    Commercial Aviation: Potential Safety and Capacity Issues
    Associated with the Introduction of the New A380 Aircraft
    (20-APR-07, GAO-07-483).

    Airbus S.A.S. (Airbus), a European aircraft manufacturer, is
    introducing a new aircraft designated as the A380, which is
    expected to enter service in late 2007. The A380 will be the
    largest passenger aircraft in the world, with a wingspan of about
    262 feet, a tail fin reaching 80 feet high, and a maximum takeoff
    weight of 1.2 million pounds. The A380 has a double deck and
    could seat up to 853 passengers. GAO was asked to examine the
    impact of the A380 on U.S. airports. In May 2006, GAO issued a
    report that estimated the costs of infrastructure changes at U.S.
    airports to accommodate the A380. This report discusses (1) the
    safety issues associated with introducing the A380 at U.S.
    airports, (2) the potential impact of A380 operations on the
    capacity of U.S. airports, and (3) how selected foreign airports
    are preparing to accommodate the A380. To address these issues,
    GAO reviewed studies on operational and safety issues related to
    the A380 and conducted site visits to the 18 U.S. airports and 11
    Asian, Canadian, and European airports preparing to receive the
    A380. GAO provided the Federal Aviation Administration (FAA) and
    Airbus a copy of the draft report for review. Both generally
    agreed with the report's findings. FAA and Airbus also provided
    technical clarifications, which were incorporated as appropriate.
    -------------------------Indexing Terms-------------------------
    REPORTNUM:   GAO-07-483
        ACCNO:   A68526
      TITLE:     Commercial Aviation: Potential Safety and Capacity Issues
    Associated with the Introduction of the New A380 Aircraft
         DATE:   04/20/2007
      SUBJECT:   Aircraft
    	     Airlines
    	     Airports
    	     Commercial aviation
    	     Product evaluation
    	     Safety regulation
    	     Safety standards
    	     Standards
    	     Transportation safety
    	     Airbus A380 Aircraft
    	     Boeing 747-400 Aircraft

    ******************************************************************
    ** This file contains an ASCII representation of the text of a  **
    ** GAO Product.                                                 **
    **                                                              **
    ** No attempt has been made to display graphic images, although **
    ** figure captions are reproduced.  Tables are included, but    **
    ** may not resemble those in the printed version.               **
    **                                                              **
    ** Please see the PDF (Portable Document Format) file, when     **
    ** available, for a complete electronic file of the printed     **
    ** document's contents.                                         **
    **                                                              **
    ******************************************************************
    GAO-07-483

         * [1]Results in Brief
         * [2]Background
         * [3]A380 Poses a Number of Potential Safety Challenges at Airpor

              * [4]A380 Offers Some Safety Enhancements But Its Size Presents P

                   * [5]U.S. Airports Typically Not Designed to Handle A380-sized
                     Ai
                   * [6]A380 Produces Greater Wake Turbulence Than Other Aircraft
                   * [7]Greater Number of Passengers to Evacuate from A380
                     Compared
                   * [8]Size of A380 Could also Pose Airport Fire and Rescue
                     Challen

         * [9]A380's Impact on Capacity at U.S. Airports Is Uncertain

              * [10]A380 Designed to Provide Some Capacity Benefits
              * [11]Airports' Planned Operating Restrictions, Increased Flight S
              * [12]Operating Restrictions on the A380 at U.S. Airports Could Ad

                   * [13]Separation Requirements for A380 Could Adversely Impact
                     Airs
                   * [14]A380 Could also Create Gate and Terminal Disruptions

         * [15]Foreign Airports Have Taken Different Approaches to Prepare

              * [16]Adopting Alternative Standards to Accommodate New Large Airc
              * [17]Making Significant Investment in Infrastructure Changes
              * [18]Designing Airports That Allow for New Large Aircraft

         * [19]Concluding Observations
         * [20]Agency Comments and Our Evaluation

              * [21]Asian Airports

                   * [22]Canadian Airports
                   * [23]European Airports

         * [24]GAO's Mission
         * [25]Obtaining Copies of GAO Reports and Testimony

              * [26]Order by Mail or Phone

         * [27]To Report Fraud, Waste, and Abuse in Federal Programs
         * [28]Congressional Relations
         * [29]Public Affairs

    Report to Congressional Requesters

    United States Government Accountability Office

    GAO

    April 2007

    COMMERCIAL AVIATION

    Potential Safety and Capacity Issues Associated with the Introduction of
    the New A380 Aircraft

    GAO-07-483

    Contents

    Letter 1

    Results in Brief 3
    Background 5
    A380 Poses a Number of Potential Safety Challenges at Airports 11
    A380's Impact on Capacity at U.S. Airports Is Uncertain 21
    Foreign Airports Have Taken Different Approaches to Prepare for the A380
    28
    Concluding Observations 33
    Agency Comments and Our Evaluation 34
    Appendix I Objectives, Scope, and Methodology 36
    Appendix II Foreign Airport Summaries 40
    Appendix III Comments by Airbus 62

    Tables

    Table 1: FAA Airplane Design Groups 10
    Table 2: Aviation Experts Interviewed by GAO 37
    Table 3: United States Airports Visited by GAO 38
    Table 4: Asian, Canadian, and European Airports Visited by GAO 39
    Table 5 Bangkok Suvarnabhumi International Airport 40
    Table 6: Beijing Capital International Airport 42
    Table 7: Guangzhou Baiyun International Airport 44
    Table 8: Hong Kong International Airport 46
    Table 9: Singapore Changi International Airport 48
    Table 10: Tokyo Narita International Airport 50
    Table 11: Montreal Trudeau International Airport 52
    Table 12: Toronto Pearson International Airport 54
    Table 13: Amsterdam Schiphol International Airport 56
    Table 14: London Heathrow International Airport 58
    Table 15: Paris Charles de Gaulle International Airport 60

    Figures

    Figure 1: Inaugural Airbus A380 Visit to Singapore Changi Airport 2
    Figure 2: Comparison of the Boeing 747-400, Airbus A380, and Boeing 747-8
    8
    Figure 3: Illustration of the Effects of Wake Turbulence 15
    Figure 4: Illustration of On-approach Landing Separation Distances for
    Aircraft Trailing an A380 and Heavy Aircraft 17
    Figure 5: Fire Fighting Vehicle with Penetrating Nozzle 20
    Figure 6: The Taxilane Object Free Area Requirement for the A380 27
    Figure 7: Baiyun International Airport, Guangzhou, China 32

    Abbreviations

    AACG A380 Airports Compatibility Group
    DOT Department of Transportation
    EASA European Aviation Safety Agency
    FAA Federal Aviation Administration
    ICAO International Civil Aviation Organization
    NAS National Academy of Sciences

    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

    April 20, 2007

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

    The Honorable Thomas E. Petri
    Ranking Member
    Subcommittee on Aviation
    Committee on Transportation and Infrastructure
    House of Representatives

    Airbus S.A.S. (Airbus), a European aircraft manufacturer, is introducing a
    new large aircraft designated as the A380. When the A380 enters
    service--which is currently expected in late 2007--it will be the largest
    passenger aircraft in the world, with a wingspan of about 262 feet, a tail
    fin reaching 80 feet high, and a maximum takeoff weight of 1.2 million
    pounds.^1 The A380 has a double deck and could seat up to 853 passengers,
    depending on the cabin configuration.^2 In comparison, the largest
    passenger aircraft currently in operation, the Boeing 747-400, can seat up
    to 660 passengers. While the A380 will be the first of this new category
    of large passenger aircraft, it will not be the last. For instance, Boeing
    received orders in December 2006 for its 747-8 passenger aircraft, which
    will be in the same category as the A380, and is expected to enter service
    in late 2010.^3123Airbus S.A.S. (Airbus), a European aircraft
    manufacturer, is introducing a new large aircraft designated as the A380.
    When the A380 enters service--which is currently expected in late 2007--it
    will be the largest passenger aircraft in the world, with a wingspan of
    about 262 feet, a tail fin reaching 80 feet high, and a maximum takeoff
    weight of 1.2 million pounds. The A380 has a double deck and could seat up
    to 853 passengers, depending on the cabin configuration. In comparison,
    the largest passenger aircraft currently in operation, the Boeing 747-400,
    can seat up to 660 passengers. While the A380 will be the first of this
    new category of large passenger aircraft, it will not be the last. For
    instance, Boeing received orders in December 2006 for its 747-8 passenger
    aircraft, which will be in the same category as the A380, and is expected
    to enter service in late 2010.

    ^1The freight version of the aircraft, the A380F, has been delayed and the
    first delivery is to be determined.

    ^2The A380 has a typical seating capacity for 555 passengers, but is
    certified for a maximum of 853 passengers. According to Airbus, the
    seating capacity for the A380s currently on order range from about 480 to
    650.

    ^3The freight version of the 747-8 is expected to be delivered in the
    third quarter of 2009; the passenger version of the 747-8 is scheduled for
    delivery beginning in 2010.

    Figure 1: Inaugural Airbus A380 Visit to Singapore Changi Airport

    As of March 2007, Airbus has orders from 14 customers for 156 A380
    passenger aircraft.^4 Air carriers plan to operate the A380 at select
    airports throughout the world, including certain U.S. airports. As a
    result, the A380 must comply with standards set by individual countries
    from around the world. The International Civil Aviation Organization
    (ICAO) promulgates international standards and recommended practices,
    among other things, in an effort to harmonize global aviation standards.
    In the United States, the Federal Aviation Administration (FAA) is
    responsible for regulating the safety of civil aviation and also
    establishes the standards and recommendations for the design and
    development of civil airports.

    You asked us to assess the impact of the Airbus A380 on U.S. airports. In
    May 2006, we issued a report that estimated the costs of infrastructure
    changes that U.S. airports plan to make to accommodate the A380.^5 This
    report discusses (1) the safety issues associated with the introduction of
    the A380 at U.S. airports, (2) the potential impact of A380 operations on
    the capacity of U.S. airports, and (3) how selected foreign airports are
    preparing to accommodate the A380. To address these issues, we reviewed
    FAA and ICAO guidance and standards. We also reviewed studies on
    operational issues related to the A380 and on aircraft fire and rescue
    equipment and tactics, A380 emergency evacuations, pavement strength
    issues for the A380's weight, and other safety-related issues. We also
    analyzed capacity impact studies for some U.S. airports that anticipate
    receiving the new aircraft. We interviewed FAA, ICAO, Airbus, and aviation
    trade association officials. In addition, we conducted semi-structured
    interviews with 17 aviation experts, identified by the National Academy of
    Sciences, to obtain their views on the impact of the A380 on airport
    operations and capacity, and potential safety issues.^6 We conducted site
    visits to the 18 U.S. airports that are making infrastructure improvements
    to accommodate the A380 and 11 Asian, Canadian, and European airports that
    will be receiving the A380. During these site visits, we interviewed
    airport officials, including airport management, air traffic controllers,
    and fire and rescue personnel, and toured the airport facilities. This
    study built upon the work performed for the May 2006 report and therefore
    we performed our work from May 2005 to March 2007 in accordance with
    generally accepted auditing standards. Additional details on our scope and
    methodology can be found in appendix I.

    ^4Fourteen customers have firm orders for 156 A380 passenger aircraft. No
    U.S. air carrier has ordered the A380 aircraft. However, International
    Lease Finance Corporation, a U.S. company, ordered 10 A380 passenger
    aircraft and plans to lease these aircraft to air carriers across the
    world.

    Results in Brief

    The A380 will be the first of a new category of large passenger aircraft
    introduced in the coming years. The size of these aircraft poses a number
    of potential safety challenges for U.S. airports. Most U.S. airports were
    not designed to receive aircraft the size of the A380 and therefore the
    width of their runways and taxiways do not meet FAA safety standards for
    such aircraft. As a result, airports expecting A380 service may need to
    modify their infrastructure or impose operating restrictions, such as
    restrictions on runway or taxiway use, on the A380 and other aircraft to
    maintain an acceptable level of safety. Increased separation between the
    A380 and other aircraft during landing and departure is also required
    because research indicated that the air turbulence created by the A380's
    wake is stronger than the largest aircraft in use today. The A380 is
    equipped with some safety enhancements, such as internal and exterior
    materials designed to reduce flammability. However, it will still pose
    challenges for fire and rescue officials due to its large size, upper
    deck, fuel capacity, and number of passengers. Some fire and rescue
    officials at the airports we visited were confident in their ability to
    respond to an A380 incident. However, several of them identified
    additional equipment, personnel, or training needs that would improve
    their ability to respond to emergencies involving large aircraft, such as
    the A380. Similar concerns were raised for the Boeing 747 aircraft when it
    was introduced to the market, and these potential safety challenges would
    likely be present for other similarly-sized aircraft introduced in the
    future. FAA, ICAO, Airbus, and airports have taken several steps to
    mitigate these safety challenges.

    ^5GAO, Commercial Aviation: Costs and Major Factors Influencing
    Infrastructure Changes at U.S. Airports to Accommodate the New A380
    Aircraft, [30]GAO-06-571  (Washington, D.C.: May 19, 2006).

    ^6The aviation experts we interviewed were not selected randomly.
    Therefore, their views and opinions cannot be generalized to the larger
    population of experts and aviation officials.

    The impact of A380 operations on capacity is uncertain and depends on
    multiple factors. Airport capacity is generally measured by the maximum
    number of takeoffs and landings. The A380 was designed, in part, to help
    alleviate capacity constraints faced by many large airports in the United
    States and around the world as passenger and cargo air traffic continues
    to increase. According to Airbus, the A380 will accomplish this by
    accommodating about 35 percent more passengers and 50 percent more cargo
    volume on the freighter aircraft per flight than aircraft currently in
    use. Thus, the A380 could reduce the number of flights required to carry
    the same number of passengers or the same amount of freight. However,
    potential operating restrictions and the increased separation requirements
    imposed to ensure the safety of the A380 and other aircraft at airports
    and during flight could reduce the number of flights that airports can
    accommodate. Furthermore, gate availability, restricted use of gates
    adjacent to A380 gates, and potential congestion issues could reduce gate
    utilization and flexibility at some airports--which could also lead to
    fewer flights at an airport. The extent to which possible operating
    restrictions, increased separation, and gate utilization impact airport
    capacity would depend on the time of day, the number of A380 operations,
    and the volume of overall airport traffic. Many airport officials and
    aviation experts stated that as long as the number of A380 flights per day
    remains low, the impact of the A380 on airport capacity should not be
    significant, but would likely increase as the number of A380 flights
    increases.

