Notice of Agency Determination on Waiver With Respect to Land; Indianapolis Downtown Heliport, Indianapolis, Indiana

Issuing agencies

Abstract

The Federal Aviation Administration (FAA) considered a proposal to permanently close the Indianapolis Downtown Heliport and change 5.36 acres of land from aeronautical use to non-aeronautical use and to authorize the sale of the heliport property located at the Indianapolis Downtown Heliport (8A4/Heliport), Indianapolis, Indiana. This notice is published pursuant to 49 U.S.C. 46319, Permanent Closure of an Airport without Providing Sufficient Notice, and 49 U.S.C. 47107(h)(2), Public Notice Before Waiver of Aeronautical Land-Use Assurance. The Indianapolis Airport Authority (IAA/Authority/Sponsor) submitted a request to release the Authority from its Federal Airport Improvement Program (AIP) obligations associated with Indianapolis Downtown Heliport. Upon reconsideration of its initial decision, the FAA has determined the AIP obligations associated with 8A4 will not be released.

Full Text

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<title>Federal Register, Volume 91 Issue 196 (Tuesday, October 13, 2026)</title>
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[Federal Register Volume 91, Number 196 (Tuesday, October 13, 2026)]
[Notices]
[Pages 65028-65036]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-20859]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration


Notice of Agency Determination on Waiver With Respect to Land; 
Indianapolis Downtown Heliport, Indianapolis, Indiana

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Notice.

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SUMMARY: The Federal Aviation Administration (FAA) considered a 
proposal to permanently close the Indianapolis Downtown Heliport and 
change 5.36 acres of land from aeronautical use to non-aeronautical use 
and to authorize the sale of the heliport property located at the 
Indianapolis Downtown Heliport (8A4/Heliport), Indianapolis, Indiana. 
This notice is published pursuant to 49 U.S.C. 46319, Permanent Closure 
of an Airport without Providing Sufficient Notice, and 49 U.S.C. 
47107(h)(2), Public Notice Before Waiver of Aeronautical Land-Use 
Assurance. The Indianapolis Airport Authority (IAA/Authority/Sponsor) 
submitted a request to release the Authority from its Federal Airport 
Improvement Program (AIP) obligations associated with Indianapolis 
Downtown Heliport. Upon reconsideration of its initial decision, the 
FAA has determined the AIP obligations associated with 8A4 will not be 
released.

DATES: This determination is effective October 13, 2026.

FOR FURTHER INFORMATION CONTACT: Debra L. Bartell, Acting Deputy 
Director, Airports Division, Great Lakes Region, (847) 294-7272.

SUPPLEMENTARY INFORMATION:

I. Background

    Indianapolis Downtown Heliport (8A4) is currently in the National 
Plan of Integrated Airport Systems (NPIAS) categorized as a heliport. 
8A4 is a non-towered facility with helicopter landing area, apron, fuel 
farm, two hangars, and nonaeronautical facilities. In addition, there 
is a parking garage below the heliport.
    In 1983, FAA announced the National Prototype Demonstration 
Heliports Program to build full-service heliports in major urban areas 
to promote the integration of helicopter use into the urban 
transportation infrastructure, and an application was submitted by IAA. 
In 1983, the Indiana Department of Transportation (INDOT) included the 
heliport in the Indianapolis Metropolitan Airport System Plan as a 
reliever heliport, its federal designation was changed accordingly to 
``reliever heliport'' in the NPIAS, a necessary requirement for 
consideration in the national prototype program. From 1983 to 2020, the 
Authority accepted AIP grants amounts of $2,476,229 in entitlement 
grants, $4,211,674 in discretionary, and $20,000 in COVID-Relief for a 
total of $6,707,903 funds. Of this amount, the Authority accepted 
approximately $574,900 to acquire approximately 6.3 acres for the 
heliport. However, between 1984 and 1985, three tracts of land were 
released totaling 0.937 acres for road changes and utilities. 
Consequently, the remaining land that is obligated and for which IAA 
requested a release total is 5.36 acres.
    The Authority is also the sponsor of Indianapolis International 
Airport, Eagle Creek Airpark, Indianapolis Metropolitan Airport, 
Indianapolis Regional Airport, and Hendricks County Airport. These 
airports are part of the NPIAS. 8A4 is located near these public use 
airports.
    In letters dated October 27, 2021, and February 11, 2022, IAA sent 
FAA their request to release the heliport property.
    FAA published a Notice of Intent of Waiver With Respect to Land; 
Indianapolis Downtown Heliport, Indianapolis, IN, 88 FR 8029 (February 
7, 2023). In that notice, FAA requested public comments on the proposed 
permanent closure of 8A4 and change of 5.36 acres of land from 
aeronautical use to non-aeronautical use and to authorize the sale of 
all heliport property located at the Heliport. Public comments closed 
on March 9, 2023. The Notice received 270 comments during the comment 
period. All comments to the February 7, 2023, notice opposed the 
proposed closure.

