    Reagan National Airport: Update on Capacity to Handle Additional
    Flights and Impact on Other Area Airports (28-FEB-07,
    GAO-07-352).

    In 1999, GAO reported that Reagan National Airport could
    accommodate at least 36 more slots, which are authorizations from
    the Department of Transportation (DOT) for a takeoff or landing.
    In 2000 and 2003, two federal statutes, known as AIR-21 and
    Vision 100, permitted DOT to award 44 new slots to airlines, 24
    of which could be used for flights to cities more than 1,250
    miles, which was the statutorily mandated limit for non stop
    flights from Reagan National. The DOT awards went to airlines
    serving six cities (Denver, Las Vegas, Los Angeles, Phoenix, Salt
    Lake City, and Seattle). For this year's reauthorization of the
    Federal Aviation Administration (FAA), GAO was asked for an
    update on the capacity of Reagan National to accommodate
    additional slots and the effect of relaxing the perimeter rule.
    GAO updated its 1999 study to answer these key questions: (1) To
    what extent can Reagan National accommodate additional flights?
    (2) Since AIR-21 and Vision 100, what changes have occurred in
    market share and fares for flights operating between the six
    beyond-perimeter cities and the three Washington, D.C., area
    airports? In commenting on this report, DOT and the airports
    authority generally agree with our findings but with one
    exception, the airports authority disagrees with DOT's estimate
    of slots because it disputes their methodological assumptions. We
    believe the department's methodology for estimating airport
    capacity is appropriate.
    -------------------------Indexing Terms-------------------------
    REPORTNUM:   GAO-07-352
        ACCNO:   A66345
      TITLE:     Reagan National Airport: Update on Capacity to Handle
    Additional Flights and Impact on Other Area Airports
         DATE:   02/28/2007
      SUBJECT:   Airlines
    	     Airports
    	     Capacity management
    	     Commercial aviation
    	     Federal law
    	     Passengers
    	     Statistical data
    	     Transportation industry
    	     Transportation law
    	     Ronald Reagan Washington National
    	     Airport (DC)

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    GAO-07-352

         * [1]Results in Brief
         * [2]Background
         * [3]FAA Indicates Some Additional Capacity Could Be Added, but A

              * [4]FAA Estimates Airport Can Accommodate Additional Slots
              * [5]Airports Authority Questions Reagan National's Capacity to A
              * [6]Opportunities Exist to Expand Current Capacity at Reagan Nat

         * [7]Airlines with Nonstop Service between Beyond-Perimeter Airpo

              * [8]The Effect of Beyond-Perimeter Slots on Area Airports Is Not

         * [9]Agency Comments
         * [10]GAO Comment
         * [11]GAO Contact
         * [12]Staff Acknowledgments
         * [13]GAO's Mission
         * [14]Obtaining Copies of GAO Reports and Testimony

              * [15]Order by Mail or Phone

         * [16]To Report Fraud, Waste, and Abuse in Federal Programs
         * [17]Congressional Relations
         * [18]Public Affairs

    Report to Congressional Requesters

    United States Government Accountability Office

    GAO

    February 2007

    REAGAN NATIONAL AIRPORT

    Update on Capacity to Handle Additional Flights and Impact on Other Area
    Airports

    GAO-07-352

    Contents

    Letter 1

    Results in Brief 3
    Background 5
    FAA Indicates Some Additional Capacity Could Be Added, but Airports
    Authority Cites Airport Infrastructure Constraints as an Obstacle 10
    Airlines with Nonstop Service between Beyond-Perimeter Airports and Reagan
    National Gained Significant Market Share of Traffic in Those Markets,
    While the Effect on Flights to Other Area Airports Is Not Evident 16
    Agency Comments 22
    Appendix I Scope and Methodology 25
    Appendix II Comments from the Metropolitan Washington Airports Authority
    26
    GAO Comment 30
    Appendix III GAO Contact and Staff Acknowledgments 31

    Tables

    Table 1: Slots Per Hour by Carrier 7
    Table 2: Reagan National Slots Allocated and Used by Aircraft Type, August
    2006 16
    Table 3: Share of Passenger Traffic by Airline 17
    Table 4: Average One-way Fares for Nonstop and Connecting Flights to
    Reagan National in Beyond-Perimeter Airports (2005)17

    Figures

    Figure 1: Layout of Reagan National Airport 6
    Figure 2: Summary of Slot Exemptions Granted by DOT under AIR-21 and
    Vision 100 as of September 2006 9
    Figure 3: Number of Flights at Reagan National By Aircraft, January 2001-
    August 2006 13
    Figure 4: Annual Percentage Change in Passengers for All Dulles Flights
    and Flights between Dulles and Six Beyond-Perimeter Airports, 1999-2005 19
    Figure 5: Annual Percentage Change in Average Fares for All Dulles Flights
    and Flights between Dulles and Six Beyond-Perimeter Airports, 1999-2005 20
    Figure 6: Annual Percentage Change in Passengers for All BWI Flights and
    Flights between BWI and Six Beyond-Perimeter Airports, 1999-2005 21
    Figure 7: Annual Percentage Change in Average Fares for All BWI Flights
    and Flights between BWI and Six Beyond-Perimeter Airports, 1999-2005 22

    Abbreviation

    AIR-21 Wendell H. Ford Aviation Investment and Reform Act for the 21^st
    Century
    BWI Baltimore-Washington Thurgood Marshall International Airport
    DOT Department of Transportation
    DHS Department of Homeland Security
    FAA Federal Aviation Administration
    Vision 100 Vision 100 - Century of Aviation Reauthorization Act
    IFR Instrument Flight Rules
    VFR Visual Flight Rules
    GAO Government Accountability Office

    This is a work of the U.S. government and is not subject to copyright
    protection in the United States. It may be reproduced and distributed in
    its entirety without further permission from GAO. However, because this
    work may contain copyrighted images or other material, permission from the
    copyright holder may be necessary if you wish to reproduce this material
    separately.