    Selected foreign airports we visited have taken different approaches than
    U.S. airports in preparing for the introduction of the A380. These
    differences reflect the age of the airports, the expected level of A380
    traffic at the airports, and the anticipated economic benefits of the A380
    flights. Foreign approaches include adopting alternative airport design
    standards to accommodate new large aircraft, making significant
    investments in existing infrastructure, and designing airports that allow
    for new large aircraft. For example, airport officials at London Heathrow
    airport indicated that their investment to accommodate the A380 was about
    $885 million, which is a little less than the combined investment of all
    18 of the U.S. airports expecting to receive the A380. The different
    levels of investment made by U.S. and foreign airports reflect the varying
    levels of expected A380 traffic--that is, most of the foreign airports we
    visited expect higher levels of A380 traffic compared to U.S. airports. As
    a result, foreign airports, in particular European airports, are investing
    more in terminal and gate improvements to accommodate the A380 than U.S.
    airports. Another foreign approach is designing airports that allow for
    new large aircraft. For example, seven of the eight Asian and Canadian
    airports we visited were designed for future expansion or were built to
    allow new large aircraft, such as the A380. As a result, these airports
    will not have to impose operating restrictions on the A380 to the extent
    of U.S. airports. In general, by implementing these different approaches,
    officials from the foreign airports we visited do not anticipate that the
    introduction of the A380 will result in delays or disruptions at their
    airports, despite the expected high level of A380 traffic.

    We provided a draft of this report to the Department of Transportation and
    Airbus North America Holdings, Inc. (Airbus) for review and comment. FAA
    officials generally agreed with the report's findings. Airbus generally
    agreed that GAO correctly identified potential safety and capacity issues
    for the introduction of the A380 into service. However, regarding our
    discussion on capacity issues, Airbus expressed concern that we
    overemphasized the operational constraints imposed on or by the A380 and
    should include information on passenger throughput, noting that we use
    only one definition of capacity. Therefore, we provided more balance
    regarding the potential benefits that new large aircraft, such as the
    A380, could provide to help alleviate capacity constrained U.S. airports
    and additional information on the A380's potential impact on passenger
    throughput on the basis of Airbus' comments. FAA and Airbus also provided
    technical clarifications, which were incorporated as appropriate.

    Background

    FAA, airports, and aircraft manufacturers have worked to meet the demands
    of continued growth in passenger and cargo traffic in different ways. FAA
    has worked to improve the capacity and efficiency of the national airspace
    system to accommodate a greater number and variety of aircraft by, for
    example, improving air traffic management systems and implementing
    domestic reduced vertical separation minimums.^7 FAA is also currently
    working on the transformation of the nation's current air traffic control
    system to the next generation air transportation system--a system intended
    to accommodate the expected growth in air traffic.^8 However, the full
    implementation of the next generation air transportation system is years
    away. To accommodate increased traffic, airports have expanded the number
    of available runways and gates to service additional aircraft and in some
    cases new airports have been built. However, airports cannot always
    accommodate increased air traffic by expanding their infrastructure for a
    variety of reasons, including the lack of physical space to build
    additional runways or terminals. Aircraft manufacturers have developed
    larger and more efficient aircraft to meet growing passenger and freight
    demand. For example, Boeing introduced the first wide-body aircraft in
    1969, the 747-100, which significantly changed the aviation market and was
    much larger than currently operated aircraft. According to Airbus, the
    747-100 had roughly two and a half times more seating capacity than the
    largest aircraft operating at the time.^9 Since then, other wide-bodied
    aircraft have been introduced to accommodate the increasing emphasis and
    demand placed on international service.

    The Airbus A380 represents another generational change in aircraft size
    and seating capacity. Specifically, the A380 is much larger than other
    aircraft, with a wingspan of about 262 feet, a tail fin reaching almost 80
    feet high, a maximum takeoff weight in excess of 1.2 million pounds, and
    seating between 555 and 853 passengers. In comparison, the largest
    commercial aircraft in use today, the Boeing 747-400, has a wingspan of
    211 feet, a tail fin about 64 feet high, a maximum takeoff weight of
    875,000 pounds, and can seat between 416 and 660 passengers.^10

    7Domestic reduced vertical separation minimums permit air traffic
    controllers to reduce minimum vertical separation from 2,000 feet to 1,000
    feet at altitudes between 29,000 and 41,000 feet for aircraft that are
    equipped with dual altimeter systems and autopilots. Theoretically, by
    reducing the vertical separation minimums, the airspace system could
    accommodate more aircraft at any given time.

    ^8For more information about the next generation air transportation
    system, see GAO, Next Generation Air Transportation System: Preliminary
    Analysis of Progress and Challenges Associated with the Transformation of
    the National Airspace System, [31]GAO-06-915T  (Washington, D.C.: July 25,
    2006).

    ^9In 1970, the increase in maximum passenger capacity from the Boeing
    707-320B (189 passengers) to the Boeing 747-100 (452 passengers) was about
    139 percent.

    Although the A380 will be the first in the new category of large passenger
    aircraft, it will likely not be the last. In December 2006, Boeing
    announced that it received orders for its 747-8 passenger aircraft. The
    Boeing 747-8 is anticipated to have a wingspan of about 225 feet, a tail
    fin about 64 feet high, a maximum takeoff weight of about 970,000 pounds,
    and typically seats 467 passengers in a 3-class configuration. These
    dimensions place this aircraft in the same category as the A380. (Figure 2
    shows the dimensions of the Boeing 747-400, Airbus A380, and Boeing 747-8
    aircraft.) Airbus anticipates there will be a continued demand for larger
    aircraft that can connect busy and congested hubs in the future. According
    to its analysis, Airbus estimated that new large passenger and freight
    aircraft would make up about 10 percent of the overall fleet from 2004 to
    2023. In contrast, Boeing, while conceding the demand for a small number
    of very large aircraft, projects a greater demand for smaller-sized
    aircraft, such as the Boeing 787, which can provide point-to-point
    service, especially in long distance markets.^11

    10The 747-400 typically seats 416 passengers in a 3-class cabin
    configuration but certified to seat a maximum of 660 passengers. In
    addition, a newer version of the Boeing 747-400 aircraft was approved with
    a maximum takeoff weight of 910,000 pounds through a design change.

    ^11The 787-8 Dreamliner will carry 210 to 250 passengers on routes of
    7,650 to 8,200 nautical miles; the 787-9 Dreamliner will carry 250 to 290
    passengers on routes of 8,000 to 8,500 nautical miles; and the 787-3
    Dreamliner will accommodate 290 to 330 passengers and optimized for routes
    of 2,500 to 3,050 nautical miles.

    Figure 2: Comparison of the Boeing 747-400, Airbus A380, and Boeing 747-8

    The air carriers that have ordered the A380 plan to operate at airports
    throughout the world, including certain U.S. airports. As a result, the
    A380 must comply with aviation standards set by individual countries from
    around the world. ICAO is the international body that seeks to harmonize
    global aviation standards so that worldwide civil aviation can benefit
    from a seamless air transportation network. Its members or contracting
    states, including the United States, are not legally bound to act in
    accordance with the ICAO standards and recommended practices.^12 Rather,
    contracting states decide whether to transform the standards and
    recommended practices into national laws or regulations. In some cases,
    contracting states deviate from the ICAO standards and recommended
    practices, or do not implement them at all.^13 Although ICAO has no
    enforcement powers and only establishes standards and recommended
    practices, air carriers that use airports that do not comply with them may
    be subject to increased insurance costs. The A380 falls under ICAO's
    design standards for the largest aircraft (Code F), which require at least
    60-meter-wide runways (about 200 feet) and 25-meter-wide taxiways (about
    82 feet). In addition, ICAO has also established varying in-flight,
    landing, and takeoff separation standards for the different classes of
    aircraft.

    ^12ICAO has a sovereign body, consisting of 189 contracting states
    (members). Each contracting state is entitled to one vote, and decisions
    are determined by a majority of the votes cast.

    ^13Contracting states are obligated to notify ICAO of differences if they
    choose not to implement the ICAO standards.

    In the United States, FAA, an agency of the Department of Transportation
    (DOT), is responsible for regulating the safety of civil aviation and also
    establishes the standards and recommendations for the design and
    development of civil airports. FAA's role as a regulator is to foster
    aviation safety by overseeing manufacturers and operators to enforce full
    compliance with safety requirements. To this end, FAA must certify any new
    aircraft design before that aircraft can be registered in the U.S. for
    operations by domestic airlines. This design certification is the
    foundation for many other FAA approvals, including operational approvals.
    When domestic aircraft manufacturers request approval of a new aircraft
    design, FAA uses the type certification process to ensure that the design
    complies with applicable requirements or airworthiness standards. Type
    validation is the type certification process that FAA uses for foreign or
    imported products, such as the A380, to ensure that the design complies
    with applicable FAA standards. The A380 was validated by FAA and issued a
    type certificate in December 2006. Also, in March 2007, Airbus completed a
    series of airline route proving and airport compatibility flights, which
    were designed to demonstrate the A380's ability to operate at airports
    around the world. As part of these flights, the A380 visited four U.S.
    airports, including New York John F. Kennedy, Chicago O'Hare, Los Angeles,
    and Washington Dulles International Airports.

    FAA also establishes standards and recommendations for airport planning
    and design. Due to the size of the A380, it is subject to the FAA's design
    standards for the largest aircraft (Airplane Design Group VI standards).
    To be in compliance with these design standards, airports are required to
    have 200-foot-wide runways, 100-foot-wide taxiways, and appropriate
    separation distances.^14 Table 1 shows the wing span criteria for the
    airplane design groups and examples of aircraft that fall into each
    category. These design standards group aircraft by wingspan and set ranges
    for which the aircraft that fall within each group could operate without
    limitations. According to FAA standards, the A380 could operate at U.S.
    airports built to Design Group VI standards without the imposition of
    operating restrictions to the airport or aircraft. However, most U.S.
    airports that anticipate receiving A380 service are not built to Design
    Group VI standards. When airports do not or cannot meet the required FAA
    design standards to accommodate certain aircraft, airport officials can
    apply for Modifications to Standards through FAA. This would allow certain
    aircraft to be operated at airports under certain conditions as long as
    the airport can provide an acceptable level of safety comparable to that
    of an airport meeting Design Group VI standards. The use of Modifications
    to Standards is a process to provide U.S. airports flexibility when the
    required design group standards cannot be met to accommodate certain
    operations, as long as an acceptable level of safety can be maintained.

    ^14FAA Advisory Circular, Airport Design 150/5300-13. According to FAA,
    these design standards are required for new federally-funded construction
    or reconstruction projects at U.S. airports.

    Table 1: FAA Airplane Design Groups

    Design group Wingspan       Examples of aircraft type
    I            < 49 feet      Cessna 152-210, Beechcraft A36
    II           49 - 79 feet   Saab 2000, EMB-120, Saab 340, Canadair RJ-100
    III          79 - 118 feet  Boeing 737, MD-80, Airbus A320
    IV           118 - 171 feet Boeing 757, Boeing 767, Airbus A300
    V            171 - 214 feet Boeing 747-400, Boeing 777, MD-11, Airbus A340
    VI           214 - 262 feet Airbus A380 (in production), Boeing 747-8
                                   (planned)

    Source: FAA.

    After reviewing the design specifications of the A380, FAA issued interim
    guidance in 2003 that allows the A380 to operate at airports with runways
    and taxiways that do not fully meet Design Group VI standards.^15 In order
    to avoid costly or impractical changes to upgrade runways and taxiway
    systems to Design Group VI and be approved for A380 operations under the
    interim guidance, FAA must approve an airport's request for Modifications
    to Standards when the standards are not met. These modifications may
    include A380-specific operational restrictions or special operating
    procedures to ensure that existing non-standard infrastructure is
    providing an acceptable level of safety.

    ^15Engineering Brief 65 allows A380 operations on existing 150-foot-wide
    runways at airports by converting them to 200-foot-wide runways by adding
    25 feet of pavement on each side at a lesser strength than required under
    Design Group VI standards and widening runway shoulders. Engineering Brief
    63A allows the A380 aircraft to operate at airports with 75-foot-wide
    taxiways, if shoulders are widened and operating restrictions may need to
    be imposed.

    A380 Poses a Number of Potential Safety Challenges at Airports

    The A380 will be the first of a new category of large passenger aircraft
    introduced into the national airspace system in the coming years. The size
    of the aircraft poses a number of potential safety challenges for
    airports. Most U.S. airports were not designed to receive aircraft the
    size of the A380 and therefore, the width of their runways and taxiways do
    not meet FAA safety standards. As a result, airports expecting A380
    service need to modify their infrastructure or impose operating
    restrictions on the A380 and other aircraft to assure that safety is
    maintained. In addition, research data suggests that the wake turbulence
    created by the A380 is stronger than any aircraft in use today and would
    require greater separation from other aircraft during landing and takeoff.
    Although the A380 is equipped with some safety enhancements, such as new
    internal and exterior materials designed to reduce flammability and an
    external taxiing camera system to enhance pilot vision on the ground, the
    A380 poses safety challenges for fire and rescue officials due to its
    larger size, upper deck, fuel capacity, and the number of passengers. The
    fire and rescue officials at the airports we visited were confident in
    their ability to respond to an A380 incident, but almost all of them
    identified some equipment, personnel, or training needs that would improve
    their ability to respond to emergencies involving the A380. Similar
    concerns were raised for the Boeing 747 aircraft when it was introduced to
    the market, and these potential safety challenges would likely be present
    for other similarly-sized aircraft introduced in the future. FAA, ICAO,
    Airbus, and airports have taken a number of steps to mitigate potential
    safety challenges posed by the A380.

    A380 Offers Some Safety Enhancements But Its Size Presents Potential Safety
    Challenges for Airports

    The A380 offers air carriers and airports several safety enhancements over
    existing aircraft. For example, it has a cockpit with the latest advanced
    displays and avionics, and is equipped with an external taxiing camera
    system to assist flight crews in keeping the aircraft in the center of
    taxiways when moving on the airfield.^16 The cockpit was also designed to
    be much lower to the ground than other large aircraft to provide the
    flight crew better visibility. Other technical advances include the
    aircraft's new external and internal materials that are designed to reduce
    flammability. A new material called Glare that is highly resistant to
    fatigue, is used in the external panels for the upper fuselage and
    provides a longer period of time preventing fire from penetrating into the
    passenger cabin--about 15 minutes compared to about a minute for standard
    aircraft aluminum. In addition, thermal acoustic insulation blankets,
    designed to extend the time before an external fire penetrates the
    fuselage, will be used inside the A380.^17 Combined, these materials could
    provide additional time for evacuation by delaying the entry of fire into
    the cabin. The interior materials used in the A380 will also have
    decreased flammability properties and the aircraft will be equipped with
    enhanced fire and smoke detection systems.

    ^16Airbus refers to this camera system as the "external and taxiing camera
    system" or ETACS.

    However, the size of the A380 also presents several potential safety
    challenges. These challenges include accommodating the A380 at airports
    that were not designed for aircraft as large as the A380, ensuring that
    the air turbulence caused by the A380 does not impact the flight of other
    aircraft, evacuating large numbers of passengers from the A380, and
    ensuring that airports have the necessary fire and rescue capabilities
    available.^18 These issues would likely be present for other
    similarly-sized aircraft that may be introduced in the future. FAA, ICAO,
    Airbus, and airports have taken several steps to mitigate these
    challenges.