[[Page 65029]]

    The Authority contended in further correspondence on May 22, 2024, 
and June 26, 2024, that rehabilitation costs for the Heliport would be 
significant and as much as $30 to 40 million; there was limited 
aeronautical activity; the remaining based tenant was in the process of 
relocating its helicopter operations to an airport; and the Authority 
committed to building a future vertiport at Indianapolis International 
Airport, which is an approximately 15-minute drive from the Heliport.
    After reviewing information related to the proposed release and 
closure of 8A4, on November 25, 2024, FAA issued IAA a letter of intent 
to release all federal obligations and approve permanent heliport 
closure. See FAA Compliance Guidance Letter, 2022-1--The Process for 
the Release and Permanent Closure of Federally Obligated Airports. 
(February 2, 2023) Pursuant to 49 U.S.C. 46319 and 47107(h). FAA then 
published a Notice of Permanent Closure; Indianapolis Downtown 
Heliport, Indianapolis, Indiana, indicating 8A4 would close on December 
15, 2025. 90 FR 51067 (November 14, 2025).
    On December 10, 2025, and December 23, 2025, FAA received written 
requests that FAA reconsider its intent to permit the proposed 
permanent closure of 8A4 and release and sale of the heliport property.
    On January 13, 2026, FAA published a Notice of Intent of Waiver 
With Respect to Land; Indianapolis Downtown Heliport, Indianapolis, IN, 
91 FR 1371, seeking further public comment on the proposed permanent 
closure and release of the subject heliport property at 8A4 from 
federal land covenants. The comment period for this notice was 
scheduled to end on February 12, 2026, and FAA received a request to 
extend the comment period. FAA published a Notice of Intent of Waiver 
With Respect to Land; Extension of Comment Period Indianapolis Downtown 
Heliport, Indianapolis, IN, 91 FR 5797 (February 9, 2026) extending the 
comment period to February 26, 2026. FAA received and considered a 
combined total of 737 comments on the January 13, 2026, Notice and 
February 9, 2026, Extension Notice.

II. Summary of Public Comments

    735 public comments were received on <a href="http://Regulations.gov">Regulations.gov</a> and two 
additional comments were sent directly to FAA. Of the 737 total comment 
submissions, 41 were in support of permanent closure and release from 
federal land covenants at 8A4; 686 comments were in support of 8A4 
remaining open; eight comments were unclear; one comment was related to 
FAA process and procedure; and one comment requested an extension of 
the comment period.
    The FAA will consider a release of a sponsor from any airport 
agreement to the extent that such action has the potential to protect, 
advance, or benefit the public interest in civil aviation. In all 
cases, the FAA's prime concern is the benefit to civil aviation and is 
represented by various considerations. These include the future growth 
in operations; capacity of the airport; the interests of aeronautical 
users and service providers; the state aviation agency; the local, 
regional, and national interest of the airport; and the impact on the 
airport system (State and national). FAA Compliance Guidance Letter, 
2022-1.
    The public comments received have been grouped to correspond to the 
considerations above with comments related to the future growth in 
operations and capacity of the airport summarized in the Interests of 
Aeronautical Users and Service Providers; Local, Regional, National 
Interests of the Heliport; and Impact on the Airport System groupings.