    United States Government Accountability Office

    Washington, DC 20548

    February 28, 2007 February 28, 2007

    The Honorable John Mica
    Ranking Republican
    Member Committee on Transportation and Infrastructure
    House of Representatives

    The Honorable Tom Petri
    Ranking Republican Member
    Subcommittee on Aviation
    Committee on Transportation and Infrastructure
    House of Representatives

    Ronald Reagan Washington National Airport's (Reagan National) central
    location in the Baltimore-Washington D.C.-Northern Virginia region and
    proximity to the Nation's capital makes it very popular for airlines and
    passengers. However, since the 1960's, the federal government has
    restricted air traffic at Reagan National to reduce congestion and spur
    growth at other nearby airports. This has been achieved by controlling the
    number of takeoffs and landings that can occur at Reagan National each day
    within hourly time periods. To take off or land during any given hour at
    Reagan National, an airline must first obtain a slot that is an
    authorization from the Federal Aviation Administration (FAA) under what is
    called the slot rule. Each slot equates to one takeoff or landing. The
    airport's growth has also been constrained by limiting the distance that
    flights are allowed to travel. Under what is called the perimeter rule,
    the distance of nonstop flights that serve the airport is limited to 1,250
    miles. Under this rule, passengers wishing to fly to Reagan National from
    airports more than 1,250 miles away must first fly to an airport within
    1,250 miles and then take another flight continuing on to Reagan National.
    The slot rule also grants 12 slots per hour to general aviation or other
    aircraft that do not operate on a scheduled basis, such as corporate jets
    or military planes. Prior to the terrorist attacks of September 11, 2001,
    there were over 40,000 annual general aviation and unscheduled flights to
    and from Reagan National but since then, the Department of Homeland
    Security (DHS) restrictions on general aviation flights in the national
    capital region have drastically curtailed the use of these slots to about
    200 over the past year. Ronald Reagan Washington National Airport's
    (Reagan National) central location in the Baltimore-Washington
    D.C.-Northern Virginia region and proximity to the Nation's capital makes
    it very popular for airlines and passengers. However, since the 1960's,
    the federal government has restricted air traffic at Reagan National to
    reduce congestion and spur growth at other nearby airports. This has been
    achieved by controlling the number of takeoffs and landings that can occur
    at Reagan National each day within hourly time periods. To take off or
    land during any given hour at Reagan National, an airline must first
    obtain a slot that is an authorization from the Federal Aviation
    Administration (FAA) under what is called the slot rule. Each slot equates
    to one takeoff or landing. The airport's growth has also been constrained
    by limiting the distance that flights are allowed to travel. Under what is
    called the perimeter rule, the distance of nonstop flights that serve the
    airport is limited to 1,250 miles. Under this rule, passengers wishing to
    fly to Reagan National from airports more than 1,250 miles away must first
    fly to an airport within 1,250 miles and then take another flight
    continuing on to Reagan National. The slot rule also grants 12 slots per
    hour to general aviation or other aircraft that do not operate on a
    scheduled basis, such as corporate jets or military planes. Prior to the
    terrorist attacks of September 11, 2001, there were over 40,000 annual
    general aviation and unscheduled flights to and from Reagan National but
    since then, the Department of Homeland Security (DHS) restrictions on
    general aviation flights in the national capital region have drastically
    curtailed the use of these slots to about 200 over the past year.

    In 1999, we analyzed legislative proposals to increase the number of slots
    at Reagan National and reported that the airport could accommodate at In
    1999, we analyzed legislative proposals to increase the number of slots at
    Reagan National and reported that the airport could accommodate at least
    36 more slots per day and that adding beyond-perimeter slots would have
    limited effects on nearby Dulles International (Dulles) and
    Baltimore-Washington Thurgood Marshall International Airport (BWI).^1 The
    rule that governs the number of slots at Reagan National limits the number
    of takeoffs or landings to 48 commercial slots per hour occurs during an
    18-hour period (6:00 a.m. to midnight) over the airport's 24-hour
    operating day.^2

    In 2000 and 2003, two federal statutes --AIR-21^3 and Vision 100^4
    increased the number of slots and for the first time allowed for
    exemptions to be granted to the perimeter rule. The statutes granted
    exemptions to the existing rules, adding 44 slots per day during a 15-hour
    period and allowing 24 of these slots for flights of more than 1,250
    miles--flights longer than 1,250 miles are called beyond-perimeter
    flights.^5 In effect, given the 15-hour period for these slot exemptions,
    this added on average three commercial slots per hour. The Department of
    Transportation (DOT) awarded these new slots exemptions to airlines and
    routes that best met specified criteria.^6 The 24 beyond-perimeter slot
    exemptions were awarded to airlines operating flights from six
    airports-Denver International (Denver), Phoenix-Sky Harbor (Phoenix),
    McCarran International (Las Vegas), Los Angeles International (Los
    Angeles), Salt Lake City International (Salt Lake City), and
    Seattle-Tacoma International (Seattle).

    ^1GAO/RCED- 99-234.

    ^214 C.F.R. S 93, Subpart K.

    ^3The Wendell H. Ford Aviation Investment and Reform Act for the 21st
    Century (AIR-21) Pub. L. No. 106-81 (Apr. 5, 2000).

    ^4The Century of Aviation Reauthorization Act (Vision 100) Pub. L. No.
    108-176 (Dec. 13, 2003).

    ^5AIR-21 and Vision 100 permitted slots to operate during 7:00 a.m through
    9:59 p.m.

    ^6Congress set forth slot exemption criteria, and DOT granted exemptions
    to airlines whose service would (for beyond-perimeter exemptions) (1)
    provide air transportation with domestic network benefits beyond the
    1,250-mile perimeter, (2) increase competition by new entrant air carriers
    or in multiple markets, (3) not reduce travel options for communities
    served by small hub airports and medium hub airports within the 1,250-mile
    perimeter and, (4) not result in meaningfully increased travel delays. For
    within-perimeter slot exemptions, DOT distributed exemptions in a manner
    that promoted air transportation: (1) by new entrant air carriers and
    limited incumbent air carriers, (2) to communities without existing
    nonstop air transportation to Reagan National, (3) to small communities,
    (4) that will provide competitive nonstop air transportation on a nonstop
    route to Reagan National, or (5) that will produce the maximum competitive
    benefits, including low fares.