      U.S. Airports Typically Not Designed to Handle A380-sized Aircraft

    The size of the A380 presents a safety challenge because most U.S.
    airports were not built to accommodate such large aircraft. FAA's design
    standards are intended to ensure the safety of the aircraft and passengers
    at the airport. For example, FAA's Design Group VI standards, which are
    applicable for the largest aircraft, including the A380, require that
    airports have 200-foot-wide runways. According to FAA officials, this
    standard helps ensure that pilots can safely operate large aircraft like
    the A380. Although the design standards do not govern aircraft operations,
    aircraft operators must seek FAA's approval for certain aircraft to use
    facilities and infrastructure that do not meet standards and demonstrate
    to FAA that an acceptable level of safety is maintained.^19 A few
    airports, such as Dallas-Fort Worth, Denver, and Washington Dulles
    International Airports, meet some design standards for A380-sized
    aircraft; however, no U.S. airport is completely built to those standards.

    ^17Thermal acoustic insulation is a fiberglass-type material used
    throughout the fuselage of commercial aircraft for reducing cabin noise
    from external sources and for maintaining comfortable cabin temperatures.
    FAA will begin requiring this improved insulation on all newly produced
    aircraft beginning in September 2009.

    ^18Aircraft create turbulence that forms behind them as they pass through
    the air.

    To address this issue, airports have made or are making infrastructure
    changes to safely accommodate the A380. In May 2006, we reported that 18
    U.S. airports were making preparations to receive the A380 and estimated
    that it would cost about $927 million to upgrade their infrastructure.^20
    About 83 percent of the costs reported by airports were identified for
    runway or taxiway projects. Most projects widened existing runways or
    taxiways and, in some cases, relocated taxiways to increase separation.
    The remaining costs were for changes at gates, terminals, or support
    services. Although these changes to airport infrastructure were driven by
    the introduction of the A380, they will also benefit current aircraft and
    other new large aircraft that may be introduced in the future. Further,
    officials at some airports told us that the economic benefits from having
    A380 service at their airport will outweigh the costs associated with the
    infrastructure changes needed to accommodate the aircraft.

    To safely accommodate the A380, many of the U.S. airports we visited that
    expect to receive this aircraft have requested Modifications to Standards
    from FAA.^21 The use of Modifications to Standards is an established
    process to provide U.S. airports flexibility when the required design
    group standards cannot be met to accommodate certain operations as long as
    an acceptable level of safety can be maintained. For example, if the
    separation between a runway and a taxiway at an airport is less than the
    established standards, a Modification to Standards can be granted by FAA
    for not meeting the current standards when federal funds are being used
    for a planned improvement to that runway or taxiway and FAA determines
    that it is operationally safe. According to FAA, the use of Modifications
    to Standards at airports does not compromise safety. This process has been
    used by U.S. airports that do not fully meet the design standards for
    certain sized aircraft. However, FAA officials said the Modification to
    Standards process being applied to the A380 is seldom used because this
    process generally is not used to limit operations of a particular aircraft
    at an airport.^22

    19To illustrate, FAA officials said that some Design Group VI category
    aircraft, such as the freighter Antanov 225 and military C-5A aircraft,
    operate on some 150-foot-wide runways in the U.S. today. However, airports
    that occasionally accommodate these aircraft and are not compliant with
    Design Group VI standards must request procedural waivers from FAA. FAA is
    still in the process of conducting an operational evaluation for the A380,
    expected to be completed by June 2007, and has not determined all
    operational restrictions.

    ^20GAO, Commercial Aviation: Costs and Major Factors Influencing
    Infrastructure Changes at U.S. Airports to Accommodate the New A380
    Aircraft,  [32]GAO-06-571 (Washington, D.C.: May 19, 2006).

    ^21Modification to Standards means any change to FAA standards, other than
    dimensional standards for runway safety areas, applicable to an airport
    design, construction, or equipment procurement project that results in
    lower costs, greater efficiency, or is necessary to accommodate an unusual
    local condition on a specific project, when adopted on a case-by-case
    basis.

    Of the 18 U.S. airports we visited, 11 have applied for Modifications to
    Standards that would allow them to operate the A380. Of the remaining
    seven airports, officials indicated they were unsure if such modifications
    will be needed and will decide whether to request Modifications to
    Standards after FAA decides whether an A380 can safely operate on a
    150-foot-wide runway or whether a 200-foot-wide runway will be required.
    According to FAA officials, a decision on runway width is expected in late
    summer of 2007.^23

    Finally, the airports also anticipate implementing some type of operating
    restrictions in order to safely accommodate the A380. Specifically, all 18
    U.S. airports we visited anticipated imposing some type of operating
    restrictions on the A380 or on other aircraft that operate around the
    A380. The anticipated operating restrictions would generally affect runway
    and taxiway use. For example, officials at San Francisco Airport plan to
    restrict the movement of certain aircraft from using sections of parallel
    taxiways when an A380 is taxiing to and from the terminal because the
    taxiways are not far enough apart to meet the standards for taxiway
    separation required to safely operate the A380. FAA officials noted,
    however, that FAA is still conducting an operational evaluation for the
    A380, and therefore has not determined what, if any, operational
    restrictions for the A380 will be required. Thus, airports' planned
    operating restrictions are subject to change when FAA completes its
    operational evaluation, which is expected this summer. FAA officials said
    that, FAA will perform an operational evaluation similar to the evaluation
    used for the A380 for the Boeing 747-8 and other large aircraft when they
    enter service.

    ^22FAA officials said the Modification to Standards process is not
    generally used to govern operations of a particular aircraft at an
    airport. Rather, the process is generally used for the justification of an
    investment of federal funds in construction projects for facilities that
    do not fully meet design standards for an aircraft design group and not
    necessarily issued for a particular aircraft.

    ^23As discussed later in the report, the European regulatory counterpart
    to FAA has certified the A380 to operate on 150-foot-wide (45 meters)
    runways.

      A380 Produces Greater Wake Turbulence Than Other Aircraft

    The wake turbulence of the A380 and other large aircraft can create safety
    issues if appropriate wake turbulence separations are not applied. Wake
    turbulence is created behind aircraft and the strength of the turbulence
    is dependent on the wingspan, the weight of the aircraft, and its speed.
    In general, the bigger the aircraft, the greater the wake created. Wake
    turbulence can affect following aircraft during landing, takeoff, and
    in-flight. Figure 3 illustrates how wake turbulence is created by an
    aircraft and the direction it travels. FAA and ICAO have adopted standards
    for keeping aircraft separated from each other during landing, takeoff,
    and in-flight to avoid the adverse effects of wake turbulence.

    Figure 3: Illustration of the Effects of Wake Turbulence

    Note: Flight tests have shown that the wake vortices from larger aircraft
    extend downward at a rate of several hundred feet per minute, slowing in
    descent and diminishing in strength with time and distance.

    ICAO and FAA have studied whether the A380 needs greater separation than
    current standards require and determined that the A380 produces stronger
    wake turbulence than any aircraft in use today. On the basis of this data,
    ICAO issued new guidance on the separation required between the A380 and
    other aircraft during landing, takeoff, and in-flight in October 2006.
    ICAO officials acknowledged that the guidance could be more conservative
    than the final standards, noting that the initial flight separation
    standard for the Boeing 747-400 aircraft was also set conservatively, but
    later reduced. The separations for the A380 could be changed in the future
    on the basis of operational experience of the aircraft. However, while
    this guidance is in effect, there will be somewhat longer intervals for
    departures following an A380 than currently exist and greater distances
    between aircraft following an A380 during landings. Figure 4 illustrates
    the interim flight separation standards for the A380 compared to other
    heavy category aircraft, such as the Boeing 747-400 aircraft.^24

    24"Heavy" is an aircraft category used by air traffic officials when
    applying wake turbulence separations. The heavy category represents
    aircraft that weigh more than 299,800 pounds (136,000 kilograms).

    Figure 4: Illustration of On-approach Landing Separation Distances for
    Aircraft Trailing an A380 and Heavy Aircraft

    Note: Heavy, medium, and light are aircraft categories used by air traffic
    officials when applying wake turbulence separations. The heavy category
    represents aircraft that weigh more than 299,800 pounds (136,000
    kilograms); medium for aircraft that weigh more than 15,430 pounds (7,000
    kilograms) but less than or equal to 299,800 pounds; and light for
    aircraft that weigh less than or equal to 15,430 pounds.

    One nautical mile is equal to 1.15 miles.

      Greater Number of Passengers to Evacuate from A380 Compared to Other Aircraft

    Another potential safety challenge is the large number of passengers to
    evacuate from an A380 during an emergency. The A380's maximum seating
    configuration can accommodate up to 853 passengers--193 more than carried
    by the maximum seating configuration of the Boeing 747-400. To obtain type
    certification, aircraft manufacturers must demonstrate that the aircraft
    can be evacuated within 90 seconds.^25 In March 2006, Airbus conducted the
    emergency evacuation demonstration for the A380. During the demonstration,
    853 passengers and 20 crew members were successfully evacuated from the
    aircraft within 78 seconds. Airbus officials credited the design of the
    A380 for the successful evacuation demonstration.

    A related concern of FAA officials, airport fire and rescue officials, and
    some experts with whom we spoke is how to handle the large numbers of
    people around the aircraft after evacuation is complete. In particular,
    some fire and rescue officials were concerned about their ability to
    control the crowd and how to treat injured people on-site prior to being
    moved to nearby hospitals. To address these concerns, airport fire and
    rescue officials are reexamining their equipment needs and emergency plans
    for treating a greater number of passengers. FAA guidance states that an
    airport's emergency plans should, to the extent practical, provide for
    medical services, including transportation and medical assistance, for the
    maximum number of people that can be carried on the largest aircraft that
    an airport reasonably can be expected to serve.^26 However, in most cases,
    airport fire and rescue officials said that they plan for reasonable
    worst-case scenarios in which about 50 percent of the passengers can be
    treated for injuries on the largest aircraft operated at the airport.

      Size of A380 Could also Pose Airport Fire and Rescue Challenges

    The advent of the A380 also may introduce a number of new fire and rescue
    safety issues for airports. For example:

    ^2514 CFR Sec. 25.803.

    ^26FAA Advisory Circular, Airport Emergency Plan 150/5200-31A.

               o The A380 can hold almost 82,000 gallons of fuel, compared to
               about 57,300 gallons carried by the Boeing 747-400. While an A380
               or a 747-400 may not be fueled to maximum capacity, the
               proportional increase in fuel that could be on the A380 compared
               to that of a 747-400 means that fire fighters will need additional
               water and extinguishing agent to contain and extinguish a fire.
               Although the A380 will have Glare material, designed to increase
               the amount of time it takes before a fire can enter the cabin, it
               will not be installed on the underside of the aircraft where a
               fire caused by leaking fuel is most likely to occur, according to
               a FAA official. Thus, assuring that airports have sufficient
               extinguishing agent is important.
               o Airports may not have the necessary equipment to access the
               upper deck of the A380 for fire fighting or evacuation purposes.
               Most fire and rescue officials at the airports we visited
               indicated that they do not have the equipment to access the upper
               deck of the A380 for fire fighting or evacuation purposes.
               Although the height to the upper deck door of the A380 is
               essentially the same as that of the 747, according to a FAA
               official, the need to invest in such equipment now becomes more
               critical for the A380 because more passengers are seated on the
               upper deck of the A380.
               o The A380 was designed with 16 evacuation slides and the longest
               slide, on the upper deck, will extend out about 50 feet from the
               aircraft. This increased number of slides could improve passenger
               evacuation, but according to some fire and rescue officials we
               interviewed, the number and position of the A380's slides could
               also impede the fire and rescue vehicles' access to the aircraft
               and making it more difficult to suppress the fire.

               Several airport fire and rescue officials with whom we spoke were
               confident they could respond to an A380 incident with their
               current resources. However, most stated that they were evaluating
               personnel, equipment, and training needs to ensure that the
               airport was adequately prepared for the A380. Fire and rescue
               officials from several airports stated that the introduction of
               A380-sized aircraft will only increase their needs for additional
               personnel and equipment. For example, officials from some airports
               told us that they are planning to add a vehicle with a penetrating
               nozzle with a higher reach that can inject fire extinguishing
               agent into the upper deck of the A380. Figure 5 shows a fire
               fighting vehicle with a penetrating nozzle fully extended and
               elevated to its maximum height of 50 feet.

    Figure 5: Fire Fighting Vehicle with Penetrating Nozzle

    To help address these safety concerns, FAA has begun evaluating the need
    to update its airport fire and rescue safety guidance for new large
    aircraft, such as the A380. Officials from FAA's Technical Center said
    that the guidance needs to be updated to reflect the A380's vertical
    height, high numbers of passengers, second passenger deck, and increased
    fuel loads.^27 FAA is also researching the need to increase the amount of
    water and extinguishing agent needed to respond to an A380 incident. In
    addition, FAA is studying the quantity of fire-suppressing agents needed
    to combat fires on new large aircraft and double-deck aircraft--taking
    into account the vertical dimension of the A380. However, FAA officials
    noted that most of the airports expecting to receive A380 flights
    currently exceed the vehicle and extinguishing agent requirements
    applicable to the aircraft and therefore would likely already meet new
    standards. FAA researchers are also helping to develop a penetrating
    nozzle on a 65-foot boom that would provide greater extension and a higher
    reach to inject fire extinguishing agent into the upper deck of the A380.

    ^27FAA performs firefighting research at the FAA William J. Hughes
    Technical Center (Technical Center) to improve the effectiveness or better
    use current firefighting equipment to provide an increase in passenger
    survivability under the extreme conditions of a post-crash fire.

    A380's Impact on Capacity at U.S. Airports Is Uncertain

    The impact of the A380 on the capacity of U.S. airports is uncertain and
    would depend on multiple factors. Airport capacity is generally measured
    by the maximum number of takeoffs and landings that can occur within a
    given period of time. The A380 could increase passenger capacity at
    airports because it can carry more passengers than current aircraft and
    fewer flights could be used to accommodate air traffic growth. However,
    potential operating restrictions and the increased flight separation
    requirements could adversely impact capacity by limiting the number of
    flights that airports can handle. Further, the effects of gate
    restrictions, such as the number of gates available for A380 use and
    restricted use of gates adjacent to the A380, and terminal congestion from
    the increased number of passengers will need to be evaluated and could
    cause delays to the A380 and other aircraft. The extent of disruptions and
    delays caused by possible operating restrictions, increased separation
    requirements, and gate restrictions would depend on the time of day, the
    number of A380 operations, and the volume of overall traffic. Many airport
    officials stated that as long as the number of A380 operations per day
    remains low, the impact of the A380 on airport capacity--even with
    operating restrictions, increased separation requirements, and gate
    restrictions--should not be significant; however, as the number of A380
    operations increases, the potential for an adverse impact also grows.