A. Comments Opposing the Proposed Permanent Closure and Release From 
Federal Land Covenants at 8A4

    Commenters opposed to the permanent closure and release from 
federal land covenants at 8A4 argued that there continues to be a need 
for and net benefit to civil aviation from the 8A4 facility. Although 
there were some generic comments in opposition, the majority of the 
comments can be grouped into one or more of the following areas: net 
benefit to civil aviation; interests of aeronautical users and service 
providers; opinion of the state aviation agency; local, regional, and 
national interests; impact on the airport system; and other concerns.
1. Net Benefit to Civil Aviation
    Commenters noted closing 8A4 does not result in a net benefit to 
civil aviation.
2. Interests of Aeronautical Users and Service Providers
    Commenters stated they have used 8A4 in the past and would continue 
to do so if it remained open, as it is one of the only public-use 
heliports in Indiana, they further noted the heliport provides 
centrally located vertical lift access to the downtown Indianapolis 
area. Commenters stated the facility offers a unique helicopter 
training opportunity with dedicated helicopter instrument approach 
procedures and practice operations in a public urban facility. 
Commenters also stated 8A4 is a valuable part of Indiana's aviation 
system and that the closure of this facility would have a detrimental 
impact on the entire state and local community.
    A large number of commenters mentioned that 8A4's continued 
operation is necessary to support public safety operations. They noted 
that 8A4 is used for emergency medical services when existing hospital 
heliports are unavailable due to weather, facility congestion or when 
the facility is not capable of supporting heavier helicopters 
operations. Commenters also noted that using 8A4 for refueling 
operations allows their helicopters to be operationally ready for the 
next movement in less time than flying to a facility located outside 
the downtown Indianapolis area for fuel. In addition to helicopter 
emergency medical operations, commenters noted the facility is 
essential for law enforcement, military training and operations, 
emergency operations and public safety events, disaster relief, and VIP 
and government movements to the downtown Indianapolis area.
3. Opinion of the State Aviation Agency
    The Attorney General of Indiana submitted a comment that detailed 
previous communication from the Indiana Department of Transportation 
objecting to the decommissioning of the heliport. The comment included 
a letter the Indiana Department of Transportation sent to the 
Indianapolis Airport Authority dated June 30, 2021, that stated:

    INDOT Office of Aviation concurs that the facility is being 
under-utilized in its current state. However, the potential for 
aeronautical use is still valuable to the Indiana State Aviation 
System Plan, and in accordance with the charge in IC 8-21-1-14, this 
office recommends development of more alternatives to keep the 
Indianapolis Heliport in operation to serve the needs of Indiana's 
flying public. The INDOT Office of Aviation understands the 
potential for change of sponsorship may not have been considered, 
but as an alternative to closure of the aviation facility, selling 
the facility and transferring the sponsorship would still allow the 
heliport to continue to serve the needs of Hoosiers by maintaining 
its place in the Indiana State Aviation System.

    The comment included further email communications between the 
Manager of the Indiana Department of Transportation, Office of Aviation 
and FAA on August 26, 2024, and September 20, 2024, that indicated the 
Indiana Department of Transportation's Office of Aviation's position 
remained