    In anticipation of this year's reauthorization of FAA, you asked for an
    update of GAO's 1999 report on Reagan National's ability to accommodate
    additional capacity and the effect of relaxing the perimeter rule. To
    provide this update, we addressed these key questions:

               o To what extent can Reagan National accommodate additional
               flights?

               o Since AIR-21 and Vision 100, for the six beyond-perimeter
               airports, what changes have occurred in market share and fares at
               Reagan National and what changes have occurred in the number of
               passengers and fares at Dulles and BWI airports?

               To identify the number of additional slots Reagan National can
               accommodate and the factors affecting existing capacity, we
               reviewed FAA flight data and gate utilization data obtained from
               the Metropolitan Washington Airports Authority (airports
               authority) and we interviewed DOT, FAA and airport officials. To
               assess the changes in passenger levels and fares at Washington
               area airports and the six beyond-perimeter airports, we analyzed
               DOT origin and destination ticket data and interviewed officials
               at all three Washington, D.C., area airports. We reviewed the
               reliability of these data and concluded that they were
               sufficiently reliable for our purposes. We conducted our work from
               July 2006 to February 2007 in accordance with generally accepted
               government auditing standards. More details about the scope and
               the methodology of our work are presented in appendix I.

    			  Results in Brief

               Reagan National Airport can accommodate some additional capacity,
               but airport infrastructure constrains how much can be added. FAA
               officials believe that some new slots for flights can be added.
               Based on DOT's 1995 capacity study, FAA estimates that the
               airport's airside infrastructure--principally runways--could
               presently accommodate four additional slots per hour or 60 daily
               slots based on a 15-hour operating period. Airport officials
               disagree with FAA's method of measuring capacity and said they
               were unsure how many additional slots, if any, the airport could
               accommodate and cited several factors as contributing to their
               uncertainty. For example, officials said that the airport's
               ability to absorb the slot exemptions granted under AIR-21 and
               Vision 100 has been aided by the near absence of general aviation
               flights. Whether general aviation will return to the previous
               levels is currently unknown; but in its absence, airport officials
               said that some runway capacity remains unutilized. Airport
               officials also said that if additional slots are added, the
               airport's ability to accommodate more aircraft will be limited by
               such factors as the lack of gates for loading airplanes and other
               infrastructure constraints. Our analysis shows that even if the
               number of slots is not increased, there is some opportunity for
               expanding capacity under current rules. Currently, 78 existing
               slots remain unused--mostly during the early morning and late
               evening hours--and airlines have not applied to use these slots.
               In addition, the capacity of the existing slots could also be
               increased by using larger planes to carry more passengers.
               Currently, smaller commuter aircraft, carrying a maximum of 76
               passengers, are being widely used in slots designated for larger
               jets.

               Airlines awarded slot exemptions for direct flights between Reagan
               National and the six beyond-perimeter airports gained a
               significant market share of traffic for those selected routes, but
               the effect of these flights on competing flights operating between
               these airports and the other Washington, D.C., area airports is
               not evident. For most of the six beyond-perimeter airports, the
               direct flights to and from Reagan National captured the majority
               of passengers flying between that airport and Reagan National. In
               most cases, the airlines charge higher average fares than on
               competing connecting flights. For example, in the Salt Lake City
               market, Delta Airlines (both nonstop and connecting flights)
               carries nearly 60 percent of the passenger traffic serving Reagan
               National and charges on average nearly $50 more for a direct
               flight than competing airlines charge for connecting flights
               between Salt Lake City and Reagan National. We did not find
               evidence about passengers or fares at Dulles or BWI for the six
               beyond-perimeter airports that would indicate that the new
               beyond-perimeter service to Reagan National had substantially
               affected flights between these two airports and the six
               beyond-perimeter airports.

               DOT and the airports authority provided comments on a draft of
               this report and generally agree with our findings with one
               exception. While the airports authority believes it can
               accommodate some additional capacity it disagrees with the
               department's estimate of how many additional slots it can
               accommodate because it disputes its methodological assumptions.
               DOT believes its methodology, which attempts to consider capacity
               under a variety of weather conditions, is more appropriate than
               the airport authority's preference to estimate capacity only under
               poor weather conditions. We believe the department's methodology
               for estimating airport capacity is more appropriate because the
               airport authority's approach would leave large amounts of airfield
               capacity unused because a significantly higher capacity could be
               achieved during better weather conditions. DOT and the airports
               authority provided overall comments and technical clarifications
               in some areas of this report. We have addressed these comments and
               clarifications where appropriate. The airport authority's comments
               and our responses are presented in appendix II.

    			  Background

               Reagan National Airport was built by the federal government and
               opened on June 16, 1941, on the western bank of the Potomac River,
               across from Washington, D.C.^7 Reagan National currently has three
               runways and two terminals with a total of 44 gates or passenger
               loading ramps for use by air carriers. The airport currently
               handles 400 daily departures to 75 cities, offered by 20 different
               airlines (this includes commuter airlines, which operate solely
               for the major carriers). Terminal A, the original terminal, has 9
               gates, and Terminal B/C, which opened in 1997, has 35 gates, 100
               ticket counters, and 12 baggage claim areas. In 2005, 17.8 million
               passengers used Reagan National. The airline with the largest
               number of flights at Reagan National is US Airways, which controls
               44 percent of the commercial slots. The next largest operators are
               Delta Airlines and American Airlines, which have 14 percent of the
               commercial slots each. During 2005, these three airlines together
               accounted for nearly 60 percent of total passenger enplanements at
               the airport.

    ^7The airport's official name changed from Washington National to Ronald
    Reagan Washington National Airport under Pub. L. No. 105-154, 112 Stat 3
    (1998).

    Figure 1: Layout of Reagan National Airport

    In 1969, FAA applied special air traffic rules to certain airports facing
    increasing delays and congestion that it designated as high-density
    airports: Chicago-O'Hare; New York's LaGuardia and Kennedy; Newark, New
    Jersey; and Reagan National (DOT dropped Newark's designation as a
    high-density airport in October 1970). Because of the restricted number of
    allowable flights, these airports are generally known as slot-controlled,
    and the special air traffic rules governing the allowable number of
    flights are referred to as slot rules, or high-density rules.