    A380 Designed to Provide Some Capacity Benefits

    The A380 was created, in part, to help alleviate airport capacity
    constraints caused by the continued growth in passenger and cargo air
    traffic. Air traffic in the U.S. increased by 35 percent from 1991 to
    2001. Despite the low passenger travel following the events of September
    11, 2001, FAA forecasts this growth to continue--estimating that air
    traffic will triple over the next 20 years. The current and projected
    growth in air traffic will also include new classes of aircraft, such as
    the A380. This greater diversity of aircraft--in terms of size, speed, and
    operating requirements--will add to the demands placed on the national
    airspace system and airports.

    Historically, airlines have addressed increased passenger demand by simply
    adding more flights and airports by expanding infrastructure. However,
    these are not viable options when airport runway infrastructure cannot be
    expanded and the volume of landings and departures at an airport exceeds
    the limits to operate efficiently. For example, in August 2006, FAA
    proposed a rule to limit the number of flights at New York's LaGuardia
    Airport to reduce the level of congestion and delays. To offset the limit
    on flights, the rule encourages the use of larger aircraft at the airport
    to accommodate increased passenger demand. By using larger aircraft, the
    airport could accommodate more passengers with fewer or with the existing
    number of daily flights. Similarly, London's Heathrow airport plans to
    increase its passenger capacity without increasing the number of daily
    flights by expecting as many as one of every 10 flights to be an A380 by
    2020.

    According to Airbus, the A380 will help alleviate capacity constraints by
    accommodating more passengers and freight on each flight than any other
    aircraft in use today. Airbus officials estimate that the A380 can carry
    at least 35 percent more passengers and the A380 freighter will carry 50
    percent more cargo volume per flight than other aircraft currently in use.
    In addition, the A380 can fly up to 8,000 nautical miles non-stop,
    enabling airlines to carry more passengers for greater distances than the
    current largest aircraft. Thus, the A380 could transport more people or
    freight greater distances with the same number--and possibly
    fewer--aircraft than are used currently. At congested airports, when A380
    aircraft are used, airlines could meet anticipated growth in air travel
    without having to schedule additional flights.

    In addition to alleviating capacity constraints, Airbus and airport
    officials told us that the potentially greater number of passengers on
    each A380 compared to currently used aircraft could translate into
    economic benefits for the airports and local communities that would
    receive them. Specifically, airport expansion to accommodate anticipated
    growth in air travel, including the larger volume of passengers that the
    A380 could bring to an airport, could contribute to an area's economic
    growth.^28 According to Airbus and some airport officials, if airports
    received more passengers, airports will benefit from greater parking
    revenues, passenger facility charges, retail and restaurant sales, and
    other services. In addition, if A380 service increases the number of
    passengers flowing in and out of the airport, that increase could
    translate into more job opportunities at the airport and in the community.
    Studies have indicated that economic benefits can accrue to local
    economies as a result of activity at airports through expansion projects,
    directly and indirectly, in terms of additional jobs or increased salaries
    and wages. Therefore, the economic impact of A380 service on local
    communities near airports could be substantial, but it is not certain
    because the degree to which passenger volume would increase is uncertain.
    Furthermore, any economic benefits realized by airports and local
    communities as a result of airport improvements to enhance capacity,
    including accommodating A380 service, may represent transfers of economic
    activity from one airport or community to another.^29

    28Simply providing more seats on an aircraft does not necessarily equate
    to more passengers being carried. However, if more passengers travel on
    the routes that A380s will be used than can be accommodated with current
    capacity, or if the introduction of the A380 leads to lower airfares, then
    airports receiving A380 service might also see an increase in the number
    of passengers.

    Airports' Planned Operating Restrictions, Increased Flight Separation
    Requirements, and Gate Limitations Could Offset Some Capacity Benefits

    Airports' planned operating restrictions and separation requirements
    resulting from A380 ground and flight operations, as well as the reduction
    in gate utilization and flexibility could offset some of the capacity
    gains anticipated as a result of the aircraft at U.S. airports.^30
    Potential operating restrictions and the increased separation requirements
    imposed to ensure the safety of the A380 and other aircraft at airports
    and during flight could result in a reduction in the number of flights
    that airports can accommodate. Furthermore, gate availability, restricted
    use of gates adjacent to A380 gates, and potential congestion issues could
    reduce gate utilization and flexibility at some airports--which could also
    lead to fewer flights at an airport. According to most of the airport
    officials and experts we interviewed, the extent to which operating
    restrictions, increased separation requirements, and gate utilization
    would impact capacity would depend on the volume of A380 traffic, the time
    of day, and the volume of overall air traffic.

    ^29Economic transfers can represent real benefits for airports making the
    improvements, but from a national perspective they may not represent net
    benefits because some economic activity may be simply transferred from
    other airports.

    ^30Any restrictions and requirements that limit potential capacity gains
    will also limit the economic benefits to the airports and local
    communities.

    Operating Restrictions on the A380 at U.S. Airports Could Adversely Impact
    Capacity

    Most U.S. airports we visited that expect to receive the A380 are not
    designed for aircraft of this size and, therefore may need to implement
    operating restrictions to safely accommodate the A380. These restrictions
    can come in many forms--from restricting the A380 to certain runways and
    taxiways to stopping the movement of other aircraft when the A380 is in
    close proximity. In addition some airports have designated specific routes
    for the A380 to use when landing and taxiing. These specific routes are
    needed because the wingspan of the A380 prevents the aircraft from passing
    various objects on the airfield, such as buildings, without violating the
    spacing requirements established by FAA. Therefore, airports expecting
    large aircraft service like the A380 will have to evaluate taxi routes to
    ensure required distances from other objects are maintained--which is a
    normal procedure for airports that receive larger aircraft.

    The effect of these operating restrictions have not been determined, but a
    potential impact is that airports may not be able to handle as many
    landings and departures in a given time period. For example, at one
    airport, airport officials said landings and departures could not be
    performed on one runway while an A380 is taxiing to or from the runway for
    about two miles on the adjacent taxiway. According to the air traffic
    controllers, this would disallow use of that runway for about three
    minutes. Even delays of a few minutes at an airport could increase the
    operating costs of air carriers. For example, FAA officials from FAA's
    Technical Center estimated that one minute of delay would cost an air
    carrier at San Francisco airport about $57, or about $3,400 per hour.
    Similarly, the A380 may need to follow a designated route to and from the
    runway--and not necessarily the most efficient route--potentially delaying
    other aircraft that may need to wait for the A380 to complete its
    maneuvers. As a result, fewer aircraft could be able to access runways to
    land and depart in a given period. Most experts and air traffic
    controllers said the cumulative effect of these restrictions could reduce
    the number of flights at a busy airport because delays exacerbate airport
    congestion and make the job of managing air traffic more difficult. In the
    long-term, airports could work with airlines to schedule A380 aircraft
    during off-peak times to lessen this effect. However, airlines may be
    reluctant to schedule these flights during off-peak hours because it might
    be contrary to their international flight time slots to which A380s will
    likely be largely used. Regardless, even if schedules were adjusted to
    account for the operating restrictions, the additional time associated
    with the restrictions could result in the airport being unable to
    accommodate as many flights as it could if not for the A380 operating at
    the airport.

    According to many airport officials and aviation experts with whom we
    spoke, the extent of disruptions and delays caused by the operating
    restrictions would depend on the time of day, the number of A380
    operations, and the volume of overall traffic. Many airport officials and
    experts we interviewed stated that as long as the number of A380 flights
    per day remains low, the impact of the operating restrictions should not
    be significant; however, as the number of A380 flights increases, the
    potential impact would also grow.

      Separation Requirements for A380 Could Adversely Impact Airspace and Airport
      Capacity

    The increased separation requirements for the A380 could adversely impact
    airspace and airport capacity. Under ICAO's current guidance, separation
    distances are based on the size of the aircraft following an A380, with
    lighter aircraft requiring a greater separation. To illustrate the
    increased separation requirements for the A380 on approach for landing,
    there must be a 6 nautical-mile separation between a heavy category
    aircraft, such as a 747-400, trailing an A380. In comparison, a heavy
    aircraft trailing another heavy aircraft needs to be separated by 4
    nautical miles. The cumulative effect of this extra separation could
    adversely impact airspace capacity by reducing the number of flights that
    could be accommodated in the airspace during a given time frame, according
    to most of the experts we interviewed. In addition, the additional
    separation between the A380 and other aircraft during takeoff and landing
    can reduce the number of arrivals and departures at an airport, which
    could also negatively impact airport capacity. Airbus officials, however,
    noted that such reductions in the number of arrivals and departures will
    be countered by the potential increase in the number of passengers per
    A380 flight--that is, the number of airplane operations may decrease, but
    the number of passengers arriving and departing from the airport may
    increase.

    Most of the experts we interviewed generally agreed that the increased
    flight separations required for the A380 could have a significant impact
    on airport capacity, but noted the magnitude of the impact would depend on
    timing of flights and volume of A380 traffic. Most airport officials at
    the airports we visited indicated that they expected few A380 flights and
    therefore, did not anticipate that the additional separation or ground
    traffic issues would have a significant impact. FAA's analysis of capacity
    at a few airports expecting to receive the A380 supports these views.^31
    For example, using ICAO's current separation standards--which increase
    separation by the size of the aircraft following an A380--FAA projected
    that A380 operations at the San Francisco airport in 2015 would add no
    increase in delays given the few A380s expected. However, given the larger
    number of expected A380s at New York's JFK airport, A380 operations would
    increase the total annual delay about 2 percent in 2015 over the expected
    total annual delay without A380 service. In addition, FAA projected that
    as the number of A380 flights increase by 2025, an increase of about 1
    percent in the total annual delay can be expected at San Francisco airport
    and almost 2 percent at New York's JFK airport over the expected hours of
    total annual delay without A380 service. The projected cost to airlines in
    2025 for A380-related delays at San Francisco airport would be $11.6
    million and $59.2 million at JFK airport.^32 According to Airbus
    officials, however, the analysis does not reflect potential cost savings
    to airlines due to the reduction in the number of arrivals and departures
    and as previously noted the potential increase in the number of passengers
    per A380 flight. Without an integrated analysis that includes passenger
    throughput, we are unable to determine the net effect.

    ^31This analysis was conducted at FAA's Technical Center, which performs
    capacity studies for airports. These studies consider a variety of
    factors, such as the actual traffic at the airport, airlines' projections
    of future flights, and airport improvements such as new runways.

      A380 Could also Create Gate and Terminal Disruptions

    The size of the A380 may also impact gate utilization in several ways.
    First, the A380 will need to use gates with at least two passenger loading
    bridges. The A380--similar to the 747-400--will be limited to using
    specific gates because not all gates have two bridges. Similarly, many
    terminal areas at U.S. airports where traffic bottlenecks and congestion
    are common will not have the necessary clearances for an A380 to operate
    on taxilanes between or beside other aircraft (see fig. 6). Thus, the A380
    will be limited to certain gates. Second, the size of the A380 could
    restrict the size of the aircraft at the adjacent gate, or close the gate
    entirely. Third, loading and unloading passengers and baggage on an A380
    could take longer because of the increased number of passengers on the
    aircraft. As a result, the A380 could tie up a gate longer than other
    aircraft, reducing the number of aircraft that could be served by the gate
    in a given period. According to most of the experts with whom we spoke
    said these gate issues can reduce flexibility in airport operations and
    lead to delays. However, Airbus officials noted that the interior cabin
    design of the A380 and the use of two bridges should allow turnaround
    times of about 90 minutes--which is similar to the turnaround time of the
    747-400.

    ^32The studies evaluated the potential impact of new large aircraft at San
    Francisco and New York JFK airports in 2006, 2015, and 2025 with and
    without the introduction of the A380, and projected that A380 traffic
    would increase delays by 2025. The assumptions used in the capacity
    studies included the anticipation that necessary infrastructure
    improvements would be in place by 2006, air traffic demand including fleet
    mix are established before and after the introduction of the A380, and
    operational procedure restrictions needed were identified. In addition,
    the anticipated A380 flights used for the two airports were nine daily
    flights in 2015 and 16 in 2025 for San Francisco; and 14 daily flights in
    2015 and 52 in 2025 for JFK.

    Figure 6: The Taxilane Object Free Area Requirement for the A380

    The increased passenger load carried by an A380 could strain current
    airport terminal facilities and operations, such as check-in, baggage
    claim, and customs and immigration services. For example, most experts we
    interviewed said that a surge in passengers created by an A380 going
    through airport check-in procedures could not only delay the A380
    passengers but also passengers of other flights. In addition, the amount
    of baggage from an A380 flight to load or unload could lead to delays for
    passengers and other aircraft waiting at the gate. One expert noted that
    the delays caused by the new security procedures introduced in the summer
    of 2006--which resulted in an increase in checked baggage for a period of
    time--illustrates how surges in the amount of baggage loaded and unloaded
    can lead to delays and congestion. However, airport officials generally
    had no concerns with the A380's impact on airport terminal facilities and
    operations. Additionally, a few experts told us that the A380's
    incremental increase in passengers and baggage over that of a 747-400
    would have little impact on terminal operations, especially at airports
    that will only receive a few A380 flights per day.

    As mentioned earlier, the next generation air transportation system is
    being designed to accommodate as much as 3 times the current air traffic,
    including the introduction of new large aircraft such as the A380. The
    planning underway involves so-called "curb-to-curb" initiatives that are
    designed, in part, to address the potential capacity and gate disruption
    issues discussed above. Since the planning and implementation phases of
    the next generation system remain in the early stages, however, it is
    currently unclear the extent to which the initiatives will effectively
    mitigate those potential issues.

    Foreign Airports Have Taken Different Approaches to Prepare for the A380

    Selected foreign airports we visited have taken different approaches to
    prepare for the introduction of the A380. These differences reflect the
    age and the expected level of A380 traffic at the airports--and, in some
    cases, the anticipated economic benefits of the A380 flights. The
    different approaches include adopting alternative airport design standards
    to accommodate new large aircraft, making significant investment in
    existing infrastructure, and designing airports that allow for new large
    aircraft. By implementing these approaches, officials from the foreign
    airports we visited do not anticipate that the introduction of the A380
    will result in delays or disruptions at their airports, despite higher
    levels of expected A380 traffic compared to most U.S. airports because
    these airports will not have to impose operating restrictions on the A380
    to the extent of U.S. airports.

    Adopting Alternative Standards to Accommodate New Large Aircraft

    The A380 Airport Compatibility Group (AACG), which includes four European
    aviation authorities, agreed to adopt adaptations of the ICAO standards
    for A380 operations at existing airports that do not currently meet the
    requirements.^33 For example, ICAO standards require runway width to be no
    less than 60 meters (about 200 feet) and taxiway width 25 meters (about 82
    feet), but the AACG decided widths of 45 meters (about 150 feet) for
    runways and 23 meters (about 75 feet) for taxiways would be adequate to
    safely operate the aircraft. Officials of European civil aviation
    authorities said the AACG decision was based on runway-to-taxiway
    centerline deviation studies that have found that large aircraft do not
    deviate significantly from the centerline. In addition, the AACG decision
    was influenced by the anticipation that the A380 would be certified by the
    European Aviation Safety Agency (EASA) to operate on 45-meter
    runways--which occurred in December 2006.^34 In contrast, the FAA type
    certificate does not include approval to operate on 150-foot-wide runways
    and evaluations of these operations have not been completed. According to
    FAA, the decision about runway width is an operational concern, rather
    than a certification issue. FAA is currently evaluating the use of
    narrower runways (less than 200 feet).^35 FAA expects to complete its
    evaluations and issue a decision in summer 2007.

