On Feb. 28, 1995, one of the most important and controversial projects in Denver’s history — Denver International Airport — opened for business. Since then, it has contributed significantly to Denver’s emergence as a rapidly globalizing city. It ranks as the fifth- busiest airport in the U.S. and 15th-busiest in the world, and provides numerous economic benefits to Denver.
This apparent success story was not achieved easily; its planning and construction were bedeviled by numerous setbacks, including the ill-fated effort to build a fully-automated baggage system throughout the airport. This caused long delays and contributed to a final cost of more than $5 billion, a 300 percent increase from the original estimate. DIA faced other problems in its first few years, such as sluggish passenger growth, the loss of Continental Airlines’ hub, higher rental and landing fees, increased fares for passengers and limited economic development.
Though DIA overcame these obstacles, this history provides valuable lessons for airport planners throughout the world, including those who will inevitably be charged with expanding America’s underdeveloped airport capabilities.
Unfortunately, lessons that were learned nearly 20 years ago are still relevant in light of recent events involving DIA.
1. Land use planning around airports should be coordinated and consistent among affected jurisdictions. If planning is to be effective, jurisdictions must agree on coordinated and consistent land-use plans around airports.
Recent efforts to develop an airport city, or “aerotropolis,” at DIA, while well-intentioned, seemed to ignore this basic principle. It appears that the city and county of Denver, seemingly unaware of the 1988 agreement with Adams County that restricted non-airport development on airport property, failed to include relevant stakeholders in Adams County, Aurora, and other nearby jurisdictions. Fortunately, Denver has since engaged in a planning and negotiation process with these jurisdictions to develop a coordinated plan that should allow new economic development opportunities to be realized. New lesson learned: Be aware of existing intergovernmental agreements.
2. Since most airport megaprojects go over budget, better planning for predictable and unpredictable contingencies might enhance success. Also, recognize the importance of maintaining flexibility throughout the process.
Unfortunately, the ongoing South Terminal Hotel and Transit Center project has followed this pattern. The initial estimate of $500 million has climbed to at least $599 million, according to a recent report from the Denver Auditor. Building in cost control mechanisms and commitments to enhanced flexibility to be better prepared for contingencies continue to be relevant lessons for ongoing airport projects.
3. Depoliticize the contracting process. Denver’s mayors and city council exerted their influence in the contracting process to ensure their supporters were awarded contracts. We have learned that affirmative action, while a laudable goal, can be used to mask political cronyism.
The HTC project has an overall minority- and women-owned business-enterprise participation goal of 30 percent. The Denver Post has reported one such business with a $39.6 million contract has subcontracted more than half to a company that does not qualify as a minority contractor. Besides contributing to increased costs for the project, other qualified minority- and women-owned business enterprises have been left out.
4. Incorporate multimodal ground access into the new terminal. Most of the world’s major new airports incorporate rail directly into the airport terminal, allowing efficient, environmentally-sound ground access.
The East Corridor rail line will finally provide service from Union Station to DIA in 2016. While this should have been incorporated into the original plan twenty years ago, it’s better late than never. Old lesson relearned: Develop intermodal transportation systems.
Notwithstanding the lessons that were not learned, DIA’s planners did several things right, especially acquiring enough space to permit significant expansion over time and enhancing service. We can now fly nonstop to a growing number of international destinations that were far less accessible before DIA’s inauguration.
Andrew R. Goetz is professor and chair in the Department of Geography & the Environment and a faculty member in the Intermodal Transportation Institute at the University of Denver. Joseph S. Szyliowicz, professor of Middle East and Policy studies at the Josef Korbel School of International Studies, University of Denver, is the founder of its Intermodal Transportation Institute. Paul Dempsey, a professor at McGill University, contributed to this essay. The three are authors of “Denver International Airport: Lessons Learned” (McGraw Hill, 1997).
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