[[Page 65030]]

the same in recommending the review of other alternatives for the 
facility.
4. Local, Regional, and National Interests of the Heliport
    The Indiana State Police submitted a comment detailing their 
opposition of the closure and that 8A4 is a critical asset to the 
Indiana State Police and State of Indiana. They detailed how 8A4 is 
used by the Indiana State Police during intensive law enforcement 
operations; how using the facility saves wear and tear on helicopters, 
saves fuel and saves time; how 8A4 is used to transport the Governor 
and other dignitaries to and from Indianapolis; and how 8A4 offers 
unique helicopter training opportunities within the urban core.
    The Attorney General of Indiana's comment noted the Indiana 
National Guard has a dual federal-state mission and the loss of the 
heliport forecloses an important aviation asset for training purposes 
and use during times of crisis when needed.
    A letter submitted as a comment from Governor Mike Braun, State of 
Indiana, noted: ``This heliport is critical to both the City of 
Indianapolis and the State of Indiana as we seek to connect our transit 
assets to support critical needs of the community as well as future 
economic development opportunities.''
    In addition, Governor Braun stated that he issued Executive Order 
25-73 on October 29, 2025, to establish the Indiana Initiative for the 
Drone Dominance Task Force in support of President Trump's June 6, 
2025, Executive Order 14307 (Unleashing American Drone Dominance), 
which seeks to ``fully integrate'' drone technologies into the National 
Airspace System and further directs FAA to establish an Electric 
Vertical Takeoff and Landing (eVTOL) program. Both he and the Indiana 
Attorney General argue that centrally located, urban infrastructure, 
like 8A4, is necessary to achieve the goals of these directives.
    Commenters also noted that closure of 8A4 would be ill-timed in 
light of the aviation industry shifting toward Advanced Air Mobility 
(AAM) operations and the growth of electric vertical takeoff and 
landing (eVTOL) aircraft operations. Commenters explained that having 
an existing operational facility, to be used as a vertiport, puts 
Indianapolis at an advantage to receive this form of mass transit in 
the community and ensures Indianapolis remains a viable destination for 
the next generation of air taxis and cargo delivery services. 
Commenters also noted on January 8, 2026, U.S. Department of 
Transportation Secretary Sean Duffy and FAA Administrator Bryan Bedford 
announced Indiana as one of two new UAS test sites and 8A4 could serve 
as a critical site for drone testing, accelerating advanced aerial 
mobility, and support urban Beyond Visual Line of Sight (BVLOS) 
operations.
    Many commenters requested that, if IAA's continued sponsorship of 
the facility is not feasible, the Authority consider alternatives that 
would allow 8A4 to remain operational, including transferring 
ownership/sponsorship to another entity, operational partnerships, or 
alternative funding models. In addition, commenters mention, moving 
forward, regardless of sponsorship, there should be additional 
investment in the facility and improvements.
5. Impact on the Airport System
    Numerous comments mentioned how 8A4 provides vital transportation 
infrastructure and is a key facility in Indianapolis and the larger 
Indiana transportation system. Commenters mentioned its close proximity 
to the Julia M. Carson Transit Center, facilitating seamless 
connections between air and ground transit. They also mentioned how the 
City of Indianapolis was ahead of its time in opening 8A4, and the 
closure of the facility would be a short-sighted decision that would do 
more harm than good. Many commenters also noted that once a heliport is 
closed, it is extremely difficult if not impossible to replace. 
Heliport construction, they note, requires significant capital 
investment and time.
6. Other Comments
    A number of commenters mentioned how important 8A4 is to the 
business community and local and regional economic development. They 
noted many business operators continue to do business in downtown 
Indianapolis because of the ease of access and time saved by using 8A4 
and its location in downtown Indianapolis. Other commenters mentioned 
how Indianapolis is a premier destination for major sporting events and 
8A4 provides a direct, efficient link for users contributing to the 
sports-based economy, especially during the Indy 500. In addition, 
commenters add that 8A4 plays an important role in Indianapolis's 
hospitality and tourism industry.
    Comments also noted that 8A4's continued economic viability is 
evidenced by an offer from an individual user to purchase 8A4.