    ^33The A380 Airport Compatibility Group (AACG) is an informal group,
    consisting of a number of European aviation authorities (France, Germany,
    the United Kingdom, and the Netherlands), airport and industry
    representatives. It was formed to agree to and promote a common position
    among the group members regarding the application of ICAO requirements,
    with respect to the A380 for infrastructure and operations at existing
    major European airports that currently do not meet the requirements.
    Australia has also adopted the AACG standards.

    Making Significant Investment in Infrastructure Changes

    Like most U.S. airports, the older foreign airports we visited were not
    designed to accommodate aircraft as large as the A380. However, unlike the
    U.S. airports, these foreign airports made significant investments in
    infrastructure changes and improvements in anticipation of future growth
    and the need to modernize, which included accommodating new large aircraft
    such as the A380.^36 For example:

               o Airport officials at London Heathrow airport indicated about
               $885 million would be related to accommodating the A380.
               Heathrow's investments related to the A380 included widening and
               strengthening its two runway's shoulders and upgrading runway
               lighting, demolition and redevelopment of a portion of an existing
               terminal to add four A380 gates and allow more space for the
               aircraft, and development of a new terminal to provide five A380
               gates by 2008 and 14 by 2011.
               o At the Paris Charles de Gaulle airport, about $132 million is
               being spent to prepare for the A380. The investment includes
               widening and strengthening two runways at the airport and building
               a new satellite terminal complex specifically to accommodate the
               A380. Initially, nine gates with upper deck access and two remote
               parking positions are available, but airport officials expect the
               number of A380 gates to increase to about 30 by 2018.
               o At the Beijing Capital airport, A380-related improvements have
               been included in the $3 billion renovation projects--particularly
               to prepare for the 2008 Olympic Games--that include building a new
               terminal to handle the anticipated increase in future demand, a
               new 3,800-meter-long, 60-meter-wide runway to accommodate the
               A380, new facilities and cargo areas, and additional landing
               areas.
               o At the Amsterdam Schiphol airport, a new 60-meter-wide,
               3,800-meter-long runway and associated taxiways were built that
               meet international standards, and the terminal was expanded at a
               cost of over $440 million and $213 million, respectively, to
               expand capacity and maintain its competitive position as an
               international hub. The new, longer runway and terminal expansion
               projects were initiated to enhance overall capacity of the airport
               and to accommodate new large aircraft, such as the A380. The
               terminal will have four gates ready for the A380 in 2007.

               In contrast, all the 18 U.S. airports expecting to receive the
               A380 plan to invest about $927 million in total on A380
               infrastructure changes--which is only slightly more than the
               investments being made at Heathrow. The most a single U.S. airport
               is investing in infrastructure changes to accommodate the A380 is
               $151 million. The level of planned investments reflects the
               expected level of A380 traffic. Specifically, the foreign airports
               we visited are expecting more A380 traffic, in part, because they
               will serve as hub airports for international travel or serve as
               hubs for airlines that have purchased the A380. For example, JFK
               expects about 16 A380 arrivals and departures per day in
               2015--possibly the most daily A380 flights at any U.S. airport.
               However, Heathrow airport officials expect that by 2020, one of
               every 10 aircraft arriving and departing will be an A380, or about
               130 arrivals and departures per day. Similarly, officials at the
               Paris Charles de Gaulle airport estimate that at least 10 percent
               of all passengers arriving at the airport will be aboard an A380
               by 2020.

               In addition to the level of investment, U.S. and foreign airports
               differ in the type of investments. Foreign airports, in particular
               European airports, are investing more in terminal and gate
               improvements to accommodate the A380 than U.S. airports. For
               example, London Heathrow, Paris Charles de Gaulle, and Amsterdam
               Schiphol airports have undertaken major terminal and gate
               improvement projects to accommodate the A380. In contrast, the
               majority of investments reported by U.S. airports (83 percent)
               were for runway and taxiway projects to accommodate the A380.^37
               This difference likely reflects that all Asian airports meet ICAO
               standards, including runway and taxiway width, for new large
               aircraft, such as the A380, and that the AACG determined that
               European airports could use more narrow runway and taxiway widths
               for the A380, which negated the need to widen the runways or
               taxiways.

               Seven of the eight Asian and Canadian airports we visited were
               designed for future expansion or were built to allow new large
               aircraft, such as the A380.^38 Five airports--Singapore Changi,
               Hong Kong, Tokyo Narita, Montreal Trudeau, and Toronto
               Pearson--were not designed specifically for the A380, but rather
               were built to accommodate the arrival of new large aircraft in the
               future and either complied with or needed only minimal
               modifications to comply with international standards applicable to
               new large aircraft. For example, at the Singapore Changi and
               Toronto Pearson airports, the runways were wide enough to
               accommodate the A380, but the shoulders needed to be modified to
               comply with ICAO requirements. Taken as a whole, these airports
               will not have to impose operating restrictions on the A380 except
               for a few instances, but not to the extent as U.S. airports.

               Two Asian airports in Bangkok, Thailand and Guangzhou, China, were
               built in compliance with the international standards for new large
               aircraft.^39 According to airport officials, these two airports
               were built because of the economic activity they were expected to
               generate for their region and their countries. Moreover, these
               officials stated that to remain competitive, the airports had to
               be able to receive new large aircraft, and in particular the A380
               because it represents the next generation of aircraft. Because
               these two Asian airports in Bangkok and Guangzhou were built to
               comply with international standards for new large aircraft, they
               will not need to restrict A380 operations or the movement of other
               aircraft as they move around the airfields to and from terminals.
               Figure 7 shows a picture of the Baiyun International Airport in
               Guangzhou, China.

    ^34EASA, the European regulatory counterpart to FAA, develops common
    safety and environmental standards for European Member States in civil
    aviation. It monitors the implementation of standards in the Member States
    and provides the necessary technical expertise, training and research.

    ^35If Airbus successfully completes its flight demonstration, the A380
    will receive FAA Flight Standards approval to operate on 150-foot-wide
    runways (45 meters). If Airbus does not successfully demonstrate the
    A380's capability, FAA will require that airports expecting to receive the
    A380 meet the Design Group VI standard of 200-foot-wide runways and
    100-foot-wide taxiways. If an airport does not meet the taxiway standard,
    airport officials can apply for Modifications to Standards through FAA.
    For FAA to approve a modification, the airport must demonstrate that they
    can provide an acceptable level of safety to the standard on a
    case-by-case basis.

    ^36See appendix II for summaries of the foreign airports' A380 plans and
    operations.

    ^37For more information on the costs of infrastructure changes at U.S.
    airports to accommodate the A380, see GAO, Commercial Aviation: Costs and
    Major Factors Influencing Infrastructure Changes at U.S. Airports to
    Accommodate the New A380 Aircraft, [41]GAO-06-571 (Washington, D.C.: May
    19, 2006).

    ^38The seven airports include Guangzhou Baiyun, Singapore Changi, Hong
    Kong, Tokyo Narita, Bangkok Suvarnabhumi, Toronto Pearson, and Montreal
    Trudeau. The remaining airport, Beijing Capital, was not built to
    accommodate the future arrival of new large aircraft and required
    significant improvements to the airfield to comply with the required
    standards, such as reconstructing one of its runways to accommodate the
    A380.

    ^39The Bangkok Suvarnabhumi airport is the only airport that fully
    complies with the required international standards for new large aircraft.
    The Guangzhou Baiyun airport is fully compliant with the requirements for
    one side of the airfield that will be used for A380 operations, while the
    other noncompliant side will not be used for the A380.

               Figure 7: Baiyun International Airport, Guangzhou, China

               In comparison, most of the 18 U.S. airports expecting to receive
               the A380 and the three European airports we visited were not built
               to comply with international standards for new large aircraft,
               such as the A380. As a result, officials from the U.S. airports
               told us that they anticipated imposing operating restrictions on
               the A380 or aircraft operating in proximity to the A380 to ensure
               safety. As discussed previously, European airports have adopted
               alternative standards and only one of these airports we visited
               plans to impose some operating restrictions.

    		   Concluding Observations

               Many large airports in the U.S. and around the world are facing
               capacity constraints as passenger and cargo traffic continues to
               grow. The A380 was designed, in part, to help alleviate these
               capacity constraints. However, the impact of its arrival on
               airport capacity in the United States is uncertain. The exact
               impact will likely vary by geographic regions of the U.S. and will
               depend on a range of factors, including the volume of A380
               traffic, timing of these aircrafts' operations, and the operating
               restrictions imposed on the aircraft and those aircraft operating
               around it. Although many U.S. airports are facing capacity
               constraints, the decisions by airport officials to make the
               necessary infrastructure changes to accommodate the aircraft were
               not solely driven by potential capacity gains. Rather, officials
               at some airports told us that they want to receive the A380 to
               help their airport's competitive position. They are expecting that
               the economic benefits from having A380 service at their airport
               will outweigh the costs associated with the infrastructure changes
               needed to accommodate the aircraft.

               While the impact of operating restrictions on airport capacity is
               not clear, FAA and industry experts generally agreed that the A380
               will add another element of complexity to airport operations and
               airspace management. This could limit A380 operations to
               designated gates, taxiways, or runways at many airports. This will
               reduce air traffic controllers' flexibility in making routing
               decisions for the A380 and other aircraft. Further exacerbating
               this situation is the current and projected growth in air traffic
               as well as the rollout of new classes of aircraft that could have
               their own operating and infrastructure requirements. Optimizing
               the use of airspace and airport facilities to the growth in air
               traffic and new classes of aircraft, including the A380, will be
               challenging.

               To address some of these challenges, airports expecting to receive
               the A380 are making infrastructure changes to accommodate it that
               involve retrofitting or expanding existing infrastructure, such as
               runways and taxiways. As we have previously reported, the airports
               estimated that these changes will be costly and were driven by the
               introduction of the A380, but they will also benefit current
               aircraft and other new large aircraft that may be introduced in
               the future. If recent history is a guide, the evolution of
               aircraft will not stop with the A380 as evident with Boeing's
               decision to go forward with its own new large aircraft, the 747-8.
               Thus, to help mitigate future difficulties, federal policymakers,
               airport officials, and other stakeholders are considering the
               introduction of the A380 and other new classes of aircraft as they
               move forward with airport development throughout the nation as
               well as the development of the next generation air transportation
               system.

    		   Agency Comments and Our Evaluation

               We provided a draft of this report to the Department of
               Transportation for review and comment. FAA officials generally
               agreed with the report's findings. FAA officials also provided
               technical clarifications via e-mail, which were incorporated as
               appropriate.

               In addition, we provided a draft of this report to Airbus North
               America Holdings, Inc. (Airbus) for review and comment. Airbus
               provided written comments, which are reprinted in appendix III. In
               its letter, Airbus states that we correctly identified potential
               safety and capacity issues associated with the introduction of the
               A380. However, regarding our discussion on capacity issues, Airbus
               expresses concern that we overemphasized the operational
               constraints imposed on or by the A380. We interviewed a range of
               aviation experts and examined a variety of studies and analyses to
               understand any potential impact, both positive and negative, the
               A380 could have on capacity. Although the report does describe the
               potential operational constraints associated with the introduction
               of the A380, we believe the report provides a balanced discussion
               regarding the potential benefits that new large aircraft, such as
               the A380, could provide to help alleviate capacity constrained
               U.S. airports as well as the potential capacity reduction due to
               operating restrictions, increased separation, and gate utilization
               issues associated with A380 operations. Airbus also suggests that
               our capacity discussion should include information on passenger
               throughput, noting that we use one definition of capacity--that
               is, the maximum number of aircraft takeoffs and landings (aircraft
               movements) that can occur during a given period. We acknowledge
               that we defined capacity by aircraft movements and agree that
               passenger throughput is another measure of capacity. We chose to
               use aircraft movements as the definition of capacity for this
               report because FAA uses the maximum number of aircraft movements
               to express airport capacity. The report includes information on
               the potential impact of the A380 on passenger
               throughput--specifically, that the A380 could accommodate more
               passengers and freight on each flight than any other aircraft in
               use today. However, we added additional information on the A380's
               potential impact on passenger throughput on the basis of Airbus'
               comments. Airbus also provided technical comments, which were
               incorporated, as appropriate.

               As agreed with your office, unless you publicly announce the
               contents of this report earlier, we plan no further distribution
               until 10 days from the report date. At that time, we will send
               copies to appropriate congressional committees, the Secretary of
               Transportation, and representatives of Airbus. We will also make
               copies available at no charge on the GAO Web site at
               http://www.gao.gov .

               If you have any questions about this report, please contact me at
               (202) 512-2834 or by e-mail at dillinghamg@gao.gov . Contact
               points for our Offices of Congressional Relations and Public
               Affairs may be found on the last page of this report. Individuals
               making key contributions to this report were Nikki Clowers,
               Assistant Director; Vashun Cole; and Frank Taliaferro.

               Sincerely yours,

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

    		   Appendix I: Objectives, Scope, and Methodology

               We were asked to review and identify the impact of the Airbus A380
               on U.S. airports. In May 2006, we issued a report that estimated
               the costs of infrastructure changes that U.S. airports plan to
               make to accommodate the A380.^1 This report discusses (1) the
               safety issues associated with the introduction of the A380, and
               how U.S. airports are addressing them, (2) the potential impact of
               A380 operations on the capacity of U.S. airports, and (3) how
               selected foreign airports are addressing these safety and capacity
               issues.

               To address these issues, we reviewed published studies on
               operational issues related to the A380 and on aircraft fire and
               rescue equipment and tactics, A380 emergency evacuations, pavement
               strength issues for the A380's weight, and other safety-related
               issues. We also reviewed FAA's design standards and attended FAA
               briefings on its type validation and type certification processes.
               For our May 2006 report, we analyzed the A380-related requests for
               Modifications to Standards made by the U.S. airports we visited
               and summarized FAA decisions regarding the infrastructure and
               operational impacts to the airports. We also discussed--with FAA
               and airport officials--the effect that Modifications to Standards
               would have on airports' infrastructure. For this report, we
               discussed with FAA officials the safety considerations of
               Modification to Standards, but did not analyze the extent that
               Modifications to Standards are used at all U.S. airports. We also
               examined FAA William J. Hughes Technical Center's (Technical
               Center) analysis of the impact of new large aircraft operations at
               Memphis International, New York John F. Kennedy International, and
               San Francisco International Airports. We analyzed the Technical
               Center's methodology in preparing these analyses and the results
               of these analyses and met with FAA officials to discuss the
               analyses. We determined that the Technical Center's analyses were
               sufficiently reliable for our purposes. We also examined the
               International Civil Aviation Organization's (ICAO) guidance and
               standards for airport design and aircraft separation.

