Draft AIP Handbook, Order 5100.38E
Invitation for Public Comment on Draft FAA Order 5100.38E, Airport Improvement Program Handbook
Overview
We are pleased to announce the opportunity for public comment on the draft of FAA Order 5100.38E, Airport Improvement Program Handbook. Your feedback is crucial in ensuring that the final version of this document meets the needs of all stakeholders and adheres to current legal and policy guidelines.
Federal Register Notice: Request for Public Comment
The draft FAA Order 5100-38E is intended to supersede the existing Order 5100.38D, Change 1, which was released on February 26, 2019. This new draft incorporates important changes arising from the Federal Aviation Administration (FAA) Reauthorization Acts of 2018 and 2024, reflecting significant legal and policy updates.
- How to Participate: We encourage you to review the draft handbook thoroughly and submit your comments by the specified deadline. Here’s how you can participate:
- Review the Draft: An electronic copy of the draft FAA Order 5100.38E is available below.
- Submit Your Comments: Please submit your feedback, referencing docket number FAA-2026-4006, through any of the following methods:
- Online: Visit the Government-wide Rulemaking Website and follow the instructions for submitting comments.
- Email: Send your comments to AIPhandbook@faa.gov.
- Mail: Address your comments to FAA Office of Airports, Airport Planning and Programming, Routing Symbol APP-540, 800 Independence Avenue SW., Washington, DC 20591.
- Hand Delivery: Deliver your comments to the FAA Office of Airports, Airport Planning and Programming, Routing Symbol APP-540, 800 Independence Avenue SW., Washington, DC 20591, between 9 a.m. and 4 p.m., Monday through Friday, except Federal holidays.
- Deadline for Comments: All comments must be received by August 17, 2026. We will carefully review all timely submissions as part of the process to finalize this Order.
We value your input and look forward to your participation in shaping the future of the Airport Improvement Program Handbook.
Questions?
For additional information, please contact the FAA AIP Handbook Team at AIPhandbook@faa.gov.
Draft FAA Order 5100.38E, Airport Improvement Program Handbook
AIP Handbook Instructions
Instructions: Use the links in the "Table of Contents" menu to navigate to the section of the handbook you would like to review. Click on the "∨" sign next to the section title to expand that section of the menu; click on the "∧" sign to collapse that section of the menu.
Draft Order 5100.38E, AIP Handbook: Key Updates (coming soon)
Notice about Planned File Updates
Some of the files linked below include highlighted text noting links to webpages that are not yet available. Once the webpages are published, we will add the links, republish the files, and identify the updates here.
Table of Contents
Chapters
- i. Preamble
- i.1. Purpose
- i.2. Distribution
- i.3. Cancellation
- i.4. Explanation of Changes
- i.5. Introduction to the Airport Improvement Program Handbook
- i.5.1. Purpose of the Order
- i.5.2. Audience
- i.5.3. Order Location on the Internet
- i.5.4. Publications This Order Will Cancel Once Final
- i.5.5. Relevant AIP Legislation
- i.5.6. Application of 2 CFR Part 200
- i.5.7. References
- i.5.8. Use of the Term ARP Field Office
- i.5.9. Acronyms And Definitions
- i.5.10. Errata And Revisions
- i.5.11. General Principles of This Order
- i.5.12. New Layout and Format
- i.5.13. Chapters And Appendices of the AIP Handbook
- Chapter 1 - Key Principles of the AIP
- 1-1. Overview
- 1-1.1. Funding Priorities
- 1-1.2. FAA’s Approach to Transportation Planning
- 1-2. AIP Grant Authority
- 1-2.1. Prioritizing Grants
- 1-3. Grant Recipients
- 1-3.1. Sponsor Qualification Criteria
- 1-4. Airports Discussed in This Order
- 1-5. Funding For Airport Development
- 1-5.1. Calculating The AIP Funding Distribution