    The number of hourly slots at Reagan National is controlled by the federal
    government. Since 1969, the federal government has restricted the number
    of commercial takeoffs and landings at Reagan National. Currently, the
    number allowed is 48 per hour: 37 for air carriers and 11 for commuter
    aircraft.^8 Table 1 shows the number of slots per hour by type of aircraft
    permitted under the slot rule. FAA authorizes general aviation or
    unscheduled aircraft to make an additional 12 takeoffs or landings during
    each hour for a total of 60 slots per hour.

    Table 1: Slots Per Hour by Carrier

    Type                         Slots per hour
    Air carrier^a                          37^b
    Commuter                                 11
    General aviation/unscheduled             12
    Total                                    60

    Source: GAO analysis of DOT documents.

    ^aCan be used by commuter but not vice versa (14 C.F.R. S 93.123).

    bThe original limit on the number of air carrier slots was 40 per hour.
    FAA reduced it to 37 in 1981 and increased the number of commuter slots
    from 8 to 11.

    A perimeter rule has been in place at Reagan National since May 1966
    restricting airlines from operating nonstop flights between Reagan
    National and airports further than a specified distance. The FAA
    previously had concerns that allowing long-range jets to fly into Reagan
    National would create a noise problem and hamper growth of the newly built
    Dulles International Airport. As a result, with the airlines agreeing, the
    Civil Aeronautics Board approved a 650-mile perimeter, with exceptions of
    seven cities between 650 and 1,000 miles away that enjoyed grandfather
    status as of December 1, 1965.

    ^8Commuter aircraft are generally turboprop or small jet aircraft seating
    76 or fewer passengers. Within the past few years, several commuter
    airlines have begun using small jet aircraft (regional jets) in their
    fleets. To avoid confusion throughout the remainder of this report, we
    will refer to all commuter aircraft, regardless of whether they are
    regional jets or turboprops, as commuter aircraft.

    In 1986, the Congress codified the slot and perimeter rules into federal
    statute as part of the Metropolitan Washington Airports Act of 1986.^9 The
    act led to the transfer of authority over Reagan National and Dulles from
    the federal government to the Metropolitan Washington Airports Authority
    and set the perimeter at 1,250 miles, which allowed nonstop flights as far
    as Houston and Dallas.

    Two federal statutes enacted in 2000 and 2003 modified the slot and
    perimeter rules at Reagan National Airport. AIR-21 and Vision 100
    effectively added up to three commercial slots per hour and for the first
    time designated some slots for flights beyond the 1,250 mile perimeter.
    AIR-21 and Vision 100, combined, allowed the Secretary of Transportation
    to award 22 roundtrips, 12 with service to airports beyond the perimeter
    and 10 with service to airports within the perimeter. Figure 2 shows each
    market by number of slots and airline.

    ^9Pub. L. No. 99-500, 100 Stat. 1783-375, Pub. L. No. 99-591, 100 Stat.
    3341-378.

    Figure 2: Summary of Slot Exemptions Granted by DOT under AIR-21 and
    Vision 100 as of September 2006

    Two other commercial airports serve the Baltimore-Washington metropolitan
    area--Dulles International Airport and Baltimore-Washington International
    Thurgood Marshall Airport (BWI). Dulles opened on November 19, 1962. The
    federal government built Dulles, located approximately 30 miles west of
    Washington, D.C., in part to provide a facility for nonstop and connecting
    and international air carrier traffic into the Washington, D.C. area. In
    2005, Dulles handled 27 million passengers. BWI, built by the city of
    Baltimore and originally named Friendship International Airport, was
    opened on June 24, 1950. BWI, which is owned and operated by the state of
    Maryland, is located 10 miles southwest of Baltimore and approximately 30
    miles northeast of Washington, D.C. In 2005, BWI handled 19.7 million
    passengers.

    FAA Indicates Some Additional Capacity Could Be Added, but Airports Authority
    Cites Airport Infrastructure Constraints as an Obstacle

    According to FAA officials, whose estimate is based on airside capacity
    (principally runways) and not landside infrastructure (such as terminals
    and parking facilities), Reagan National can presently accommodate four
    additional slots per hour. Airport officials disagree on the basis for
    FAA's estimate and cite the unknown future course of general aviation at
    the airport and the limited capacity of airport infrastructure (such as
    gates, baggage handling areas, and parking) to handle more commercial
    flights. Airport officials were unsure of how many additional flights, if
    any, the airport could accommodate. Even without increasing the number of
    slots, there are opportunities to accommodate more flights and passengers.
    Some current slots remain unused during early morning or late evening
    hours, and some slots designated for air carriers are being used for
    smaller commuter aircraft.

    FAA Estimates Airport Can Accommodate Additional Slots

    According to FAA, Reagan National's overall runway capacity can presently
    accommodate about four additional hourly slots above the current slot
    allocation under the high-density rule.^10 FAA continues to rely on the
    DOT's study of the high-density rule that it conducted in 1995.^11 The
    study estimated that the airport's balanced capacity is 67 flights per
    hour, or 4 more than what is currently in place, resulting in an
    additional 60 flights per day based on an 15-hour operating period.^12 The
    study predated the exclusion of general aviation after September 11. The
    study concluded that FAA's traffic programs and procedures could safely
    accommodate the increase, but it also said the increase was likely to
    result in more delays. In 2004, the most current year for which this data
    are available, Reagan National experienced an average delay time of 5
    minutes, one of the lowest in the nation for large hub commercial
    airports.^13

    10The slot exemptions permitted by AIR-21 and Vision 100 used three of the
    seven additional slots DOT originally estimated in 1995.

    ^11U.S. DOT, Report to the Congress: A Study of the High Density Rule, May
    1995.

