flight procedures for most of this period.

Essendon Airport Ltd is currently undertaking a study to evaluate the impact on local aviation users from short term penetrations of the PANS-OPS surface. An expected outcome from this study will be a determination about the maximum height that construction cranes can penetrate the PANS-OPS surface. Unfortunately Essendon Airport Ltd has not agreed to consult with the development community as part of their study. The construction needs of the development community will not be factored into their evaluation. Essendon Airport Ltd has also refused to disclose the outcomes of the study to the impacted development community once it is completed.

Some years ago the Eureka Tower construction crane had a 150ft penetration into the PANS-OPS surface. The application of The Act has tightened since this development. It is unknown whether a similar level will be approved or a lower height penetration set.

<figure><a class="colorbox colorbox-insert-image" href="https://res.cloudinary.com/dz9xllyip/image/fetch/q_auto:good/https://s3-ap-southeast-2.amazonaws.com/www.urban.com.au/s3fs-public/pictures/article-images/141022_pans_ops_presentation_7.jpg" rel="gallery-all" title="Image supplied by Elenberg Fraser"><img alt="" class="image-article-full-width-580px" height="306" src="/sites/urbanmelbourne.info/files/styles/article_full_width_580px/public/pictures/article-images/141022_pans_ops_presentation_7.jpg?itok=V7JxaH8D" title="Image supplied by Elenberg Fraser" width="580"></a>

<figcaption>Image supplied by Elenberg Fraser</figcaption></figure>Once the study reflecting the outcome from consultation with local operators is completed, it will be provided to the Department of Infrastructure and Regional Development. It is likely that the reports recommendation will be provided to Airservices and CASA for review. Essendon Airport Ltd will not provide a timeframe when their study will be finalised.

In the meantime, Essendon Airport Ltd and the Department of Infrastructure and Regional Development have expressed an unwillingness to process applications for developments where the crane may penetrate the PANS-OPS surface. This means that it could be the New Year before applications can be submitted. In the meantime, a number of developments are on hold while this matter is resolved.

The Department of Infrastructure and Regional Development is aware of the study being undertaken by Essendon Airport Ltd. Although it is not known how the department will seek to resolve current problems, they appear focused on applying a narrow, literal interpretation, of the Act.

The impact on Essendon Airport of building developments in the Melbourne CBD, though, is very different to those that could occur close to a major international airport. Essendon Airport has moderate traffic density, few aircraft fly the missed approach instrument procedure toward the Melbourne CBD and the development area is at least 9km from the airport. These factors suggest that changes to flight procedures could be undertaken to enable a higher PANS-OPS surface, or a higher crane penetration of the surface for a period longer than three months.

The lead time to gain approval to enter prescribed airspace by the Department of Infrastructure and Regional Development is quite lengthy. Currently it is estimated that 22 weeks will be required before an approval is gained.

Aviation legislation is limiting the height of high rise building developments within the Melbourne CBD. Initiatives are needed to change existing flight procedures for Essendon Airport so that the needs of building developments planned for the Melbourne CBD can be accommodated alongside those of aviation users.

Ian Thompson is a director of an aviation consultancy firm specialising in airport and air traffic management strategy and operations. He is representing developers on most of the high rise developments planned for the Melbourne CBD and was keynote speaker at the recent Elenberg Fraser PANS-OPS evening. Ian can be contacted at <a href="mailto:ithompson@thompsongcs.com">ithompson@thompsongcs.com</a>.
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Ian Thompson

Aviation Impact on Building Development in the Melbourne CBD

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Who better than the firm responsible for the majority of Melbourne's current crop of tall towers to host an evening of discussion on and surrounding the matter. To mark Elenberg Fraser's move to their new CBD offices, the avant-garde architecture firm will host an event next Wednesday evening, in conjunction with Urban.com.au.

The central discussion topic will be the PANS-OPS height ceiling and its implications for Melbourne. Also subject to discussion are the various projects Elenberg Fraser have on their books and how PANS-OPS is applied to each.

Lending his expertise on the evening will be guest speaker Ian Thompson of air traffic management solutions firm Thompson GCS Pty Ltd. Unfortunately fellow guest speaker Adrian Salmon from DTPLI has had to withdraw from the event.

