and this additional information has been of considerable aid in reviewing the report and recommendations contained therein.

In our review, we have considered and evaluated all the information available. This includes not only the report itself, but also various informal meetings with your authority, the airlines, and other aeronautical interests, as well as the testimony and exhibits presented at the informal public hearing. We feel we have made every effort to obtain information from every authentic source, and all data presented to us, as well as all other available material have been thoroughly considered by a full committee representing all phases of flying activities. Airports for the Detroit region indicates (p. vi) that small airports have been treated only to the extent that they affect the overall airline airport problem as it is intended to consider small airports in detail in subsequent studies. It has been our experience, based upon our review of urban planning studies for Detroit and other metropolitan areas in this region, as well as our experience in consulting with other municipal officials, that it is not practical or possible to separate an overall airport plan into two separate and distinct phases, i. e., airline and nonairline. We have found that the needs of a community and the possibility of providing adequate airport facilities to fill such needs, including the use of the surrounding airspace, is such an intricate and complex problem that it cannot be separated into two phases. Each of the phases is important in itself and is interdependent upon the other. Only by considering at one time the overall needs of a community can a regional plan of airports be established that will give full and impartial consideration to all phases of aviation.

In reviewing this report, and based upon the general contents of the correspondence we have had in connection therewith, as well as the general nature of the testimony and exhibits presented at the public hearing, it is apparent that the primary interest is the International site. The development of an airport at the International site has previously been considered but was not included in the approved urban plan for the Detroit region. However, in reviewing the approved urban plan, we find that the development of a major airport at the International site will not unduly interfere with other airport developments previously approved, therefore, our review will be limited to whether or not a major airport should be constructed at the International site and the approved urban plan so modified as to include such an airport.

Airports for the Detroit region estimates that there will be 3 million in-and-out domestic passengers by 1960. As a part of these estimates, it is also indicated that the Detroit region will have 2,340,000 passengers in 1955, of which 2,200,000 are classed as domestic passengers and the remainder as international. Our reason for using the 1955 figures is so they may be compared with the 1955 aeronautical activity estimates made by the Civil Aeronautics Administration.

The report states that between 1936 and 1947, passenger volumes increased about 775 percent. Future growth for a similar period ending about 1960 shows an anticipated increase of about 425 percent which can reasonably be expected. These estimates (which are basic in the report) vary considerably from estimates made by the Civil Aeronautics Administration. For example, we estimated by United States domestic airline passengers in 1955 will be approximately 160 percent of the passengers in 1948. It would therefore appear that the passenger estimates considered in the report are exceedingly optimistic, unless Detroit will serve a much greater percentage of the United States passengers than it has served in the past.

The report shows a chart (graph I, pl. VI) comparing the United States monthly passenger trend with the Detroit monthly passenger trend. This graph covers only the period 1945-48. If a longer period of time had been considered, it would show results somewhat different from those contained in the report. While the airline passenger figures for the Detroit area have shown substantial increase in the past 10 years, we find that Detroit passengers, when expressed as a percentage of the total United States domestic passengers, have steadily decreased; for example, in September of 1940 the Detroit metropolitan or 3.45 percent of the United States passengers. In September 1946 the enplaned passengers per 10,000 population were 377 or 3.97 percent of the United States passengers. In a similar manner, we find that for the fiscal year 1948 (July 1, 1947, to June 30, 1948) the enplaned passengers per 10,000 population had increased to 1,522 per 10,000 population or 2.70 percent of the United States

passengers. The following table shows the actual data obtained from Civil Aeronautics Board traffic surveys:

Data on more recent traffic indicates that Detroit passenger traffic is apparently becoming stabilized at an approximate figure of 2.7 percent of United States domestic passengers. This forces us to the conclusion that while the overall number of passengers originating in Detroit is increasing, the percentage of the United States passenger traffic originating at Detroit has actually decreased and appears to be stabilizing.

Using past traffic records to estimate future activity, we find that our estimate for passengers (enplaned and deplaned) in 1955 will be approximately 1,100,000. Airports for the Detroit region estimate 2,200,000 domestic passengers (in and out) in 1955. We therefore believe that the 2,200,000 estimate is optimistic.

In addition to the basic passenger estimates, the report also contains estimates concerning volume of airmail, air parcel post, air express, air freight, and other related commodity predictions. These estimates are eventually broken down into schedules on a yearly, average day, and peak-hour basis.

Airports for the Detroit region estimate that there will be 91,600 passenger schedules handling 1,170,000 passengers (domestic and international) in 1955. This volume will produce a peak hour of 50 schedules or 100 movements according to the report. Our estimates (based on past records) are more conservative and indicate a peak hour of approximately half this figure. The following comparisons of annual traffic are made for your consideration.