B. Comments Supporting the Proposed Permanent Closure and Release From 
Federal Land Covenants at 8A4

    Commenters in support of the permanent closure and release from 
federal obligations at 8A4 included comments that can generally be 
grouped into one or more of the following areas: net benefit to civil 
aviation, interests of aeronautical users, impact on the aviation 
system, and other concerns.
1. Net Benefit to Civil Aviation
    IAA submitted a comment and supporting attachments arguing that 
closing the heliport results in a net benefit to civil aviation because 
the proceeds from the sale of the Heliport property would be reinvested 
into the Indianapolis Regional Airport. The proceeds could potentially 
fund projects including reconstruction of two runways and a taxilane. 
IAA noted that the Heliport has not been able to cover operating 
expenses with Heliport revenue resulting in the operations being 
subsidized by other IAA users. IAA also stated the existing location 
and configuration of the Heliport would also not likely satisfy 
vertiport design standards necessary to carry out IAA plans for 
burgeoning AAM and eVTOL operations. IAA believes that these operations 
can be more safely accommodated at new or existing infrastructure 
elsewhere in the IAA Airport System in areas with lower population 
density and fewer surrounding hazards to air navigation.
2. Interests of Aeronautical Users and Service Providers
    Some commenters argued that 8A4 is no longer needed. They noted 
there are no longer any helicopters based at the facility, with 
hospitals and public safety agencies already well equipped to handle 
vertical lift needs without operating at 8A4. The Indianapolis 
Metropolitan Police Department (IMPD) submitted a comment stating the 
IMPD does not rely on this heliport for operational or public safety 
purposes and has no current or anticipated need for the facility. IMPD 
added that they continue to prioritize advanced technology, including 
unmanned aerial systems (drones), which are readily available, rapidly 
deployable, and offer greater operational flexibility. As it relates to 
future eVTOL/AAM operations, another commenter indicated that the City 
of Indianapolis should not stunt its current growth for the 
hypothetical needs of unproven technologies, adding that if and when 
eVTOL technology becomes a standard, its infrastructure should be 
integrated

[[Page 65031]]

into the city's modern design, not grandfathered into an outdated 
facility.
3. Impact on the Aviation System
    As part of its comment, IAA argued that the Heliport is not needed 
for emergency management, law enforcement, fueling, hospital helicopter 
operations, or major event planning. IAA noted the Heliport is not a 
designated emergency management site for the City of Indianapolis, and 
that there are multiple other open areas (parking lots, parks) that 
already serve as staging areas for natural disasters or emergencies and 
they allege that Indianapolis Metropolitan Police Department no longer 
owns any helicopters. They state that the ability to fuel helicopters 
will not be compromised when the Heliport closes. Helicopters will be 
able to access 24-hour service at Indianapolis International Airport 
and extended hours at the remaining IAA reliever airports. IAA stated 
IU Health voluntarily relocated to their new facility at the 
Indianapolis Regional Airport (MQJ) and that the MQJ facility will 
provide state-of-the-art critical care transport. IAA also noted that 
closure of the Heliport will not affect the ability of helicopters to 
provide access to sites in Indianapolis, and for certain events, such 
as the Indianapolis 500, because closer airports are able to 
accommodate helicopter operations. IAA further stated that, beyond the 
small uptick around the Indianapolis 500, the Heliport is rarely used 
for event transportation. IAA noted, Indianapolis International Airport 
is only 15-20 minutes from downtown and provides ready access to 
popular sporting and business venues and helicopter tour operations 
also operate out of the Indianapolis Metropolitan Airport.
4. Other Concerns
    A number of the commenters in support of permanent closure of 8A4 
argued that there are better uses for the parcel on which the heliport 
is located. They highlighted the importance of the revitalization of 
this quadrant of downtown Indianapolis and support a focus on 
community-centered infrastructure. Commenters also noted significant 
growth in residential development near 8A4. They suggested that the 
heliport parcel has become prime real estate that should be put back on 
the tax rolls. While many of the commenters included various options 
for redevelopment of this parcel, some specifically noted they would 
prefer pursuing a major league soccer team over continued operation of 
8A4. Commenters mentioned Indianapolis should prioritize development of 
this parcel that produces widespread economic returns. Other comments 
noted 8A4 benefits a narrow slice of users, largely private helicopter 
operators and affluent business interests, who can afford chartered air 
travel. Those commenters argued that 8A4 should be repurposed for a use 
that better benefits the entire community.
    Helicopter safety and noise concerns were raised in some of the 
comments supporting closure. They noted continued operation of 8A4 is a 
liability with helicopter operations so close to downtown and the low-
altitude flight paths are not compatible with the goal of creating a 
livable, residential-friendly downtown.