               We interviewed officials from FAA and representatives from ICAO,
               Airbus, and aviation trade association to discuss safety and
               capacity issues associated with the arrival of the A380. In
               addition, we conducted semi-structured interviews with 17 aviation
               experts to obtain their views on the impact of the A380 on airport
               operations and capacity and potential safety issues. We contracted
               with the National Academy of Sciences (NAS) to identify
               individuals who are experts in the fields of safety, capacity,
               infrastructure, and certification. We developed an interview guide
               that asked for the expert's views on a series of questions on
               safety and capacity issues related to the introduction of the A380
               and pre-tested this guide with two experts to ensure that the
               questions sufficiently addressed the issues and were not biased,
               misleading, or confusing. We incorporated feedback from our
               pretests into the interview guide, and then used the guide for our
               interviews. After conducting the interviews, we analyzed the
               experts' responses to our questions to identify major themes. The
               aviation experts we interviewed were not selected randomly and
               their views and opinions cannot be generalized to the larger
               population of experts and aviation officials. See table 2 for the
               aviation experts we interviewed.

    ^1GAO, Commercial Aviation: Costs and Major Factors Influencing
    Infrastructure Changes at U.S. Airports to Accommodate the New A380
    Aircraft, [42]GAO-06-571  (Washington, D.C.: May 19, 2006).

               Table 2: Aviation Experts Interviewed by GAO

    Expert          Title and affiliated organization

    Kristin Allen   Facilities, Operations and Maintenance Manager, San
                       Francisco International Airport
    Randy Babbitt   Chairman and CEO, Eclat Consulting
    Kevin Bleach    Manager of Aviation Technical Services, Port Authority New
                       York and New Jersey
    Tony Broderick  Consultant, Airbus North America Holdings, Inc.
    Dan Cohen-Nir   Programs Director, Airbus North America Holdings, Inc.
    Frank Frisbie   Vice President, Apptis
    George Greene   Chief Scientific and Technical Advisor for Wake
                       Turbulence, NASA
    John Hansman    Professor, MIT
    John Hayhurst   Vice President (retired), Boeing Air Traffic Management
    Steve Lang      Manager of Planning, Control, and Integration, Air Traffic
                       Services, FAA
    Dick McAdoo     Atlantic Southeast Airlines (retired)
    Tom McSweeny    Director, International Safety and Regulatory Affairs,
                       Boeing Commercial Airplanes
    Amedeo Odoni    Professor, MIT
    Clint Oster     Professor, Indiana University
    Marc Schoen     Manager, Airport Technology, Boeing Commercial Airplanes
    John Sullivan   Professor, Purdue University
    Ray Valeika     Senior Vice President, Delta Airlines (retired)

               Source: GAO.

               We conducted site visits to the 18 U.S. airports that are making
               infrastructure improvements to accommodate the A380. (Table 3
               shows the U.S. airports that we visited.) We conducted these site
               visits from September 2005 to February 2006. During these site
               visits, we interviewed airport officials, including airport
               management, air traffic controllers, and fire and rescue
               personnel, and toured the airport facilities to identify safety
               and capacity challenges associated with the arrival of the A380 at
               their airport and efforts they were undertaking to mitigate these
               challenges. To ensure the accuracy of information summarized in
               the report, we verified the information we collected with
               officials from the 18 airports in the fall of 2006.

               Table 3: United States Airports Visited by GAO

    Airport name                                    Location

    Ted Stevens Anchorage International Airport     Anchorage, Alaska
    Fort Worth Alliance Airport                     Fort Worth, Texas
    Hartsfield-Jackson Atlanta International        Atlanta, Georgia
    Airport
    Chicago O'Hare International Airport            Chicago, Illinois
    Dallas-Fort Worth International Airport         Fort Worth, Texas
    Denver International Airport                    Denver, Colorado
    Indianapolis International Airport              Indianapolis, Indiana
    Los Angeles International Airport               Los Angeles, California
    Louisville International Airport                Louisville, Kentucky
    Memphis International Airport                   Memphis, Tennessee
    Miami International Airport                     Miami, Florida
    New York John F. Kennedy International Airport  New York, New York
    Ontario International Airport                   Ontario, California
    Orlando International Airport                   Orlando, Florida
    Philadelphia International Airport              Philadelphia, Pennsylvania
    San Francisco International Airport             San Francisco, California
    Tampa International Airport                     Tampa, Florida
    Washington Dulles International Airport         Dulles, Virginia

               Source: GAO.

               We also conducted site visits to 11 Asian, Canadian, and European
               airports that will be receiving the A380. (Table 4 shows the
               foreign airports we visited.) We conducted these site visits from
               February 2006 to November 2006. We selected these high-capacity
               airports based on the expected level of A380 operations or the
               presence of airlines that have ordered the A380 aircraft and
               intend on using these airports as a hub for their operations.
               During these site visits, we interviewed airport officials,
               including airport management, air traffic controllers, and fire
               and rescue personnel, and toured the airport facilities to
               identify the safety and capacity challenges associated with the
               arrival of the A380 and the efforts being undertaken to mitigate
               these challenges. We summarized the information obtained for this
               report and sought verification from the 11 airports in the winter
               of 2006.

               Table 4: Asian, Canadian, and European Airports Visited by GAO

    Airport name                                     Location
    Asian airports

    Suvarnabhumi Airport                             Bangkok, Thailand
    Capital Airport                                  Beijing, China
    Baiyun Airport                                   Guangzhou, China
    Hong Kong Airport                                Hong Kong, China
    Narita Airport                                   Tokyo, Japan
    Changi Airport                                   Singapore
    Canadian airports
    Montreal-Pierre Elliott Trudeau International    Montreal, Quebec
    Airport
    Toronto Pearson International Airport            Toronto, Ontario
    European airports
    Amsterdam Schiphol Airport                       Amsterdam, Netherlands
    London Heathrow Airport                          Middlesex, United Kingdom
    Paris Charles de Gaulle Airport                  Paris, France

               Source: GAO.

               We performed our work from May 2005 to March 2007 in accordance
               with generally accepted government auditing standards.

    		   Appendix II: Foreign Airport Summaries

               To determine how foreign airports were addressing the potential
               safety and capacity issues associated with the introduction of the
               A380, we visited 11 foreign airports. The following are summaries
               of the information airports' provided on operations and their A380
               plans.

    		   Asian Airports

               Bangkok Suvarnabhumi International Airport, currently the
               operating hub for Thai Airways, opened in 2006 and was built as an
               ICAO Code F airport that could handle 45 million passengers and
               three million tons of cargo per year at a cost of about $3.9
               billion.^1 The airport is one of the largest in Asia, with a
               terminal slightly larger than that of Hong Kong airport. The final
               phase of construction, expected to begin in about 2015, will add a
               fourth runway and another terminal to increase the capacity to 100
               million passengers per year. A maintenance facility has also been
               built at the airport that can house up to three A380s in one
               hangar at the same time. Officials of the Thai Department of Civil
               Aviation do not expect that the A380 would cause delays at their
               airport. A380 flight operations will begin with Qantas and United
               Arab Emirates airlines service in early 2008. Thai Airways ordered
               six A380 aircraft and will begin service in 2009 or 2010 after it
               takes its first delivery from Airbus. Table 5 provides
               A380-related issues at Suvarnabhumi airport.

               Table 5 Bangkok Suvarnabhumi International Airport

    		   						Asian Airports

    						Airport facilities

    						Expected start of A380 service      Early 2008.
    						(month/year):
    						Number of A380 landings and         Initially: Anticipates 12 per day.
    						departures each day (initial year
    						and 5th year of service):
    						5th year: 12 per day (possibly
    						more).
    						Carriers expected to bring A380 to  Singapore Airlines, Air France, and
    						airport (year of arrival):          Qantas (2008), Emirates and Lufthansa
    															   (2008 or 2009), and Thai Airways (2009
    															   or 2010).
    						Expected level of A380 passenger    Passenger: Not available.
    						and cargo operations:
    						Cargo: Not available.
    						Airfield design standards (runway   Airfield is ICAO Code F compliant.
    						and taxiway width and separations):
    						Airport baggage claim, terminal     None. Passenger waiting rooms could
    						seating, and customs and            become crowded and baggage facilities
    						immigration spatial concerns:       in the new airport were built to
    															   receive new large aircraft such as the
    															   A380.
    						Terminal gates A380-ready:          Five A380 gates with one upper and two
    															   lower boarding bridges.
    						Deviations from ICAO Code F         None.
    						standards:
    						Operating restrictions used for the None.
    						A380:
    						Possible impact of A380 operations  None.
    						on ground operations (special
    						designated routing issues):
    						Potential effect of ground          None.
    						operational restrictions on
    						capacity (airport assessment):
    						Current Aircraft Rescue and Fire    Meets ICAO ARFF requirements for
    						Fighting (ARFF) capability (in      A380-sized aircraft.
    						terms of equipment, personnel, and
    						training):

               Source: GAO analysis of information obtained from Suvarnabhumi
               airport officials.

    ^1ICAO Code F is the international acceptable standards for aircraft with
    wingspans over 214 feet such as the Airbus A380 and the proposed Boeing
    747-8.

               Beijing Capital International Airport has been upgraded with
               several renovations since it opened in 1958, and in 2005 it
               handled about 41 million passengers and about 782,000 tons of
               cargo. Airport officials said that in anticipation of the
               increasing aviation demands due to the economic development of the
               Beijing area as well as the 2008 Beijing Olympic Games, Beijing
               Capital airport officials have begun a $3 billion airport
               expansion plan to double the existing capacity. When completed,
               the airport will be able to handle 60 million passengers, 1.8
               million tons of cargo, and about 500,000 flights per year.
               A380-related improvements have been incorporated in the renovation
               projects, which include building a new terminal to handle the
               anticipated increase in future demand, a new 3,800-meter-long,
               60-meter-wide runway to accommodate the A380, new facilities and
               cargo areas, and additional landing areas. In addition, major
               terminal and gate improvement projects have been undertaken to
               accommodate the A380. China Southern Airlines is the only Chinese
               A380 customer. However, in addition to China Southern Airlines,
               Air France, and Lufthansa Airlines have expressed their intent to
               operate the A380 at the Beijing airport. Table 6 provides
               A380-related issues at Beijing airport.

               Table 6: Beijing Capital International Airport

    Airport facilities

    Expected start of A380 service    Uncertain.
    (month/year):

    Number of A380 landings and       Initially: Not available.
    departures each day (initial year
    and 5th year of service):         5th year: Not available.

    Carriers expected to bring A380   China Southern Airlines, Air France, and
    to airport (year of arrival):     Lufthansa Airlines.
    Expected level of A380 passenger  Passenger: Not available.
    and cargo operations:
                                         Cargo: Not available.
    Airfield design standards (runway Improvements are being made to some
    and taxiway width and             areas of the airfield to comply with
    separations):                     ICAO Code F standards; however, no plans
                                         to restructure the entire airport to
                                         meet Code F requirements.
    Airport baggage claim, terminal   None. Passenger waiting rooms and
    seating, and customs and          baggage facilities expanded to enhance
    immigration spatial concerns:     new large aircraft operations.

    Terminal gates A380-ready:        Once modifications are completed in the
                                         existing terminal areas, both existing
                                         terminals and a new terminal can have a
                                         total of 12 A380 gates if necessary.

    Deviations from ICAO Code F       None.
    standards:

    Operating restrictions used for   None.
    the A380:

    Possible impact of A380           None.
    operations on ground operations
    (special designated routing
    issues):

    Potential effect of ground        ICAO separations standards for the A380
    operational restrictions on       due to wake turbulence could slow
    capacity (airport assessment):    landing and departures and reduce the
                                         number of flights allowed to land and
                                         depart during peak hours.
    Current Aircraft Rescue and Fire  Plans to upgrade capability to meet ICAO
    Fighting (ARFF) capability (in    ARFF requirements for A380-sized
    terms of equipment, personnel,    aircraft.
    and training):

               Source: GAO analysis of information obtained from Beijing airport
               officials.

               Guangzhou Baiyun International Airport, currently the operating
               hub for China Southern airlines, opened in 2004. It cost roughly
               $2.39 billion, is one of the three large hub airports on the
               Chinese mainland, and is the busiest airport in south China. In
               2005, the airport handled 23.5 million passengers and 750,000 tons
               of cargo. The airport was the first in China designed and built
               with the hub concept and a capacity to accommodate a projected
               annual growth of 27 million passengers and 1.4 million tons of
               cargo through 2010. China Southern Airlines is the only Chinese
               A380 customer and has already considered replacing an existing
               nonstop route from Guangzhou to Los Angeles using an A380. The
               airport has one runway and will have one gate ready for the A380
               in 2008 and plans to add additional A380 gates as needed in future
               planned concourses. Airport officials said A380-related
               improvements exist in a $2.22 billion expansion plan that includes
               the construction of an additional runway, terminal, and cargo
               facilities. The facilities will be increased as the expansion
               plans are completed with a capacity to accommodate 80 million
               passengers and 2.5 million tons of cargo annually. Table 7
               provides A380-related issues at Baiyun airport.

               Table 7: Guangzhou Baiyun International Airport

    Airport facilities

    Expected start of A380 service  Fall 2008.
    (month/year):

    Number of A380 landings and     Initially: Not available.
    departures each day (initial
    year and 5th year of service):  5th year: Not available.

    Carriers expected to bring A380 China Southern Airlines (2008).
    to airport (year of arrival):

    Expected level of A380          Passenger: Not available.
    passenger and cargo operations:
                                       Cargo: Not available.

    Airfield design standards       The airfield is partially ICAO Code F
    (runway and taxiway width and   compliant.
    separations):

    Airport baggage claim, terminal None. Passenger waiting rooms and baggage
    seating, and customs and        facilities were designed to accommodate
    immigration spatial concerns:   A380 passenger loads.

    Terminal gates A380-ready:      One A380-capable gate that will be
                                       available and equipped with two passenger
                                       boarding bridges, another gate will be
                                       used to handle an A380 flight, and plan to
                                       add two A380 gates equipped with three
                                       passenger boarding bridges.

    Deviations from ICAO Code F     None.
    standards:

    Operating restrictions used for The West Runway was built to ICAO Code E
    the A380:                       standards and will not be used for A380
                                       operations.

    Possible impact of A380         None.
    operations on ground operations
    (special designated routing
    issues):

    Potential effect of ground      None.
    operational restrictions on
    capacity (airport assessment):

    Current Aircraft Rescue and     Meets ICAO ARFF requirements for
    Fire Fighting (ARFF) capability A380-sized aircraft.
    (in terms of equipment,
    personnel, and training):

               Source: GAO analysis of information obtained from Baiyun airport
               officials.