The report, of course, is a condensation of many estimates and studies made by the authority. It is not necessary for this office to make a detailed review or analysis of each and every figure. However, based upon the analyses we have made of the annual passengers anticipated and also based upon other spot checks, it is our opinion that all estimates in the report are optimistic and that the estimated traffic will not be experienced by 1960. It follows that if the estimated traffic is not experienced by 1960, the schedules and minimum requirements will also be decreased. It is therefore the opinion of this Administration that the development of another major terminal in the Detroit area will not be required as soon as indicated in Airports for the Detroit Region.

Our studies do indicate that there will be definite increases in all aeronautical activity in the Detroit region and that the existing facilities will eventually reach their capacity. It is therefore our opinion that the development of Wayne Major Airport should continue and that work should proceed on the preliminary studies and negotiations for the construction of an airport at the international site.

The previous position and recommendations of the Civil Aeronautics Adminis tration were contained in two letters dated October 29, 1945, and November 8, 1945, to Mr. S. M. Dean, chairman, Detroit Metropolitan Aviation Planning Authority, Detroit, Mich. The pertinent portions of these letters are quoted below: October 29, 1945:

"The consultants state in the report that it is regretted that they cannot now recommend the master plan having the major terminal at the international site. This has been occasioned by the international difficulties and complications. It is our belief that the international site and the corresponding master airport plan would be very satisfactory for the Detroit area. It appears that in spite of its desirability, the international site would be impractical of development within the near future. We concur with the consultants and therefore will not consider the most desirable solution at this time."

November 8, 1945:

*

"The consultants carefully considered the many factors affecting the construction of a major terminal in Canada. These factors included the delaying effect of passing through the customs; the necessity of reaching a suitable agreement with the Canadian authorities-by a treaty or otherwise; the lack of authority to spend Federal funds outside of the United States; and perhaps the reluctance of Detroit citizens to support such a proposal. Their conclusion is that '* * * a consideration of such a major site for actual development in the near future is infeasible.'

""They strongly recommend, however, that steps be taken by the authority and the Department of Aeronautics of the State of Michigan to find means through which certain of these matters can be cleared up, and that, if possible, these proceedings be carried to a point removing all the objections above referred to so that at some time in the future further consideration can be given to this important possibility.'

"This Administration concurs in their conclusion and agrees that the master plan using the international site as the terminal airport would be satisfactory. Since there are many obstacles to the adoption of this plan, we believe that initial action should be toward the development of a site in the United States. We also believe that further investigation and study should be made to determine the feasibility of constructing the International Airport. Our action should not be considered prejudicial in any way but rather represents a practical solution to the immediate problem, and defers action in the international site until more and definite information is available."

In accordance with the above recommendations, Wayne County has, with the assistance of the Federal Government, proceeded with the development and improvement of Wayne Major Airport. Federal aid in the amount of $1,611,600 has been accepted by the county and two separate Federal-aid projects are now under construction. Additional construction involving runways, taxiways, aprons, administration building, etc., must be undertaken before Wayne Major Airport will be completed. It is our recommendation that this additional construction be undertaken as soon as practical.

Numerous problems are encountered in the planning, designing, financing, and construction of any major airport. In the present case, the problems are further complicated by the fact that suitable arrangements must be made with Canada. We are informed that preliminary discussions have been held with Canadian officials. It is recommended that these discussions be continued so that the so-called international complications may be satisfactorily settled by treaty or otherwise prior to actual need of the new facility.

As indicated in our letter of November 8, 1945, and further substantiated by more recent reports, there may be some question as to whether or not there is authority to spend local public funds (State, city, or county) in Canada. We understand that preliminary steps are being taken by your office to secure a clearcut decision on this matter by legislative and/or court action. We recommend that action be continued to clear up this point.

The Federal Airport Act, approved May 13, 1946, states in section 3 that "the Administrator is hereby authorized and directed to prepare and revise annually the national plan for the development of public airports in the United States including Territory of Alaska, the Territory of Hawaii, and Puerto Rico * * This wording is very specific in that the national airport plan is limited to the development of public airports in the United States. Other portions of the Federal Airport Act specify that any project for the development of an airport must be first included in the national airport plan. It therefore follows that if Federal aid under the Federal Airport Act is to be considered in developing 83506-57-52

the international site, it will be necessary to amend the act to grant such authority. Such amendment, of course, must be passed by the Congress of the United States and approved by the President.

This office is sending a copy of this letter to our Washington office with the request and recommendation that they take such action as may be required to assist in negotiating with the Dominion of Canada, the Department of State, and the Congress of the United States to effectuate as many of the changes in laws and treaties as may be required to eventually permit the construction of an airport at the international site.

After a thorough and careful consideration of the report Airports for the Detroit Region, and other information available to this Administration, our recommendations are as follows:

1. The international site shall be included in the approved urban plan for the Detroit region as previously outlined in the last paragraph of our letter to Mr. Dean dated October 29, 1945. No other changes in the approved master plan are recommended at this time.