C. Comment Regarding FAA Process and Procedure

    One commenter did not take a position on whether 8A4 should remain 
operational or permanently closed; however, they stated they are 
concerned about the lack of finality and related uncertainty that 
reconsideration of a final agency action creates for airports. They 
noted regulatory certainty and predictability are essential to the 
airport industry.

III. FAA Analysis

    The FAA supports airport development and preservation throughout 
the United States, as depicted in the NPIAS. Title 49 U.S.C. 47101, et 
seq., provides for Federal airport financial assistance for the 
development of public use airports under the Airport Improvement Plan 
(AIP), established by the Airport and Airway Improvement Act, as 
amended. Section 47107, et seq., sets forth assurances to which an 
airport sponsor agrees as a condition of receiving Federal financial 
assistance. Congress requires the FAA to include specific contractual 
obligations as a requirement for AIP funding. There are currently 40 
such contractual obligations, collectively known as Grant Assurances 
that airport sponsors agree to fulfill as a condition of receiving an 
AIP grant.
    8A4 is currently in the NPIAS, categorized as a publicly owned, 
general aviation, unclassified facility. IAA has accepted Federal AIP 
grants for land acquisition and development at 8A4. In letters IAA sent 
FAA, dated October 27, 2021, and February 11, 2022, IAA requested FAA 
authorize the permanent closure of 8A4 and release of IAA from their 
Federal grant obligations related to the heliport.
    FAA published a Notice of Intent of Waiver With Respect to Land; 
Indianapolis Downtown Heliport, Indianapolis, IN, 88 FR 8029 (February 
7, 2023). Based on comments received in response to the February 2023 
notice, FAA requested and received additional information from IAA in 
support of the proposed closure and release of obligations at 8A4.
    On November 25, 2024, FAA issued a letter of intent to IAA on the 
release of all federal obligations and approve permanent heliport 
closure at 8A4 (Letter of Intent). In accordance with the Letter of 
Intent, FAA then published a Notice of Permanent Closure; Indianapolis 
Downtown Heliport, Indianapolis, Indiana, indicating 8A4 would close on 
December 15, 2025, 90 FR 51067 (November 14, 2025). During the period 
from November of 2024 to November of 2025, FAA did not issue a final 
determination releasing IAA of Federal obligations at 8A4.
    The written requests for reconsideration FAA received, dated 
December 10, 2025, and December 23, 2025, and subsequent comments 
received on the January 13, 2026, and February 12, 2026, Federal 
Register Notices included additional information regarding the net 
impact of the heliport closure on civil aviation.
    Despite a comment to the contrary, FAA, like all federal agencies, 
has the inherent authority to reconsider its prior determinations. 
Scotts Valley Band of Pomo Indians v. Burgum, 808 F.Supp.3d 1, 5 (D.C. 
Cir. 2025) citing Albertson v. FCC, 182 F.2d 397, 399 (D.C. Cir. 1950), 
``[t]he power to reconsider is inherent in the power to decide.''
    To determine whether or not to approve the permanent closure and 
release of IAA obligations at 8A4 upon reconsideration FAA relies on 
its own policy, release and closure documentation from IAA, 
reconsideration request letters and comments FAA received from requests 
for public comment in the Federal Register.
    The FAA will act on an airport sponsor's request for release and 
closure only to the extent that such action will benefit the public 
interest in civil aviation within the specific authority conferred upon 
the Associate Administrator for Airports by law. FAA Compliance 
Guidance Letter, 2022-1.
    FAA's primary concern is the benefit to civil aviation and is 
represented by various considerations. Major considerations in the 
analysis of a release request include but are not limited to: the 
reasonableness and practicality of the sponsor's request; the 
disposition and effect of the request on all airport assets; the net 
benefit to civil aviation; the compatibility of the proposal with the 
needs of civil