- 1-5.2. AIP Grant categories
- 1-5.3. “Noncompetitive” Discretionary Fund
- 1-6. AIP Grant Agreements
- 1-7. Programs Within The AIP
- 1-7.1. State Block Grant Program (SBGP)
- 1-7.2. Airport Investment Partnership Program (AIPP)
- 1-7.3. Military Airport Program (MAP)
- 1-7.4. Letters Of Intent (LOI)
- 1-7.5. Innovative Finance Program
- 1-7.6. Pilot Program for the Purchase of Airport Development Rights
- 1-7.7. Other AIP Pilot Programs
- 1-8. Related Programs
- 1-8.1. Airport Safety and Resilient Infrastructure Discretionary Program (ASRID)
- 1-8.2. Congressionally Directed Spending (CDS) / Community Project Funding (CPF)
- 1-1. Overview
- Chapter 2 - Eligibility and Justification
- 2-1. Overview
- 2-1.1. The AIP Statute Is a Permissive Statute
- 2-1.2. Orders Versus Advisory Circulars
- 2-1.3. AIP And PFC Eligibility Differences
- 2-2. Eligibility
- 2-2.1. Unclassified Airports Eligibility Limitations
- 2-2.2. Disaster Recovery Eligibility Limitations
- 2-3. Justification
- 2-3.1. Determining Justification
- 2-3.2. Minimum Useful Life
- 2-3.3. Use Of Critical Aircraft Justification
- 2-3.4. Safety And Security Project Justification
- 2-3.5. Benefit-Cost Analysis (BCA) For AIP Projects
- 2-3.5.1. Associated Work
- 2-3.5.2. Estimated Funding
- 2-3.5.3. Capacity Projects Using Noncompetitive Discretionary Funds
- 2-3.5.4. All Other Projects
- 2-3.5.5. Allowable Preparation Costs
- 2-3.6. Allowable Costs
- 2-3.6.1. Costs Must Be Necessary
- 2-3.6.2. Costs Must Be Incurred After Grant Agreement Is Executed
- 2-3.6.2.1. Climate-Related Conditions Reimbursement
- 2-3.6.3. Costs Must Be Reasonable
- 2-3.6.4. Costs Not in Another Federal Grant
- 2-3.6.5. Allowable Federal Share Requirement
- 2-3.6.6. Specific Allowable Project Costs
- 2-3.6.6.1. General Administrative and Indirect Costs
- 2-3.6.6.2. Construction And Infrastructure Costs
- 2-3.6.6.3. Environmental And Historic Places Costs
- 2-3.6.6.4. Equipment And Technology Costs
- 2-3.6.6.5. Land, Legal, And Relocation Costs
- 2-3.6.6.6. Operational And Safety Costs
- 2-3.6.6.7. Utility And Service Costs
- 2-3.6.6.8. Project Development and Agreement Costs
- 2-3.6.6.9. Permitted Costs Not Typically Allowable
- 2-3.7. Prohibited Projects and Unallowable Costs
- 2-1. Overview
- Chapter 3 - Grant Prerequisites
- 3-1. Overview
- 3-2. Project Readiness
- 3-2.1. Project Identification and Planning
- 3-2.2. Coordination Between Sponsor and ARP Field Office
- 3-2.2.1. Project Schedule Considerations
- 3-2.2.2. Project Phasing and Usable Units of Work
- 3-2.3. Preliminary Grant Application Process
- 3-3. Planning, Compliance, Environmental, and Civil Rights Prerequisites
- 3-3.1. Planning Prerequisites
- 3-3.1.1. Project On Airport Property with Good Title
- 3-3.1.2. Project On Airport Layout Plan (ALP)
- 3-3.1.3. Community Consultation
- 3-3.2. Compliance Prerequisites
- 3-3.2.1. Pavement Maintenance Management Program
- 3-3.2.2. Buy American Requirements
- 3-3.2.3. Competition Plans
- 3-3.2.4. FAA Policies, Standards, and Specifications
- 3-3.3. Environmental Prerequisites
- 3-3.4. Civil Rights Prerequisites
- 3-3.1. Planning Prerequisites
- 3-4. Financial And Procurement Prerequisites
- 3-4.1. Financial Prerequisites
- 3-4.1.1. Incentive Payments
- 3-4.1.2. Economic Price Adjustments
- 3-4.1.3. Project Completion Prerequisites
- 3-4.2. Procurement Prerequisites
- 3-4.2.1. Procurement Process Review Requirements
- 3-4.2.2. Pre-Procurement Review
- 3-4.2.3. Noncompetitive Procurement Processes
- 3-4.2.4. Contracts Containing Ineligible or Non-AIP Funded Work
- 3-4.2.5. Contracts Containing Requirements That May Reduce Number of Potential Bidders
- 3-4.2.6. Consultant Contracts (Qualifications Based with Negotiated Price)
- 3-4.2.7. Alternative Project Delivery Contracts
- 3-4.2.8. Federal Contract Provisions
- 3-4.2.9. Bid Alternates and Additives
- 3-4.2.10. Bid Protests and Appeals