    Airports Authority Questions Reagan National's Capacity to Accommodate
    Additional Slots

    Airport officials disagree with FAA's estimate because it assumes balanced
    capacity, whereas the airport prefers to measure capacity differently.
    Airport officials stated any measurement of capacity should be based on
    poor weather conditions and Instrument Flight Rules (IFR).^14 FAA and GAO
    believe balanced capacity is a more appropriate method for determining an
    airport's capacity than the method suggested by the airports authority.
    The 1995 DOT study points out that estimating capacity under IFR
    conditions, when the airfield is at the lowest level of available capacity
    does not ensure steady airfield availability. In practice, this approach
    would leave large amounts of airfield capacity unused because a
    significantly higher capacity could be achieved during the better weather
    conditions under which Visual Flight Rules (VFR) apply.^15 According to
    data from DOT, less than 1 percent of air traffic operations at Reagan
    National from November 2005 to November 2006 were delayed because of
    weather conditions.

    Assuming capacity under IFR conditions, airport officials raised two
    issues that would limit growth at the airport. The first issue is the
    potential return of general aviation flights. Airport official said the
    absence of general aviation flights helped the airport to absorb the
    additional slots that were authorized under AIR-21 and Vision 100. After
    September 2001, DHS banned general aviation flights around the national
    capital region.^16 Prior to the September 11 terrorist attacks, the
    airport handled 40,000 to 50,000 unscheduled aircraft flights including
    general aviation, annually.

    ^12"Balanced capacity" refers to the average ability of an airport's
    runways to support a certain number of operations per hour under varying
    weather and wind conditions.

    ^13A large hub enplanes (number of passengers boarded) at least 1 percent
    of all passengers.

    ^14IFR governs procedures for conducting aircraft operations during
    weather conditions when the cloud ceiling is less than 1,000 feet and/or
    visibility is less than 3 miles, requiring certain aircraft separations
    and other operating standards.

    ^15VFR governs procedures for conducting aircraft operations when the
    cloud ceiling is more than 1,000 feet and visibility is 3 miles or more.
    Airport capacity under these conditions is generally significantly higher
    than conditions under IFR.

    Since October 2005, general aviation flights have been allowed to return,
    but only under very restrictive conditions, resulting in very little
    activity at Reagan National.^17 According to airport officials, between
    October 2005 and August 2006, for example, the airport had fewer than 200
    general aviation flights. Figure 3 shows the level of flights of all types
    of aircraft since January 2001. As the figure shows, traffic for all types
    dropped after September 11, 2001, but commercial traffic (commuter and air
    carrier) has basically returned to pre-September 11 levels. By contrast,
    general aviation has not done so.

    ^16Special flight restrictions in the National Capital Region, where
    Reagan National is located, have been in place since September 2001,
    primarily affecting general aviation.

    ^17According to FAA, airports authority, and the general aviation
    community, activity is low due to the DHS security requirements. National
    Business Aviation Association officials told us that the restrictions are
    onerous and force general aviation users to other area general aviation
    airports. As part of this reintroduction plan, DHS is required to conduct
    1-year review of the first phase of the security program. To date, DHS has
    not conducted this review. We also asked if DHS had any time frame for
    further easing of the restrictions, but DHS did not have a date.

    Figure 3: Number of Flights at Reagan National By Aircraft, January 2001-
    August 2006

    According to airport officials, as a result of the significantly
    diminished presence of general aviation, some airside capacity remains,
    but commercial aviation might not be able to use it all. A key reason is
    that commercial aircraft require the longer main runway for takeoff and
    landings, while many general aviation aircraft can use the shorter runways
    for takeoff and landing.

    The second issue airport officials raised as limiting capacity is
    infrastructure limitations. These limitations involve several aspects of
    the airport's infrastructure.

               o Passenger Loading Gates. According to airport officials, the
               number of gates affects the ability to add more slots. Every gate
               at the airport is currently leased to airlines with flights at the
               airport, known as tenant airlines. Airlines wishing to begin
               flights at the airport, known as new entrants, can make
               arrangements with tenant airlines to share a gate, but a tenant
               airline is not required to share its gate if its schedule does not
               allow it.^18 A recent analysis by the airport shows that some
               gates are available during certain parts of the day. For example,
               during October 2006, some gates were unused during both peak and
               nonpeak times, primarily those in the older and less desirable
               terminal A. During the 18-hour operating period, gates in terminal
               A were unused 46 percent of the time, while gates in terminal B/C
               were unused 22 percent of the time. Most of the available time
               periods are during nonpeak hours.

               o Terminal Facilities. Officials said Reagan National has limited
               capacity to expand terminal facilities such as ticket counters and
               baggage handling areas due to the lack of space on the airport
               property. If additional slots are permitted, existing tenant
               airlines might be able to use their existing facilities more
               fully, but new entrant airlines may have difficulty obtaining the
               necessary terminal facilities, especially at peak periods during
               the day. For the recent slots awarded under AIR-21 and Vision 100,
               the airports authority has been able to accommodate new entrants
               with gates and other facilities. However, airport officials said
               that such accommodation has become increasingly difficult.
               Officials from Alaska Airlines, one of the newer airlines at
               Reagan National, told us that its experience in getting the needed
               facilities has been positive.

               o Parking Facilities. According to airport officials, limited
               parking at the airport could make it difficult to accommodate
               additional passengers, resulting from increased slots. Passengers
               have a variety of ways to access the airport terminal, including
               rail transit, taxis, shuttle services, and private car. For those
               who drive their own cars, the airport provides over 7,900 parking
               spaces. According to airport officials, the parking facility is
               running at or near capacity with the existing flight schedule. For
               example, over a 12-month period from November 2005 to October
               2006, two of the four parking garages reached capacity 100 days or
               more. In order to help mitigate some of this pressure, the airport
               plans to add an additional deck to the current parking structure.
               This additional parking deck would provide 850 more spaces and is
               slated for completion in 2010.