2. It is recommended that the Detroit Metropolitan Aviation Authority, or some other local government unit, proceed in making additional preliminary studies; continue negotiations for a treaty or other agreement with Canadian officials; make preliminary arrangements for financing; and make such other arrangements as may be required to provide the necessary legal authority for constructing an airport in Canada.

3. It is recommended that the actual physical development of this site be deferred until such time as careful estimates indicate its need.

4. It is recommended that the overall airport needs of the Detroit region be reexamined periodically so that changing conditions may be reflected in the approved urban airport plan.

5. It is recommended that the construction and improvement of Wayne Major Airport be continued.

DEAR MR. DEAN: Reference is made to your letter of November 2, 1945, returning our letter of October 29, 1945, and requesting further clarification of two specific points in connection with the review of the airport plan for the Detroit metropolitan area.

The first point raised is whether our approval of the master plan having Wayne County Airport as the principal terminal is prejudicial to the future consideration of the international site.

The consultants carefully considered the many factors affecting the construction of a major terminal in Canada. These factors included the delaying effect of passing through the customs; the necessity of reaching a suitable agreement with the Canadian authorities-by a treaty or otherwise; the lack of authority to spend Federal funds outside of the United States; and perhaps the reluctance of Detroit citizens to support such a proposal. Their conclusion is that, “a consideration of such a major site for actual development in the near future is infeasible.

"They strongly recommend, however, that steps be taken by the authority and the Department of Aeronautics of the State of Michigan to find means through which certain of these matters can be cleared up, and that, if possible, these proceedings be carried to a point removing all of the objections above referred to so that at some time in the future further consideration can be given to this important possibility."

This Administration concurs in their conclusion and agrees that the master plan using the international site as the terminal airport would be satisfactory. Since there are many obstacles to the adoption of this plan, we believe that initial action should be toward the development of a site in the United States. We also believe that further investigation and study should be made to determine the feasibility of constructing the international airport. Our action should not be

considered prejudicial in any way but rather represents a practical solution to the immediate problem, and defers action on the international site until more and definite information is available.

The second question concerns the possible use of Federal funds if the major airport were located on a site other than Wayne County Airport. We regret that we cannot give a definite answer at this time. Federal-aid bills have been passed by both the Senate and House of Representatives. Since these bills will be subject to change until finally passed and approved, we cannot predict the restrictions which may be placed upon the allocation of Federal funds.

We are returning our original letter and trust that the above explanation will clarify the points raised in your letter. Should you desire any further information or discussion, please feel free to call upon us.

Very truly yours,

GEORGE W. VEST,

Mr. SAM DEAN,

Regional Administrator.

DEPARTMENT OF COMMERCE,

CIVIL AERONAUTICS ADMINISTRATION,
Chicago, Ill., October 29, 1945.

Chairman, Detroit Metropolitan Aviation Planning Authority,
Detroit, Mich.

DEAR MR. DEAN: Reference is made to your letter of July 30, 1945, concerning the airport plan for the Detroit metropolitan area which was prepared by the consulting firms of Horner & Shifrin, St. Louis, Mo., and Smith, Hinchman & Grylls, Inc., of Detroit, Mich. This plan, dated July 1945, was submitted for our review and formal approval.

Our reply has been delayed in order to thoroughly review the plans, obtain additional information, and to hold a public hearing in order to give all interested parties an opportunity to present their views prior to any action by this Administration. The public hearing was held on October 3, 1945, and many exhibits filed and oral testimony given--all of which has been evaluated by our committee.

This is an excellent study and analysis of the factors which must be considered in any large metropolitan area. The Detroit authority should be complimented on their methods in securing such a comprehensive investigation and study. It considers in great detail the anticipated requirements and developments which can be expected in the Detroit area up to the year 1960. The report itself is very comprehensive and demonstrates a very complete examination of the basic factors and a thorough knowledge of the possible solution of the problems involved.

Since this report has been submitted to this office, it has been thoroughly considered by representatives of all branches of this Administration in the third region. Our committee is composed of various individuals who are specialists in the fields of airport design, traffic control, and private and airline operations. Therefore, the decisions and recommendations contained in this letter are not the views of any one individual or branch but are the consensus of the entire regional committee.

In connection with our review, we have considered and evaluated all the information available. This includes not only the report itself but also our various informal meetings with your authority, the consultants, the airlines, and other aeronautical interests and includes the testimony and exhibits presented at the public hearing held in our offices on October 3, 1945. We feel that we have made every effort to obtain information from every authentic source, and all data presented to us, as well as all other available material, has been thoroughly considered by a full committee representing all phases of flying activities.

Without attempting to repeat the recommendations of the consultants, the pertinent points of the report brought out the fact that the international site and the corresponding master airport plan was the most desirable for this area. It recommended that Wayne County Airport not be further expanded. In addition the principal recommendation was for the acquisition and development of the major airport terminal at the site identified as the Ford-Gulley Road site together with a master regional plan with this field as the primary or terminal airport.