- 3-4.2.11. Force Account Work
- 3-4.2.12. Value Engineering
- 3-4.2.13. Contract or Task Order Extensions
- 3-4.2.14. Suspension And Debarment
- 3-4.2.15. Project Labor Agreements
- 3-4.1. Financial Prerequisites
- Chapter 4 - Grant Management Process
- 4-1. Overview
- 4-1.1. Pre-Grant Readiness
- 4-1.2. Advancement Of Projects in the Airports Capital Improvement Plan (ACIP)
- 4-2. Grant Programming
- 4-2.1. Preliminary Project Grant Applications
- 4-2.2. Preliminary Project Grant Programming Actions
- 4-2.3. Requirements That May Be Delayed
- 4-3. Grant Application
- 4-3.1. Final Project Grant Applications
- 4-3.2. Grant Application Submission
- 4-3.3. Grant Application Review
- 4-4. Grant Offer and Execution
- 4-4.1. Reservation Of Funds
- 4-4.2. Grant Offer Package
- 4-4.3. Special Conditions
- 4-4.4. Grant Assurances and Sponsor Certifications
- 4-4.5. Issuance And Acceptance of the Grant Offer
- 4-4.6. Grant Execution
- 4-5. Grant Oversight
- 4-5.1. Overview Of Post-Award Oversight
- 4-5.2. Risk-Based Oversight
- 4-5.3. Grant File Documentation
- 4-5.4. Project Conferences
- 4-5.5. Construction Management Programs
- 4-5.6. Notice To Proceed
- 4-5.7. Inspections
- 4-5.8. Planning And Environmental Study Grant Meetings
- 4-5.9. Planning And Environmental Project Forecasts
- 4-5.10. Performance Reports
- 4-5.11. Annual Reporting of Residential Population Benefits
- 4-5.12. Final Inspection
- 4-6. Contract Changes, Amendments, And Payments
- 4-6.1. Contract Changes and Cost Reasonableness
- 4-6.2. Grant Amendments
- 4-6.3. Grant Payments
- 4-6.4. Financial Reporting and Record Retention
- 4-7. Grant Suspension and Termination
- 4-7.1. FAA Remedies for Noncompliance
- 4-7.2. Grant Suspension
- 4-7.3. Grant Termination
- 4-8. Grant Closeout
- 4-8.1. Closeout Triggers
- 4-8.2. Period Of Performance (POP)
- 4-8.3. Sponsor Closeout Submittal Responsibilities
- 4-8.4. Final Financial Reconciliation
- 4-8.5. Final Payment
- 4-8.6. Final Project Determination
- 4-8.7. Determination Of Unused Funds
- 4-8.8. Closeout Completion
- 4-9. Post-Close Out Actions
- 4-9.1. Record Retention Requirements
- 4-9.2. Reopening Closed Grants
- 4-9.3. Audit Requirements
- 4-9.4. Disposition Of AIP-Funded Equipment
- 4-9.5. Disposition Of AIP-Funded Land
- 4-1. Overview
Appendices
- Appendix B - Aircraft Operational Surfaces
- B-1. Overview
- B-2. General Eligibility and Justification
- B-2.1. Eligibility Criteria
- B-2.2. Justification Requirements
- B-2.2.1. Scope & Allowable Costs
- B-2.2.2. Useful Life
- B-2.2.3. Relevant Guidance for All AOS Projects
- B-2.2.3.1. Excluded Work for All AOS Projects
- B-2.2.3.2. State Highway Standards for Certain AOS Projects
- B-3. Eligible Runway Projects (Including Sea Lanes and Helipads)
- B-3.1. Overview
- B-3.2. Eligibility and Justification
- B-4. Eligible Taxiway Projects (Including Taxi Channels)
- B-4.1. Overview
- B-4.2. Eligibility and Justification
- B-5. Aprons (Including Ramps, Pads, And Docks)
- B-5.1. Overview
- B-5.2. Eligibility and Justification
- B-6. Taxilanes
- B-6.1. Overview
- B-6.2. Eligibility and Justification
- B-7. Related Projects
- Appendix C - Airfield Infrastructure
- C-1. Overview
- C-2. General Eligibility and Justification
- C-2.1. Eligibility Criteria
- C-2.2. Justification Requirements
- C-2.2.1. Scope & Allowable Costs
- C-2.2.2. Useful Life
- C-3. Operational Safety Areas
- C-3.1. Justification Requirements
- C-3.2. EMAS Evaluation Criteria
- C-4. Air Operations Areas
- C-4.1. Justification Requirements
- C-5. Wildlife Hazard Mitigation Areas
- C-5.1. Justification Requirements
- C-6. Airfield Protection Boundary Areas
- C-6.1. Justification Requirements
- C-6.2. Land Requirements and Considerations
- C-7. Related Airfield Infrastructure Projects
- Appendix D - Environmental and Energy
- D-1. Overview
- D-2. General Eligibility and Justification