    			  Opportunities Exist to Expand Current Capacity at Reagan National

               In two ways, Reagan National's current capacity under the existing
               slot limits could be expanded. First, the airport has available
               slots during certain parts of the day, though they are for less
               desirable times. Of the total 912 daily slots available for
               airlines, 834 are currently allocated and approximately 78 slots
               are unused.^19 Each of these unused slots falls either in the
               early morning (between 6:00 and 7:00) or in the late evening
               (between 9:00 and midnight), which suggests that no existing
               airlines and most likely no new entrants wish to initiate new
               service with a schedule limited to these hours.^20 According to
               airport officials, these slots remain unallocated because there is
               less demand for passenger service during these hours and because
               noise restrictions after 10 p.m. require quieter aircraft.^21

               The second way in which current capacity could be expanded is to
               reduce the number of smaller commuter planes using slots that are
               allocated for larger jet planes that carry more passengers. For
               example, FAA data show that in August 2006, commuter flights used
               nearly double the slots that were designated for commuter flights
               (see table 2). For example, on one route, between Raleigh-Durham
               and Reagan National, DOT data show that in November 2006, two
               carriers operated an average of 26 daily flights using commuter
               jets, which have a maximum capacity of 76 seats, although larger
               jets were designated for the slots used for the commuter flights.
               FAA and airport officials acknowledged that commuter aircraft
               often use air carrier slots, but noted that this practice is
               permissible under federal regulation.

               Table 2: Reagan National Slots Allocated and Used by Aircraft
               Type, August 2006

                       Total monthly number of                Percentage of slots
    Type                              slots Actual flights            utilized
    Air carrier                    22,320^a         13,333                 60%
    Commuter                          6,138         10,681              174%^b

               Source: GAO analysis of FAA tower data.

               aIncludes slot exemptions added under AIR-21 and Vision 100.

               bCommuter reflects both commuter slots and air carrier slots used
               by commuters.

    			  Airlines with Nonstop Service between Beyond-Perimeter Airports
    			  and Reagan National Gained Significant Market Share of Traffic
    			  in Those Markets, While the Effect on Flights to Other Area
    			  Airports Is Not Evident

               Airlines awarded slots for nonstop service between Reagan National
               and airports beyond the 1,250 mile perimeter have been able to
               gain a significant market share of traffic for routes. The price
               they charge for this direct service is generally higher than the
               price for flights requiring a connection. We did not find evidence
               that Dulles or BWI traffic or fares were affected by the beyond
               perimeter flights to Reagan National.

               For each of the six beyond-perimeter airports, the airlines
               awarded slots for nonstop service between Reagan National and
               those airports gained significant market share of passenger
               traffic over a short period of time. For example, in the Denver
               market, Frontier Airlines, had no nonstop passenger traffic
               between Denver and Reagan National before it was awarded two slots
               (one daily roundtrip) in August 2000 and four additional slots
               (two more daily roundtrips) in 2004, and it now has garnered
               nearly 60 percent of the passenger traffic to Reagan National from
               Denver (see table 3). United Airlines, which was awarded two slots
               (one daily roundtrip) in the same market in 2004, now has 15
               percent of the market. Between Frontier and United Airlines, the
               two carriers' nonstop routes have nearly three-fourths of the
               Denver-Reagan National traffic.

               Table 3: Share of Passenger Traffic by Airline

                                                     Before slot  Current average
                                  Year slot award  award average     market share
    Market      Airline      service initiated market share^a  (1^st qtr 2006)
    Denver      Frontier                  2000             0%              59%
                   United                    2004           0.5%              15%
    Los Angeles Alaska                    2004             0%              43%
    Las Vegas   America West              2000             0%              23%
    Phoenix     America West              2000            12%              61%
    Salt Lake   Delta                     2003             0%              59%
    City
    Seattle     Alaska                    2001             0%              62%

               Source: GAO analysis of DOT's origin and destination survey.

               aAverage market share data based on the year before award.

               Airlines with beyond-perimeter slots generally charge higher fares
               than are charged for connecting flights to and from Reagan
               National (see table 4). In half of the cases the nonstop fare was
               on average $25 to $50 higher than the connecting flight fares to
               and from Reagan National. Los Angeles is the only market in which
               the average direct fare is less than the average fare for flights
               with connections.

               Table 4: Average One-way Fares for Nonstop and Connecting Flights
               to Reagan National in Beyond-Perimeter Airports (2005)

    Market         Airline      Nonstop flight Connecting flight
    Denver         Frontier               $159        n/a
                      United                 $237               $151
    Los Angeles    Alaska                 $178              $190
    Las Vegas      America West           $180              $176
    Phoenix        America West           $251              $176
    Salt Lake City Delta                  $250              $201
    Seattle        Alaska                 $247              $226

               Source: GAO analysis of DOT's origin and destination survey.

    			  The Effect of Beyond-Perimeter Slots on Area Airports Is Not Evident

               We did not find evidence that beyond-perimeter flights to and from
               Reagan National affected flights from the same airports to or from
               Dulles or BWI. We analyzed fare and passenger data for flights
               between Dulles and BWI and those airports and for all traffic
               serving Dulles and BWI. In doing so, we observed that the data did
               not produce any distinguishable trends or patterns that would
               indicate that beyond-perimeter slots at Reagan had any effect on
               fares or passenger levels at either Dulles or BWI.

               Overall, Dulles has experienced growth in traffic and a decline in
               fares, while BWI has experienced little overall change in traffic
               or fares from 1999 to 2005. To assess whether the introduction of
               new nonstop beyond-perimeter routes into Reagan National affected
               service between the same six airports and Dulles or BWI, we
               compared the percentage change in average fares and total
               passengers, from 1999 through 2005 for travel between each of the
               six beyond-perimeter airports and Dulles and BWI against the
               overall percentage change in annual average fares and passengers
               for all traffic serving Dulles and BWI. As the figures below
               illustrate, some routes experienced greater or lesser changes
               relative to overall changes at the airport, but no consistent
               trends were apparent.

               o Dulles annual airport passenger traffic grew from 1999 to 2005,
               from 19.7 million to 27 million, a 37 percent increase. We did not
               find any patterns or trends that would suggest that the changes to
               the perimeter rule at Reagan National had affected fares or
               service between Dulles and these six airports. (See figs. 4 and
               5). Airports authority officials stated they had no reason to
               believe that these limited beyond-perimeter awards affected
               Dulles. Rather, the officials noted, the airport's fares and
               passenger traffic were significantly affected by its experience
               with low-fare carrier, Independence Air, which had a large growth
               of flights at Dulles but has now gone out of business.