<h2>Event details</h2>

Join us for a fireside chat in the new offices of Elenberg Fraser with special guest star:

<dl>
<dt>Ian Thompson</dt>
	<dd>Thompson GCS Pty Ltd</dd>
</dl>
<dl>
<dt>What is PANS-OPS and how does it work?</dt>
	<dd>Date: Wednesday 22 October, 6:00 - 8:00pm</dd>
	<dd>Location: Elenberg Fraser – Level 1/160 Queen Street, Melbourne.</dd>
</dl>
The event is open to all individuals and Urban.com.au have a healthy number of seats available for the event on a first come, first served basis.

<h2>Registrations closed</h2>

Thank you to all those who have registered, our allotment of seats have been taken up quicker than anticipated. Registrations for Wednesday evening have closed and those who have secured tickets will be notified.
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Laurence Dragomir

Urban.com.au and Elenberg Fraser present: A conversation on PANS-OPS

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Earlier this year issues regarding the impact that flights paths around Melbourne's airports and development of tall buildings in central <a href="https://www.urban.com.au/new-apartments/melbourne-vic">Melbourne</a> were raised following the then approval of Australia 108 tower which at 388 metres high would have been the tallest building in Melbourne and the Southern Hemisphere. Since this issue was initially raised there has been a lot of confusion and misunderstanding in relation to how airspace restrictions work and how they impact upon development in Melbourne. With developers proposing increasingly taller buildings in the Melbourne's CBD and <a href="/new-apartments/southbank-vic-3006">Southbank</a>, this issue will become even more prominent in the future.

Airspace around airports in managed so that aircraft can take off, land and maneuver around airports without risk of colliding with buildings or other structures. To do this the areas surrounding airports are protected by two invisible surfaces which define at what height planes can fly safely without encountering unexpected obstacles. These surfaces are known as the:

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<li>Obstacle Limitation Surface (OLS); and</li>
	<li>Procedures for Air Navigational Services—Aircraft Operations Surface (PANS-OPS)</li>
</ul>
OLS is generally the lowest surface and is designed to provide protection for aircraft flying into or out of the airport when the pilot is flying by sight. PANS-OPS is generally above the OLS and is designed to safeguard an aircraft from collision with obstacles when the aircraft’s flight may be guided solely by instruments, such as in poor visibility conditions. Buildings and other structures cannot penetrate these surfaces without the approval of the relevant Airport or the Department of Infrastructure and Regional Development.

Permits can be granted for permanent or temporary buildings or structures to penetrate the OLS and approval would usually involve a requirement that the building have prominent navigation beacons at the highest point of the building. An example of this is Eureka Tower which was required to have four navigation beacons on the roof as it penetrated the OLS.

<figure><a class="colorbox colorbox-insert-image" href="https://res.cloudinary.com/dz9xllyip/image/fetch/q_auto:good/https://s3-ap-southeast-2.amazonaws.com/www.urban.com.au/s3fs-public/pictures/article-images/ESSEDON%20OLS.gif" rel="gallery-all" title="Essendon Airport OLS"><img alt="" class="image-article-full-width-580px" height="580" src="/sites/urbanmelbourne.info/files/styles/article_full_width_580px/public/pictures/article-images/ESSEDON%20OLS.gif?itok=JXLgOnC4" title="Essendon Airport OLS" width="580"></a>

<figcaption>Essendon Airport OLS</figcaption></figure>A permit can also be granted for temporary structures to penetrate the PANS-OPS surface, an example of this were the construction cranes for Eureka Tower that were issued a permit to penetrate the Essendon Airport PANS-OPS on a temporary basis during the construction of the building. However a permit cannot be issued to allow for structures to penetrate the PANS-OPS surface on a permanent basis. In order to construct a building that would permanently penetrate the existing PANS-OPS surface, the PANS-OPS surface has to be amended so that it shifts above the height of the proposed building.