               Hong Kong International Airport is the busiest airport for freight
               (by weight) in the world, handling about 3.6 million tons of
               freight in 2006. The airport also handled about 44.5 million
               passengers in 2006. The airport was built on a landfill in the
               Hong Kong bay and began operations in 1998. The airport has
               additional expansion plans to increase passenger capacity to 80
               million per year by 2025. However, in order to achieve that
               capacity the airport authority is planning to conduct engineering
               and environmental feasibility studies on the construction of a
               third runway for the airport. The airport authority had spent
               approximately $15 million in airport enhancement works for the
               operation of A380 passenger flights and was certified as an ICAO
               Code F airport in July 2006. The airport is an operating hub for
               DHL freight, and FedEx and UPS also operate at the airport. No
               airline based in Hong Kong has purchased the A380, but airport
               officials expect to accommodate foreign carriers' A380 flights.
               The airport serves about 80 foreign airlines and about 70 percent
               of the flights to Hong Kong are wide-body jets. Singapore Airlines
               will likely be the first to bring an A380 into Hong Kong. Table 8
               provides A380-related issues at Hong Kong airport.

               Table 8: Hong Kong International Airport

    Airport facilities

    Expected start of A380 service       Early to mid 2008.
    (month/year):

    Number of A380 landings and          Initially: Anticipates four flights
    departures each day (initial year    per day.
    and 5th year of service):
                                            5th year: 10 flights per day
                                            (possibly more).

    Carriers expected to bring A380 to   Singapore Airlines, Lufthansa, Qantas
    airport (year of arrival):           Airlines, United Arab Emirates,
                                            Virgin Atlantic and Air France.

    Expected level of A380 passenger and Passenger: Not available.
    cargo operations:
                                            Cargo: Not available.

    Airfield design standards (runway    Airfield is generally ICAO Code F
    and taxiway width and separations):  compliant.

    Airport baggage claim, terminal      None. Passenger waiting rooms and
    seating, and customs and immigration baggage facilities can accommodate
    spatial concerns:                    the A380 and other new large
                                            aircraft.

    Terminal gates A380-ready:           Two A380 gates (each with one upper
                                            and one lower deck bridge) with the
                                            ability to expand up to a total of
                                            five A380 gates.

    Deviations from ICAO Code F          No deviations from ICAO Code F
    standards:                           standards for the operation of A380.

    Operating restrictions used for the  Stop-hold positions have been placed
    A380:                                further back from runway centerline.

    Possible impact of A380 operations   No significant delay on operations on
    on ground operations (special        the taxiways and apron is expected.
    designated routing issues):

    Potential effect of ground           ICAO separation from the A380 due to
    operational restrictions on capacity wake turbulence would reduce the
    (airport assessment):                arrival and departure rates.

    Current Aircraft Rescue and Fire     Meets ICAO ARFF requirements for
    Fighting (ARFF) capability (in terms A380-sized aircraft.
    of equipment, personnel, and
    training):

               Source: GAO analysis of information obtained from Hong Kong
               airport officials.

               Singapore Changi International Airport has undergone several
               expansions since the airport opened in 1981. In 2006, the airport
               handled over 35 million passengers and almost two million tons of
               cargo. Changi airport is the operating hub for Singapore Airlines,
               which is the launch customer for the Airbus A380. Singapore
               Airlines will begin receiving its A380 deliveries in the fall of
               2007 and plans to begin flight operations in January 2008 with
               flights to London Heathrow and San Francisco airports. Lufthansa,
               Qantas, Korean Air, and Virgin Atlantic airlines could begin
               flights to Singapore by 2010. The airport authority has spent
               about $43 million on improvements such as widening runway
               shoulders, and runway-taxiway and taxiway-taxiway intersections,
               installing upper deck loading bridges, and expanding the seating
               areas to handle A380 passenger loads. The airport has two parallel
               runways and will have 11 gates ready for the A380 in 2007--a total
               of 19 gates will be available in 2008. Changi airport will also
               have a maintenance facility with hangars that can fully enclose
               two A380 aircraft and a third A380 compatible hangar under
               construction. In 2008, a new terminal (Terminal 3) will open for
               operations and will enable the airport to accommodate 64 million
               passengers per year and add 8 more gates for the A380. Table 9
               provides A380-related issues at Changi airport.

               Table 9: Singapore Changi International Airport

    Airport facilities

    Expected start of A380 service     Uncertain.
    (month/year):

    Number of A380 landings and        Initially: Uncertain.
    departures each day (initial year
    and 5th year of service):          5th year: Uncertain.

    Carriers expected to bring A380 to Singapore Airlines (2007), Emirates and
    airport (year of arrival):         Qantas Airlines.

    Expected level of A380 passenger   Passenger: Not available.
    and cargo operations:
                                          Cargo: Not available.

    Airfield design standards (runway  Airfield is ICAO Code F compliant.
    and taxiway width and
    separations):

    Airport baggage claim, terminal    None. Passenger waiting rooms and
    seating, and customs and           baggage facilities expanded in
    immigration spatial concerns:      Terminals 1 and 2, and Terminal 3 will
                                          open in 2008 based on new large
                                          aircraft operations.

    Terminal gates A380-ready:         All 19 gates that are A380-ready will
                                          have one upper and two lower bridges.

    Deviations from ICAO Code F        None.
    standards:

    Operating restrictions used for    None.
    the A380:

    Possible impact of A380 operations None.
    on ground operations (special
    designated routing issues):

    Potential effect of ground         ICAO separation standards from the A380
    operational restrictions on        due to wake turbulence could slow
    capacity (airport assessment):     landing and departures and reduce the
                                          number of flights allowed to land and
                                          depart during peak hours.

    Current Aircraft Rescue and Fire   Meets ICAO ARFF requirements for
    Fighting (ARFF) capability (in     A380-sized aircraft.
    terms of equipment, personnel, and
    training):

               Source: GAO analysis of information obtained from Changi airport
               officials.

               Tokyo Narita International Airport, which opened in 1978, handles
               the majority of international passenger traffic in Japan and in
               2005 handled over 31 million passengers and more than 2.3 million
               tons of cargo. In terms of the number of international passengers,
               it is ranked eighth in the world and second highest in the world
               in terms of the volume of international cargo. To date, six
               airlines--Lufthansa, Air France, Qantas, Virgin Atlantic,
               Singapore Airlines, and Korean Airlines--have announced plans to
               operate A380s at the airport. No Japanese air carrier has any
               immediate plans to purchase the A380. The airport has one runway
               and will have ten gates ready for the A380. Airport officials said
               existing facilities are used to accommodating very large passenger
               loads arriving at the same time on a daily basis. In fact, large
               aircraft, such as the 747-200, 747-400, and 777-200, currently
               make up about 75 percent of the traffic at Narita airport. The
               officials said the nominal increase in passenger loads on A380
               flights will not have a significant impact on the efficiency of
               the airport's internal operations. Table 10 provides A380-related
               issues at Narita airport.

               Table 10: Tokyo Narita International Airport

               Source: GAO analysis of information obtained from Narita airport
               officials.

    		   Canadian Airports

    Airport facilities

    Expected start of A380 service   First half 2008.
    (month/year):

    Number of A380 landings and      Initially: Not available.
    departures each day (initial
    year and 5th year of service):   5th year: Not available.

    Carriers expected to bring A380  Singapore Airlines, Korean Airlines,
    to airport (year of arrival):    Lufthansa, Air France, Virgin Atlantic
                                        Airways and Qantas Airways.

    Expected level of A380 passenger Passenger: Not available.
    and cargo operations:
                                        Cargo: Not available.

    Airfield design standards        Airfield is ICAO Code F compliant.
    (runway and taxiway width and
    separations):

    Airport baggage claim, terminal  Minimal. Plan to use adjacent seating
    seating, and customs and         areas near A380 gates to handle the
    immigration spatial concerns:    increase in passenger loads for the A380
                                        flights, and baggage claim facilities
                                        will be reviewed for possible expansion.

    Terminal gates A380-ready:       Ten gates will be capable of
                                        accommodating the A380 initially with one
                                        upper deck and one lower deck boarding
                                        bridges.

    Deviations from ICAO Code F      None.
    standards:

    Operating restrictions used for  Runway B will be used for A380
    the A380:                        operations. Taxiway separation issues
                                        exist and will require restrictions to
                                        prohibit two A380 operating on the
                                        parallel taxiways.

    Possible impact of A380          None.
    operations on ground operations
    (special designated routing
    issues):

    Potential effect of ground       None.
    operational restrictions on
    capacity (airport assessment):

    Current Aircraft Rescue and Fire The airport has the resources to meet
    Fighting (ARFF) capability (in   ICAO ARFF requirements for A380-sized
    terms of equipment, personnel,   aircraft.
    and training):

               Montreal Trudeau International Airport, first opened in 1941, is
               the third busiest airport in Canada in terms of passenger traffic
               (after Toronto Pearson and Vancouver airports) and served about 11
               million passengers in 2005. The airport is undergoing a major $716
               million expansion and modernization plan designed to double
               terminal capacity to handle 25 million passengers per year and
               enhance the level of passenger service. The first A380 arrival is
               expected during the summer of 2009 with an Air France flight on
               its daily Paris to Montreal route. Montreal Trudeau, which serves
               as the main operating hub for Air France, is expected to be the
               only airport in Canada with a daily A380 flight. Airport officials
               said that no major investments were needed because runway width
               and clearances between runways and taxiways comply with ICAO Code
               F requirements. The airport has three runways and one gate that
               will be available to accommodate the A380 in 2007. The runways are
               62 meters wide, but vary in length and have non-paved, grass
               shoulders. Airport officials stated that two of the runways do not
               meet the necessary length requirement for A380 departures, but
               could be occasionally used for landings. Table 11 provides
               A380-related issues at Trudeau airport.

               Table 11: Montreal Trudeau International Airport

    Airport facilities

    Expected start of A380 service    Summer 2009.
    (month/year):

    Number of A380 landings and       Initially: Two daily (summer only).
    departures each day (initial year
    and 5th year of service):         5th year: Not available.

    Carriers expected to bring A380   Air France.
    to airport (year of arrival):

    Expected level of A380 passenger  Passenger: Not available.
    and cargo operations:
                                         Cargo: Not available.
    Airfield design standards (runway Airfield is ICAO Code F compliant.
    and taxiway width and
    separations):

    Airport baggage claim, terminal   None. Plan to use the seating area of
    seating, and customs and          the adjacent gate to the A380 gate to
    immigration spatial concerns:     handle the increase in passenger load
                                         for A380 flights.

    Terminal gates A380-ready:        One gate is available that can
                                         accommodate the A380 and will use one
                                         upper and one main deck boarding bridge.

    Deviations from ICAO Code F       Non-paved runway and taxiway shoulders
    standards:                        and taxiway widths of 23 meters
                                         compliant with ICAO Code E standards.

    Operating restrictions used for   Runway 10/28 must be inoperable until
    the A380:                         the A380 taxis from Runway 6L/24R to
                                         terminal area. Runways 6R/24L and 10/28
                                         could be used for A380 landings but not
                                         for departures unless weight
                                         restrictions were imposed.

    Possible impact of A380           None.
    operations on ground operations
    (special designated routing
    issues):

    Potential effect of ground        None. Will schedule A380 flights during
    operational restrictions on       non-peak hours.
    capacity (airport assessment):

    Current Aircraft Rescue and Fire  Due to limited expected traffic, the
    Fighting (ARFF) capability (in    airport does not meet ICAO ARFF
    terms of equipment, personnel,    requirements for A380-sized aircraft.
    and training):

               Source: GAO analysis of information obtained from Trudeau airport
               officials.

               Toronto Pearson International Airport, first opened in 1939, is
               Canada's busiest airport and handled almost 30 million passengers,
               410,000 tons of cargo, and about 410,000 flights in 2005. Four
               carriers operate at Pearson that has purchased the A380, but none
               have indicated intent to operate their A380s at the airport. The
               airport is nearing completion of a $3.7 billion Airport
               Development Program to address improvements in groundside,
               terminal and airside infrastructure. Airport officials said the
               investments in airport infrastructure were meant to replace and
               expand their capacity to receive more passengers and freight and
               were not directed exclusively to accommodating the A380 because
               they did not expect many A380s at the airport. However, about
               $37.3 million of the improvement costs can be attributed directly
               to accommodating the A380 and future new large aircraft for
               airfield and terminal modifications. The airport currently has two
               runways and will have four gates ready for the A380 in 2007. The
               runways are 60 meters wide, but have non-paved, grass shoulders
               that may have to be paved to protect against jet blast. Airport
               officials stated they took A380 needs into account when designing
               the new Terminal 1, which opened in April 2004. Table 12 provides
               A380-related issues at Pearson airport.

               Table 12: Toronto Pearson International Airport

    Airport facilities

    Expected start of A380 service    Unknown.
    (month/year):

    Number of A380 landings and       Initially: Not available.
    departures each day (initial year
    and 5th year of service):         5th year: Not available.

    Carriers expected to bring A380   None.
    to airport (year of arrival):

    Expected level of A380 passenger  Passenger: Not available.
    and cargo operations:
                                         Cargo: Not available.

    Airfield design standards (runway Airfield is ICAO Code F compliant.
    and taxiway width and
    separations):

    Airport baggage claim, terminal   None.
    seating, and customs and
    immigration spatial concerns:

    Terminal gates A380-ready:        Four A380 gates are available with one
                                         upper and one lower deck boarding
                                         bridge.

    Deviations from ICAO Code F       None.
    standards:

    Operating restrictions used for   None anticipated, but will use
    the A380:                         procedural restrictions for the A380
                                         when it is on the runways or taxiways if
                                         needed.

    Possible impact of A380           None.
    operations on ground operations
    (special designated routing
    issues):

    Potential effect of ground        ICAO separation standards could slow
    operational restrictions on       landings and departures and reduce the
    capacity (airport assessment):    total number of flights during peak
                                         hours. Airport officials noted that they
                                         would not allow A380 flights to
                                         adversely impact capacity.

    Current Aircraft Rescue and Fire  The airport has the resources to meet
    Fighting (ARFF) capability (in    ICAO ARFF requirements for A380-sized
    terms of equipment, personnel,    aircraft.
    and training):

               Source: GAO analysis of information obtained from Pearson airport
               officials.

    		   European Airports

               Amsterdam Schiphol Airport is one of four major European hubs for
               passenger and freight air traffic. It is the third busiest
               European airport for cargo traffic with over 1.4 million tons
               transported and fourth in passenger traffic with over 44 million
               passengers in 2005--much of which is due to the trans-shipment of
               cargo and connecting passenger traffic. The airport will not be a
               hub for A380 traffic but will accommodate significant A380
               passenger transfers to other planes bound to other destinations.
               A380 flight operations could begin in February 2008 with flights
               from Malaysian Airlines. Schiphol began planning for airport
               improvements related to new large aircraft in 1996. The new Code F
               runway and associated taxiways cost over $440 million and the
               expansion of the terminal cost over $213 million. The airport has
               one runway that is compliant with ICAO Code F but will also use
               the other four 45-meter runways and associated 23-meter taxiways
               in accord with a European agreement that Code E infrastructure
               could be used for the A380. Airport officials said A380s will be
               operated on the runways and taxiways not designed to Code F
               standards under waivers approved by the Netherlands Civil Aviation
               Authority. The airport will also have two gates ready for the A380
               in 2007 and another two after 2008. Schiphol officials indicated
               that they would not need many additional A380 gates in the future
               when A380 flights increase because large aircraft gate occupancy
               and turnaround time present no issues. Table 13 provides
               A380-related issues at Schiphol airport.