               For overall passenger traffic between Dulles and the six airports,
               as figure 4 shows, we did not find evidence that the
               beyond-perimeter slots at Reagan National affected passenger
               levels. For example, passenger traffic between Dulles and some
               airports grew faster than overall airport traffic despite the
               introduction of nonstop flights to Reagan National.

    ^18Under DOT grant requirements, airports unable to accommodate an
    airline's request for access to gates or other facilities shall submit a
    report to DOT outlining the nature of the request, why the request could
    not be accommodated, and a time frame when, if any, the airport will be
    able to accommodate the request.

    ^19Includes slot exemptions granted under AIR-21 and Vision 100.

    ^20FAA controls the allocation of available air carrier and commuter slots
    at Reagan National during an 18-hour period every day, from 6:00 am until
    midnight.

    ^21Between 10 p.m. and 7 a.m. air carriers are required to meet the
    airports authority's noise regulation.

    Figure 4: Annual Percentage Change in Passengers for All Dulles Flights
    and Flights between Dulles and Six Beyond-Perimeter Airports, 1999-2005

    Figure 5: Annual Percentage Change in Average Fares for All Dulles Flights
    and Flights between Dulles and Six Beyond-Perimeter Airports, 1999-2005

               o BWI airport passenger traffic grew from 17.4 million in 1999 to
               19.7 million in 2005. But, similar to Dulles, we found no patterns
               or trends in passengers or fares between BWI and the six airports
               that would suggest that changes to the beyond-perimeter rule at
               Reagan National had an impact on flights at BWI. (See figs. 6 and
               7). Officials from BWI stated that changes to the slot and
               perimeter rule did not adversely affect BWI and noted other
               factors, notably US Airways reduction of its commuter service at
               BWI.

    Figure 6: Annual Percentage Change in Passengers for All BWI Flights and
    Flights between BWI and Six Beyond-Perimeter Airports, 1999-2005

    Figure 7: Annual Percentage Change in Average Fares for All BWI Flights
    and Flights between BWI and Six Beyond-Perimeter Airports, 1999-2005

    Agency Comments

    We provided copies of this report to DOT and the airports authority. We
    received comments from the Office of the Deputy Assistant Secretary for
    Aviation and International Affairs, Department of Transportation. DOT
    acknowledges that all available slots at Reagan National Airport are not
    used to maximum effect and agreed that there are a number of reasons for
    this, including curfew restrictions, the commercial viability of slots in
    the early morning or late evening under current regulations, and the
    concentration of the majority of slot holdings among a relatively small
    number of carriers. DOT also recognizes that the underutilization of slots
    is exacerbated by the fact that carriers can use commuter aircraft in
    slots designated for large aircraft but are legally prohibited from using
    large aircraft in slots designated for commuter aircraft. In addition,
    other statutory restrictions, such as the perimeter rule, contribute to
    the underutilization of slots and prevent market forces from producing the
    maximum public benefit from these scarce assets. For example, the early
    departure and late arrival times at other airports are often used by
    airlines to operate overnight "red eye" or other long-haul flights.
    Regulations governing operations at Reagan National, such as the perimeter
    rule, prevent carriers from using such scheduling and fleet assignment
    techniques to maximize the value of slots and facilities at that airport.
    While we do not disagree with DOT's observations, we also recognize that
    any changes in the commuter slot or perimeter rules at Reagan National
    would have competitive implications for airlines and the communities they
    serve. Assessing these effects was beyond the scope of our study. Finally,
    DOT offered technical comments, which we have incorporated as appropriate.

    The airports authority commented that with one exception the report
    accurately reflects the situation at Reagan National. While the airports
    authority believes that the airport can accommodate some additional
    capacity, it is something less than the 4 slots per hour as suggested by
    DOT. The airports authority still disagrees with the basis for DOT's 1995
    estimate of 67 slots per hour under the High-Density Rule, just as it did
    in response to our 1999 report on this matter. The airports authority
    believes that maximum capacity should be based on IFR conditions, that is,
    capacity under adverse weather conditions. Instead, DOT bases its estimate
    of maximum capacity on a mix of IFR and VFR traffic, a methodology that we
    endorsed in 1999 and still do today. We believe, as does DOT, that
    balanced capacity is a superior method for determining the airport's
    capacity because it accounts for the operation of aircraft during all
    weather conditions. The airports authority offered technical comments,
    which we have incorporated as appropriate. The airports authority's
    comments, along with our responses to them appear in appendix II.

    As agreed with your office, unless you publicly announce the contents of
    this report earlier, we plan on no further distribution until 3 days from
    the date of this letter. At that time, we will send copies of this report
    to the Secretary of Transportation and the Administrator of the FAA. We
    will also make copies available to others upon request. In addition, the
    report will be available at no charge on the GAO Web site at
    http://www.gao.gov.

    If you or your staff have any questions about this report, please contact
    me at (202) 512-4803 or dillinghamg@gao.gov . Contact points for our
    Offices of Congressional Relations and Public Affairs may be found on the
    last page of this report. Staff who make key contributions to this report
    are listed in appendix II.

    Gerald L. Dillingham, Ph.D.
    Director, Physical Infrastructure Issues

    Appendix I: Scope and Methodology

    To determine how many additional slots Reagan National Airport can
    accommodate, we analyzed Federal Aviation Administration (FAA) and
    Metropolitan Washington Airports Authority (airports authority)
    operational data, reviewed prior capacity studies, and interviewed
    airports authority, FAA, and Department of Transportation (DOT) officials.
    This analysis included reviewing data on the number and type of aircraft
    using the slots and how this usage was dispersed during the day and by
    which runway. We also reviewed the data contained in the 1995 study done
    by the DOT on the high-density rule and reviewed the basis for DOT's
    capacity estimates. In addition, we analyzed airports authority gate
    utilization data and airline leases to determine the extent to which gate
    space at the airport is unused. Finally, we interviewed officials from the
    DOT, FAA, airports authority and other stakeholders about Reagan
    National's current and future capacity.