- D-2.1. Eligibility Criteria
- D-2.2. Justification Requirements
- D-2.2.1. Scope & Allowable Costs
- D-2.2.2. Useful Life
- D-3. Eligible Environmental & Energy Projects
- D-3.1. Eligible Environmental Mitigation Projects
- D-3.2. Energy Efficiency Projects
- D-4. Related Projects
- Appendix E - Equipment & Facilities
- E-1. Overview
- E-2. General Eligibility and Justification
- E-2.1. Eligibility Criteria
- E-2.2. Justification Requirements
- E-2.2.1. Scope & Allowable Costs
- E-2.2.2. Useful Life
- E-3. Eligible Equipment And facility Projects
- E-4. Related Projects
- Appendix F - Lighting, Signage and Markings
- F-1. Overview
- F-2. General Eligibility and Justification
- F-2.1. Eligibility Criteria
- F-2.2. Justification Requirements
- F-2.2.1. Scope & Allowable Costs
- F-2.2.2. Useful Life
- F-3. Eligible Lighting, Signage, And Marking Projects
- F-3.1. Special Considerations
- F-3.1.1. Lighting Projects Supporting U.S. Air Force (USAF) and Air National Guard (ANG)
- F-3.1.2. Light Emitting Diode (LED) Lighting
- F-3.1.3. Deicing Pad Lighting
- F-3.1.4. Thermoplastic Markings
- F-3.1. Special Considerations
- F-4. Related Projects
- Appendix G - NAVAIDS
- G-1. Overview
- G-2. General Eligibility and Justification
- G-2.1. Eligibility Criteria
- G-2.2. Justification Requirements
- G-2.2.1. Scope & Allowable Costs
- G-2.2.2. Useful Life
- G-3. Eligible NAVAID Projects
- G-4. Related Projects
- Appendix H - New Airport
- H-1. Overview
- H-2. Eligibility and Justification
- H-2.1 Eligibility Criteria
- H-2.2 Justification Requirements
- H-2.2.1 Scope & Allowable Costs
- H-2.2.2 Useful Life
- H-3. Eligible New Airport Projects
- H-4. Related Projects
- Appendix I - Noise
- I-1. Overview
- I-2. General Eligibility and Justification
- I-2.1. Eligibility Criteria
- I-2.2. Justification Requirements
- I-2.2.1. Scope & Allowable Costs
- I-2.2.2. Useful Life
- I-3. Eligible Noise Projects
- I-4. Related Projects
- Appendix J - Pilot Programs
- J-1. Overview
- J-2. General Eligibility and Justification
- J-2.1. Eligibility Criteria
- J-2.2. Justification Requirements
- J-2.2.1. Scope & Allowable Costs
- J-2.2.2. Useful Life
- J-3. Eligible Pilot Program Projects
- J-4. Related Projects
- Appendix K - Planning
- K-1. Overview
- K-2. General Eligibility and Justification
- K-2.1. Eligibility Criteria
- K-2.2. Justification Requirements
- K-2.2.1. Scope & Allowable costs
- K-3. Eligible Planning and System Studies
- K-4. Related Projects
- Appendix L - Revenue Producing
- L-1. Overview
- L-2. General Eligibility and Justification
- L-2.1. Eligibility Criteria
- L-2.2. Justification Requirements
- L-2.2.1. Scope & Allowable Costs
- L-2.2.2. Useful Life
- L-3. Eligible Revenue Producing Projects
- L-4. Related Projects
- Appendix M - Security
- M-1. Overview
- M-2. General Eligibility and Justification
- M-2.1. Eligibility Criteria
- M-2.2. Justification requirements
- M-2.2.1. Scope & Allowable Costs
- M-2.2.2. Useful Life
- M-3. Eligible Security Projects
- M-4. Related Projects
- Appendix N - Terminal Development
- N-1. Overview
- N-2. General Eligibility and Justification
- N-2.1. Eligibility Criteria
- N-2.2. Justification Requirements
- N-2.2.1. Scope & Allowable Costs
- N-2.2.2. Useful Life
- N-3. Eligible Terminal Development Projects
- N-4. Related Projects
- Appendix O - Towers
- O-1. Overview
- O-2. General Eligibility and Justification
- O-2.1. Eligibility Criteria
- O-2.2. Justification Requirements
- O-2.2.1. Useful Life
- O-3. Eligible Tower Projects
- O-4. Related Projects
Resources
- AIP Airport Categories (coming soon)
- AIP Funding Categories (coming soon)
- Airport Sponsors (coming soon)
- Airport Sponsor Qualification Criteria (coming soon)
- Benefit-Cost Analysis (BCA) for the Airport Improvement Program (AIP) (coming soon)
- Duration and Applicability of Grant Assurances (coming soon)
Last updated: Friday, May 15, 2026