               Table 13: Amsterdam Schiphol International Airport

    Airport facilities

    Expected start of A380 service        Summer schedule 2008.
    (month/year):

    Number of A380 landings and           Initially: Anticipates four per day.
    departures each day (initial year and
    5th year of service):                 5th year: Anticipates 10 per day.

    Carriers expected to bring A380 to    Malaysian Airlines (2008).
    airport (year of arrival):

    Expected level of A380 passenger and  Passenger: 2008 (two daily landings
    cargo operations:                     and departures) and 2015 (8-10 daily
                                             landings and departures).

                                             Cargo: Not available.

    Airfield design standards (runway and Airfield is ICAO Code E compliant.
    taxiway width and separations):

    Airport baggage claim, terminal       None. No concerns with seating and
    seating, and customs and immigration  customs, but baggage systems were
    spatial concerns:                     expanded.

    Terminal gates A380-ready:            Two gates will be ready for the A380
                                             in 2007 with two boarding bridges.

    Deviations from ICAO Code F           Noncompliant runways and taxiways
    standards:                            will be operated under waivers.

    Operating restrictions used for the   Use of one taxiway bridge may be
    A380:                                 limited.

    Possible impact of A380 operations on All standard taxi routes are
    ground operations (special designated compliant with A380 operations.
    routing issues):

    Potential effect of ground            ICAO separation standards could slow
    operational restrictions on capacity  landings and departures and reduce
    (airport assessment):                 the total number of flights during
                                             peak hours.

    Current Aircraft Rescue and Fire      Capability meets ICAO ARFF
    Fighting (ARFF) capability (in terms  requirements for A380-sized
    of equipment, personnel, and          aircraft.
    training):

               Source: GAO analysis of information obtained from Schiphol airport
               officials.

               London Heathrow International Airport is the world's busiest
               airport in terms of international flights. The airport is an
               important hub with the largest number of passengers of any
               European airport in 2005--almost 68 million--and handled about 1.4
               million tons of cargo. The airport has reached its capacity for
               flights but would like to increase passenger capacity to 90
               million by 2020 and 95 million by 2030. The first A380 flight will
               likely be Singapore Airlines in early 2008. Airport officials said
               they made significant investments of about $885 million in airport
               improvements to expand their capacity to receive more passengers.
               Most of the spending was used to build new terminals and gates to
               accommodate the A380, but also included widening and strengthening
               its two runway's shoulders and upgrading runway lighting, and
               improvements to existing terminals to provide A380 gates. The
               airport will use two 50-meter-wide, parallel runways that are not
               Code F compliant for width and will use a waiver approved by the
               United Kingdom Civil Aviation Authority. The airport will have 12
               gates ready for the A380 by 2008, but Heathrow officials
               anticipate that they will need about 35 A380 gates by 2015. In
               addition, they eventually expect that one of every ten aircraft
               arriving and departing (130 arrivals and departures) will be an
               A380 by 2020. Table 14 provides A380-related issues at Heathrow
               airport.

               Table 14: London Heathrow International Airport

    Airport facilities

    Expected start of A380 service    February 2008
    (month/year):

    Number of A380 landings and       Initially: Anticipates 16 per day.
    departures each day (initial year
    and 5th year of service):         5th year: Anticipates 30 per day.

    Carriers expected to bring A380   Singapore Airlines (2008), Emirates
    to airport (year of arrival):     (2008), Qantas Airlines (2008), United
                                         Arab Emirates (2008), Malaysia
                                         Airlines(2009) Thai Airways.

    Expected level of A380 passenger  Passenger: Not available.
    and cargo operations:
                                         Cargo: Not available.

    Airfield design standards (runway Airfield is ICAO Code E compliant.
    and taxiway width and
    separations):

    Airport baggage claim, terminal   None. Terminal seating was expanded, and
    seating, and customs and          new baggage systems were installed to
    immigration spatial concerns:     accommodate new large aircraft
                                         operations.

    Terminal gates A380-ready:        12 A380 gates will be available in 2008
                                         with one lower and one upper boarding
                                         bridges.

    Deviations from ICAO Code F       Runway width and taxiway-to-object free
    standards:                        zone separations are noncompliant.

    Operating restrictions used for   A380 routes defined and runway holds
    the A380:                         reconfigured to provide ICAO Code F
                                         compliant routes.

    Possible impact of A380           No additional impact anticipated above
    operations on ground operations   what could be expected from existing
    (special designated routing       B747 traffic.
    issues):

    Potential effect of ground        ICAO separation standards could slow
    operational restrictions on       landings and departures and reduce the
    capacity (airport assessment):    total number of flights during peak
                                         hours.

    Current Aircraft Rescue and Fire  Meets ICAO ARFF requirements for
    Fighting (ARFF) capability (in    A380-sized aircraft.
    terms of equipment, personnel,
    and training):

               Source: GAO analysis of information obtained from Heathrow airport
               officials.

               Paris Charles de Gaulle International Airport handled about 53.7
               million passengers and over two million tons of cargo in 2005. The
               initial A380 flights from France to North America will be to the
               New York JFK and Montreal Trudeau airports beginning in 2009.
               United Arab Emirates, Singapore, and China Southern airlines could
               begin flights to Paris in 2008 and 2009, and will be an A380
               operating hub for KLM-Air France. Over $132 million has been
               invested for infrastructure upgrades to accommodate the A380, such
               as widening taxiway bridges to allow A380 access to all terminals.
               The investment also included widening and strengthening two
               runways at the airport and building a new satellite terminal
               complex specifically for A380s. The airport has four runways that
               will be used for A380 operations. Two of the runways are 60 meters
               wide and comply with ICAO Code F width, but their
               2,700-meter-lengths will likely be too short for departures. The
               two 4,200-meter-long, 45-meter-wide runways can be used for
               departures and landings but will have to be operated under waivers
               approved by the French Civil Aviation Authority. Nine gates will
               be ready for the A380 in 2008 and will be increased up to 30 by
               2018. Airport officials estimated that at least 10 percent of all
               passengers arriving at the airport will be aboard an A380 by 2020.
               Table 15 provides A380-related issues at Charles de Gaulle
               airport.

               Table 15: Paris Charles de Gaulle International Airport

    Airport facilities

    Expected start of A380 service     Summer 2008
    (month/year):

    Number of A380 landings and        Initially: Anticipates eight per day.
    departures each day (initial year
    and 5th year of service):          5th year: Not available.

    Carriers expected to bring A380 to Emirates (2008), Singapore Airlines
    airport (year of arrival):         (2009), China Southern (2009), Air
                                          France (2009), Korean Air (2010), Thai
                                          Airways (2010), Malaysian Airlines
                                          (after 2010).

    Expected level of A380 passenger   Passenger: Not available.
    and cargo operations:
                                          Cargo: Not available.

    Airfield design standards (runway  Airfield is ICAO Code E compliant.
    and taxiway width and
    separations):

    Airport baggage claim, terminal    None. Passenger waiting rooms and
    seating, and customs and           baggage facilities will be crowded, but
    immigration spatial concerns:      sufficient.
    Terminal gates A380-ready:         Nine gates will be ready for the A380
                                          in 2008 with most having two boarding
                                          bridges, but some will have three
                                          boarding bridges.

    Deviations from ICAO Code F        Runway and taxiway width, obstacle free
    standards:                         zones and stop-hold positions on
                                          taxiways leading to runways are less
                                          than ICAO standards.

    Operating restrictions used for    The A380 will be restricted to using
    the A380:                          two taxiing routes from each terminal
                                          to each runway.

    Possible impact of A380 operations None.
    on ground operations (special
    designated routing issues):

    Potential effect of ground         ICAO separation standards could slow
    operational restrictions on        landings and departures and reduce the
    capacity (airport assessment):     total number of flights during peak
                                          hours.

    Current Aircraft Rescue and Fire   Meets ICAO ARFF requirements for
    Fighting (ARFF) capability (in     A380-sized aircraft.
    terms of equipment, personnel, and
    training):

               Source: GAO analysis of information obtained from Charles de
               Gaulle airport officials.

    		   Appendix III: Comments by Airbus

    		   GAO�s Mission

               The Government Accountability Office, the audit, evaluation and
               investigative arm of Congress, exists to support Congress in
               meeting its constitutional responsibilities and to help improve
               the performance and accountability of the federal government for
               the American people. GAO examines the use of public funds;
               evaluates federal programs and policies; and provides analyses,
               recommendations, and other assistance to help Congress make
               informed oversight, policy, and funding decisions. GAO's
               commitment to good government is reflected in its core values of
               accountability, integrity, and reliability.

    		   Obtaining Copies of GAO Reports and Testimony

               The fastest and easiest way to obtain copies of GAO documents at
               no cost is through GAO's Web site ( www.gao.gov ). Each
               weekday, GAO posts newly released reports, testimony, and
               correspondence on its Web site. To have GAO e-mail you a list of
               newly posted products every afternoon, go to www.gao.gov and
               select "Subscribe to Updates."

    		   Order by Mail or Phone

               The first copy of each printed report is free. Additional copies
               are $2 each. A check or money order should be made out to the
               Superintendent of Documents. GAO also accepts VISA and Mastercard.
               Orders for 100 or more copies mailed to a single address are
               discounted 25 percent. Orders should be sent to:

               U.S. Government Accountability Office 441 G Street NW, Room LM
               Washington, D.C. 20548

               To order by Phone: Voice: (202) 512-6000 TDD: (202) 512-2537 Fax:
               (202) 512-6061

    		   To Report Fraud, Waste, and Abuse in Federal Programs

               Contact:

               Web site: www.gao.gov/fraudnet/fraudnet.htm E-mail:
               fraudnet@gao.gov Automated answering system: (800) 424-5454 or
               (202) 512-7470

    		   Congressional Relations

               Gloria Jarmon, Managing Director, JarmonG@gao.gov (202)
               512-4400 U.S. Government Accountability Office, 441 G Street NW,
               Room 7125 Washington, D.C. 20548

    		   Public Affairs

               Paul Anderson, Managing Director, AndersonP1@gao.gov (202)
               512-4800 U.S. Government Accountability Office, 441 G Street NW,
               Room 7149 Washington, D.C. 20548

    (540129)

    www.gao.gov/cgi-bin/getrpt?GAO-07-483 .

    To view the full product, including the scope
    and methodology, click on the link above.

    For more information, contact Gerald L. Dillingham at (202) 512-2834 or
    dillinghamg@gao.gov.

    Highlights of [44]GAO-07-483 , a report to congressional requesters

    April 2007

    COMMERCIAL AVIATION

    Potential Safety and Capacity Issues Associated with the Introduction of
    the New A380 Aircraft

    Airbus S.A.S. (Airbus), a European aircraft manufacturer, is introducing a
    new aircraft designated as the A380, which is expected to enter service in
    late 2007. The A380 will be the largest passenger aircraft in the world,
    with a wingspan of about 262 feet, a tail fin reaching 80 feet high, and a
    maximum takeoff weight of 1.2 million pounds. The A380 has a double deck
    and could seat up to 853 passengers.

    GAO was asked to examine the impact of the A380 on U.S. airports. In May
    2006, GAO issued a report that estimated the costs of infrastructure
    changes at U.S. airports to accommodate the A380. This report discusses
    (1) the safety issues associated with introducing the A380 at U.S.
    airports, (2) the potential impact of A380 operations on the capacity of
    U.S. airports, and (3) how selected foreign airports are preparing to
    accommodate the A380. To address these issues, GAO reviewed studies on
    operational and safety issues related to the A380 and conducted site
    visits to the 18 U.S. airports and 11 Asian, Canadian, and European
    airports preparing to receive the A380.

    GAO provided the Federal Aviation Administration (FAA) and Airbus a copy
    of the draft report for review. Both generally agreed with the report's
    findings. FAA and Airbus also provided technical clarifications, which
    were incorporated as appropriate.

    The A380 will be the first of a new category of large passenger aircraft
    introduced into the national airspace system in the coming years. The size
    of the A380 poses some potential safety challenges for U.S. airports. As a
    result, airports expecting A380 service may need to modify their
    infrastructure or impose operating restrictions, such as restrictions on
    runway use, on the A380 and other aircraft to ensure an acceptable level
    of safety. In addition, increased separation between the A380 and other
    aircraft during landing and departure is also required because research
    data indicate that the air turbulence created by the A380's wake is
    stronger than the largest aircraft in use today. The A380 also poses
    challenges for fire and rescue officials due to its larger size, upper
    deck, fuel capacity, and the number of passengers. FAA, Airbus, airports,
    and other organizations have taken several steps to mitigate these safety
    challenges. For example, the A380 is equipped with some safety
    enhancements, such as materials designed to reduce flammability and an
    external camera taxiing system to enhance pilot vision on the ground.

    The impact of A380 operations on capacity is uncertain. The A380 was
    designed, in part, to help alleviate capacity constraints faced by many
    large airports in the United States and around the world by accommodating
    more passengers and freight on each flight than any aircraft currently in
    use. However, potential operating restrictions and the increased
    separation requirements imposed to ensure the safety of the A380 and other
    aircraft at airports and during flight could reduce the number of flights
    that airports can accommodate. The extent to which possible operating
    restrictions, increased separation, and gate utilization impact capacity
    would depend on the time of day, the number of A380 operations, and the
    volume of overall airport traffic.

    Selected foreign airports that GAO visited have taken different approaches
    than U.S. airports in preparing for the introduction of the A380. These
    differences reflect the expected level of A380 traffic at the
    airports--and in some cases, the anticipated economic benefits of the A380
    flights. The different approaches include adopting alternative airport
    design standards, making significant investment in existing
    infrastructure, and designing airports that allow for new large aircraft.
    By implementing these approaches, officials from the foreign airports that
    GAO visited do not anticipate that the introduction of the A380 will
    result in delays or disruptions at their airports, despite higher levels
    of expected A380 traffic compared to most U.S. airports.

    Inaugural Airbus A380 Visit to Singapore Changi Airport

    References

    Visible links
      30. http://www.gao.gov/cgi-bin/getrpt?GAO-06-571
      31. http://www.gao.gov/cgi-bin/getrpt?GAO-06-915T
      32. http://www.gao.gov/cgi-bin/getrpt?GAO-06-571
      41. http://www.gao.gov/cgi-bin/getrpt?GAO-06-571
      42. http://www.gao.gov/cgi-bin/getrpt?GAO-06-571
      44. http://www.gao.gov/cgi-bin/getrpt?GAO-07-483
    *** End of document. ***