    To assess traffic between Washington, D.C., area airports and the six
    beyond-perimeter airports for which nonstop service to Reagan National was
    awarded since 1999, we analyzed DOT's Origin and Destination ticket data;
    we used these data to examine changes in fares and passenger levels
    between Reagan National, Dulles International (Dulles) and
    Baltimore-Washington Thurgood Marshall International Airport (BWI), and
    these airports. We also interviewed airports authority and BWI officials.
    For this analysis, we conducted a historical look at traffic between the
    six airports and the three Washington-Baltimore area airports. We obtained
    the ticket data from BACK Aviation Solutions, a private contractor that
    provides these data to interested parties. We used these data to examine
    trends in passenger and fares to identify any changes in traffic and fares
    between the six beyond-perimeter airports and Reagan National, Dulles and
    BWI airports. To assess the reliability of these data, we reviewed the
    quality control procedures applied to these data, and subsequently
    determined that the data were sufficiently reliable for our purposes. We
    conducted our review from July 2006 through February 2007 in accordance
    with generally accepted government auditing standards.

    Appendix II: Comments from the Metropolitan Washington Airports Authority

    Note: GAO comment supplementing those in the report text appear at the end
    of this appendix.

    See comment.

    The following is GAO's comment on the Metropolitan Washington Airports
    Authority's (airports authority) February 1, 2007, letter.

    GAO Comment

    We believe, as does DOT, that "balanced capacity" is a more appropriate
    method for determining an airport's capacity than the method suggested by
    the airports authority. While the airports authority contends that
    Instrument Flight Rules (IFR) should be used to measure capacity, DOT's
    Technical Supplement No. 3 to its 1995 report points out that IFR airfield
    capacity is indicative of the lowest level of available capacity, and thus
    virtually ensures constant availability of an airfield. In practice, this
    approach would leave large amounts of airfield capacity unused because a
    significantly higher capacity could be achieved during the better weather
    conditions under which Visual Flight Rules apply. According to data from
    FAA, less than 1 percent of all air traffic operations at Reagan National
    from November 2005 to November 2006 were delayed because of weather
    conditions. Because setting the number of slots on the basis of balanced
    capacity reflects both bad and good weather conditions, we did not revise
    our report.

    Appendix III: GAO Contact and Staff Acknowledgments

    GAO Contact

    Gerald Dillingham, Ph.D., (202) 512-4803, or dillinghamg@gao.gov

    Staff Acknowledgments

    In addition to the individual named above, Ed Laughlin, Assistant
    Director; Paul Aussendorf; Jay Cherlow; Dave Hooper; Nick Nadarski; Josh
    Ormond; and Stan Stenersen made key contributions to this report.

    (540141)

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    Highlights of [29]GAO-07-352 , a report to congressional requesters

    February2007

    REAGAN NATIONAL AIRPORT

    Update on Airport's Capacity to Handle Additional Flights and Impact on
    Other Area Airports

    In 1999, GAO reported that Reagan National Airport could accommodate at
    least 36 more slots, which are authorizations from DOT for a takeoff or
    landing. In 2000 and 2003, two federal statutes, known as AIR-21 and
    Vision 100, permitted DOT to award 44 new slots to airlines, 24 of which
    could be used for flights to cities more than 1,250 miles, which was the
    statutorily mandated limit for non stop flights from Reagan National. The
    DOT awards went to airlines serving six cities (Denver, Las Vegas, Los
    Angeles, Phoenix, Salt Lake City, and Seattle). For this year's
    reauthorization of the FAA, GAO was asked for an update on the capacity of
    Reagan National to accommodate additional slots and the effect of relaxing
    the perimeter rule. GAO updated its 1999 study to answer these key
    questions: (1) To what extent can Reagan National accommodate additional
    flights? (2) Since AIR-21 and Vision 100, what changes have occurred in
    market share and fares for flights operating between the six
    beyond-perimeter cities and the three Washington, D.C., area airports? In
    commenting on this report, DOT and the airports authority generally agree
    with our findings but with one exception, the airports authority disagrees
    with DOT's estimate of slots because it disputes their methodological
    assumptions. We believe the department's methodology for estimating
    airport capacity is appropriate.

    Reagan National Airport can accommodate some additional in capacity, but
    airport infrastructure constrains how much can be added. FAA officials
    believe that some additional slots can be added, while airport officials
    have not made an estimate. FAA, using the results of a 1995 DOT capacity
    study, determined that the airport's airside infrastructure (e.g.,
    runways) could accommodate four additional slots per hour. Airport
    officials said they were unsure how many additional slots, if any, the
    airport could accommodate but cited several factors that could limit the
    airport's capacity to absorb additional slots including the limited number
    of gates currently available for loading airplanes and other
    infrastructure constraints. GAO's work shows that even if the number of
    slots is not increased, there is some opportunity toexpand current
    capacity by filling unused slots and increasing the size of aircraft on
    existing slots to increase the number of flights and the number of
    passengers served. Currently, nearly 80 slots are unused because they are
    at early morning or late evening times and airlines have not applied to
    use these time slots. In addition, many of the slots reserved for large
    passenger jets are currently being used by smaller regional jets.

    Airlines awarded slots for direct flights between Reagan National and the
    six beyond-perimeter cities gained significant market share in those
    selected cities, but the effect of these slots on competing flights
    operating between these cities and the other Washington, D.C. area
    airports is not evident. For each of the six beyond-perimeter cities, the
    direct flights to and from Reagan National captured the majority of
    passengers flying between that city and Reagan National. In most cases,
    the airlines charged higher fares than competing connecting flights. GAO
    did not find evidence in passengers or fare data that would indicate that
    the new service between Reagan National and the six beyond perimeter
    cities had substantially affected service from Dulles or
    Baltimore-Washington International airports to these cities.

    Cities Served with Additional Reagan National Airport Slots Permitted
    under AIR-21 and Vision 100, Both beyond and within 1,250 Miles

    References

    Visible links
      29. http://www.gao.gov/cgi-bin/getrpt?GAO-07-352
    *** End of document. ***