An example of which was the PANS-OPS surface over the Gold Coast which was amended in 2005 to allow for the development of Q1 Tower. The PANS-OPS surface surrounding the site of Q1 tower was 304m above sea level and the spire on Q1 was originally approved at this height. The developers of Q1 successfully applied to have the PANS-OPS surface increased to 335.3 to allow for the spire to be extended to a height of 328m above sea level.

The location and orientation of Melbourne Airport means that the controls to protect Melbourne Airport have very little impact upon development in the Melbourne CBD (including Docklands and Southbank). However the controls for Essendon Airport have a much more significant impact upon the Melbourne CBD, as the Essendon airport OLS map above shows. OLS over the Melbourne CBD (including Southbank and Docklands) is 228.5, while the Essendon Airport PANS-OPS map shown below indicates heights of between 265m and 315m over Melbourne CBD (including Southbank and Docklands).

<figure><a class="colorbox colorbox-insert-image" href="https://res.cloudinary.com/dz9xllyip/image/fetch/q_auto:good/https://s3-ap-southeast-2.amazonaws.com/www.urban.com.au/s3fs-public/pictures/article-images/ESSEDON%20PANSOPS.gif" rel="gallery-all" title="Essendon Airport PANS-OPS"><img alt="" class="image-article-full-width-580px" height="580" src="/sites/urbanmelbourne.info/files/styles/article_full_width_580px/public/pictures/article-images/ESSEDON%20PANSOPS.gif?itok=g1jErhAs" title="Essendon Airport PANS-OPS" width="580"></a>

<figcaption>Essendon Airport PANS-OPS</figcaption></figure>As a result of the above requirements buildings in the Melbourne CBD cannot exceed a height of between 265m and 315m depending on their exact location. For example, the PANS-OPS over the site of Australia 108 is 312m and the design of the building is currently being amended so that it is below this height.

One issue that was raised during the processing of the application for Australia 108 was that it was clear that the developer, the City of Melbourne and even the planning department were not aware of these requirements or presumed that a permit could be granted to penetrate the PANS-OPS. Currently there is nothing in the City of Melbourne Planning Scheme that notifies developers where these restrictions apply or that buildings above a certain height may be prohibited or need additional permissions. This had led to situation where buildings have been approved that penetrate the PANS-OPS such as Australia 108 and the tallest proposed building on the Carlton Brewery Site. The tallest of the four proposed towers at 250 Spencer Street would also penetrate the PANS-OPS.

Essendon Airport have recently prepared a new draft <a href="http://www.essendonairport.com.au/23/community-info/master-plan/default.aspx">master plan for the airport</a> which is on public exhibition until the November 29th. The master planning process can include changes to prescribed airspace although the draft master plan does not include any proposed changes to the prescribed airspace around the airport. It is understood that the PANS-OPS restrictions over the CBD are not required to protect a direct flight path for aircraft taking off or landing at Essendon Airport but to provide a safety buffer for planes in emergency situations where they encounter difficulty after take off or have to perform a go-around where a pilot discontinues a landing approach when they are not completely satisfied that the requirements are in place for a safe landing.

Victorian Planning Minister, Matthew Guy, has informed Urban.com.au that he is currently lobbying the Federal Government to amend the PANS-OPS restrictions so that they do not apply to the Melbourne CBD. It is considered that the current PANS-OPS requirements for what is only a secondary airport place unreasonable restrictions on the development of the second largest city in Australia. It is also believed that the PANS-OPS restrictions could be removed from the Melbourne CBD while maintaining aviation safety standards, which if realised would likely propel a number of Melbourne's proposed towers into a whole new stratosphere.
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nwharr

Flight paths and tall buildings in Melbourne explained

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As the first in a series of articles revolving around an interview held with State Planning Minister Matthew Guy in the wake of the <a href="http://www.planmelbourne.vic.gov.au/" target="_blank">Plan Melbourne</a> strategy release, today's article centres around the <a href="http://www.gaa.vic.gov.au/" target="_blank">Metropolitan Planning Authority</a> (MPA) which was similarly launched last week; as a successor to the Growth Areas Authority .  Whilst still in its infancy, the Metropolitan Planning Authority's website carries the following description:

<blockquote>
The MPA has been created to implement the initiatives and vision set out in the Victorian Government’s metropolitan planning strategy, Plan Melbourne. As well as working with its partners in planning, the MPA will implement plans to achieve real outcomes. It will also focus on planning and infrastructure coordination in key strategic areas that are of significance to the state, throughout Melbourne’s inner and outer suburbs as well as regional centres. The MPA is an independent statutory body with a broad, facilitative role to work with local councils, other government agencies and the planning and development industry to help deliver exciting Greenfield and Urban Renewal projects across Victoria.
</blockquote>

The MPA will have a wide-ranging city development policy brief to advise Spring Street on, and one area of particular interest is transport.  As stated by the Planning Minister in our interview last week, currently there are multiple agencies - the likes of VicRoads and PTV to name a few - which advise Government on infrastructure investment priorities.  

Going forward this is set to change with a single body - the MPA - assuming the role of primary provider of advice once analysis drawn from existing agencies is complete.  

<a class="colorbox colorbox-insert-image" href="https://res.cloudinary.com/dz9xllyip/image/fetch/q_auto:good/https://s3-ap-southeast-2.amazonaws.com/www.urban.com.au/s3fs-public/pictures/article-images/mpa-slider.jpg" rel="gallery-all"><img alt="" class="image-article-full-width-702px" src="http://urbanmelbourne.info/sites/urbanmelbourne.info/files/styles/article_full_width_702px/public/pictures/article-images/mpa-slider.jpg?itok=86LMLUPd" typeof="foaf:Image"></a>

The Minister's words from Friday:

AT: Will government decisions on how to prioritise large transport infrastructure projects - both in designated urban renewal areas and in areas which councils rezone - be influenced by the Metropolitan Planning Authority?

MG: Very much so, one of the key reasons to establish the MPA is because in the past we've had transport projects that are being funded to areas that are being developed in say 10 years time, but areas that are being developed now having no transport infrastructure projects underway - we need to refocus priorities in this area. Current advice comes from a range of sources: PTV, VicRoads, The Department, Growth Areas authority, Water Authorities - it comes from so many bodies.

It [the MPA] is the first time we've actually said the advice on transport infrastructure priorities will come into one body - the Metropolitan Planning Authority - and the single authority will then provide advice to Government to say for example "it's Government's decision but we (the authority) would recommend Government should look at putting A, B and C project into a given area because population growth is coming through now or in two years time". It's about having one agency give advice to government on how to co-ordinate infrastructure.

AT: So that advice provided by the MPA, will that also include funding options for individual projects as well?

MG: No.

Editor's note: An answer to a separate follow up question - post interview - on which authority or mechanism will explore funding options for projects which the MPA advises the Government to proceed on received after original publish time, the answer provided by a spokesperson for the Planning Minister is provided:

The Treasury department will remain responsible for determining funding options for transport projects, including public transport, road and cycling projects. However the MPA will be able to propose options. For instance, the Growth Areas Authority (now MPA) already does long-term planning and projections of DCP and GAIC revenues in growth areas, and how they can fund a planned roll out of infrastructure.

On the topic of <a href="http://en.wikipedia.org/wiki/PANS-OPS" target="_blank">PANS-OPS</a> and its impact on tall buildings in Central Melbourne, the Planning Minister made it quite clear he intends to work with the new Federal Government to rectify aviation-related issues which recently dogged the <a href="/buildings/australia-108-southbank-70-southbank-boulevard-southbank">Australia 108</a> proposal.  It is the Minister's strong view development in Central Melbourne should not be constrained by aviation regulations.  

The Minister stated (on the topic of Australia 108) "The PANS-OPS issue hasn't gone away, I have been up before the Federal election and will go again to talk with Warren Truss because in our view the CBD and Southbank should be treated like a geographic constraint"  The Minister went on to clarify the issues for height in Central Melbourne only relate to the potential scenario of "a twin engine aircraft taking off in distress from Essendon airport's East-West runway - Melbourne airport was never an issue".  

 

On Friday Laurence Dragomir will be back with our <a href="https://www.urban.com.au/news/conversations-with-matthew-guy-episode-ii-in-the-zone">next installment on our conversation with the Planning Minister</a>.
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