[[Page 65032]]

aviation; the existing airport being in a safe and operable condition; 
and the state aeronautical agency's recommendation on the sponsor's 
request. FAA Compliance Guidance Letter, 2022-1.

A. Reasonableness and Practicality of the Sponsor's Request

    When evaluating a request for release and closure, the FAA will 
consider the reasonableness and practicality of the sponsor's request 
in light of the necessity to maintain sufficient aeronautical 
facilities in the NPIAS and the role of the airport in the NPIAS. As 
part of this evaluation, FAA weighs the airport sponsor's rationale to 
request release and closure against the broader public interest in 
civil aviation.
    In 2021, IAA cited declining use of the Heliport as part of their 
reason to request closure. They detailed that overall helicopter 
operations had declined and that the sole remaining based heliport 
tenant, IU Health, had relocated to Indianapolis Regional Airport 
(MQJ). In IAA's February 26, 2026, comment submitted to the Federal 
Register, IAA indicated that, excluding IU Health's operations, there 
were only 447 operations at the Heliport for all of 2025 and with IU 
Health's recent move to Indianapolis Regional Airport is left with 
nominal operations. IAA claimed ``[t]he Heliport is expensive to 
operate and has not been financially self-sufficient for quite some 
time.'', indicating ``[f]or the last five years, there has been an 
average shortfall of 16.5% between operating expenses and revenue, 
which deficiency the IAA must cover by syphoning revenue from other 
airports within the IAA system.'' IAA further stated ``Heliport 
operations are currently subsidized by other IAA users, and in order to 
limit financial losses to the IAA, the Heliport has only operated for 
minimal hours during the day. To keep the Heliport open and operate it 
at a loss for no known tenants makes no financial sense and 
disadvantages civil aviation.''
    Some commenters opposed to the closure asserted that helicopter 
operations and heliport use declined not due to lack of demand, but 
because of sponsor neglect of the facilities and the sponsor not 
adequately promoting and marketing 8A4. Others questioned the reasoning 
for 8A4's closure request and that it may have been driven by local 
politics and investors seeking a non-aeronautical property more than by 
reduced aeronautical demand. Commenters questioned why 8A4 should close 
when there is a private party willing to purchase the heliport, operate 
it for public use and potentially invest in additional aeronautical 
development of the facility.
    In Indiana Helicopters', LLC d/b/a Sweet Helicopters (Sweet 
Helicopters), February 26, 2026, comment submitted to the Federal 
Register, they indicated that Sweet Helicopters made offers to purchase 
the Heliport as early as December 2021 and on October 16, 2025, sent a 
``firm offer to the Authority's board offering to purchase the Heliport 
for $15 million and keep it operational as a heliport, attaching a 
signed draft purchase agreement as a show of our good faith and 
commitment.'' In addition to committing to purchase the Heliport and 
keeping it operational, Sweet Helicopters also indicated they are 
committed to making the necessary investments. Sweet Helicopters 
further stated ``The Authority's goal is, as it always has been, to 
close the Heliport by any means necessary and sell the land to the City 
of Indianapolis (the ``City'') for the stadium project. The existence 
of a superior alternative offer that would keep the Heliport open and 
restore its operational capacity--such as the offer that Sweet 
Helicopters has extended--is actively counterproductive to the 
Authority's true purposes, which explains why the Authority has so 
steadfastly refused to engage with Sweet Helicopters.''
    When reviewing operational use of 8A4 to determine whether it is a 
reasonable consideration for closure, FAA confirms that operations at 
8A4 have declined. IAA's February 26, 2026, comment detailed:

    Despite hope that the Heliport would facilitate direct 
transportation by helicopters downtown for medical, emergency, 
business, and special event operations, the Heliport was never fully 
adopted by the public. Operations peaked in 1992 with 5,300 
operations, decreasing to 1,696 in 2019 (about 4.5 landings or 
departures a day). In 2025, the Heliport's sole based user, IU 
Health relocated to MQJ. Excluding IU Health's operations, there 
were only 447 operations for all of 2025. For a period of time, the 
Heliport also served three news stations which accounted for two to 
four daily operations, but those news helicopter operations were 
replaced by drones years ago. With IU Health's recent move to a new, 
first-class facility at MQJ, the Heliport is left with nominal 
operations. The Heliport has also been underutilized for special 
events. While there is a small uptick in operations in May, likely 
due to the Indianapolis 500, special events in the Indianapolis area 
have not driven a sustained increase in operations.

    There also were additional comments received that indicated the 
Heliport is no longer needed as prior heliport users have moved to 
other facilities or have moved away from helicopter operations to more 
advanced technologies, including drone operations.
    However, the majority of the commenters provided comments in 
support of the Heliport remaining open and available for public use and 
indicated the facility is needed for helicopter, eVTOL, and AAM 
operations. The result is a disconnect between comments that discussed 
the most recent Helicopter operations numbers and the comment that 
expressed an existing and future need for Helicopter operations at 8A4.
    While FAA considers current operations as part of determining the 
reasonableness of a proposed closure, there is no specified operational 
requirement that would define whether closing an obligated facility is 
reasonable. Every request FAA receives to close an obligated facility 
has unique factors to consider based on circumstances at that facility 
and location. Although operations at the Heliport have declined, FAA 
does find that the number of existing operations in 2025, unrelated to 
IU Health operations, and comment supporting future operations, 
especially related to the future eVTOL/AAM, persuasive. Even if 
comments about the future eVTOL/AAM operations are speculative, in this 
case, and consistent with its guidance, FAA weighs future growth 
heavily when considering the net benefit to civil aviation. See FAA 
Compliance Guidance Letter 2022-1.
    Before issuing the November 25, 2024, Letter of Intent, the FAA was 
not aware of any interest by another public or private entity willing 
to acquire 8A4 and maintain the facility as a public use heliport in 
the NPIAS. FAA will not opine on practicality or feasibility of the 
Sweet Helicopters offer to purchase 8A4 in this notice. However, FAA 
does find Sweet Helicopters' offer persuasive in its analysis of the 
reasonableness and practicability of maintaining and operating 8A4 as a 
heliport. The FAA will give weight to this new information, namely that 
a private entity believes there to be enough value in the continued 
public use availability of 8A4 that they submitted an offer, in excess 
of the appraised fair market value, to purchase 8A4.

B. Disposition and Effect of the Request on All Airport Assets

    When evaluating a request for release and closure, FAA considers 
the disposition and effect of all airport assets before a release and 
closure is approved. FAA analyzes this consideration in requests to 
close obligated facilities to ensure that all airport assets, including 
airport revenue

[[Page 65033]]

accounts and personal property, as subject to Federal obligations, and 
unamortized AIP grants are accounted for. Although a request for 
closure may be denied if it fails to address the disposition of 
property FAA generally does not view an adequate description of the 
disposition of property as a justification to permanently close a 
facility and release a sponsor of their grant assurance Federal 
obligations. As part of IAA's request and subsequent correspondence 
with FAA, IAA detailed the proposed plan for all heliport assets 
including the unamortized portion of prior AIP grants, fuel tanks, snow 
equipment, and Automated Weather Observing Systems (AWOS).
    In the Letter of Intent, FAA detailed that IAA would invest the 
total funds from the sale of the Heliport and the unamortized portion 
of prior AIP grants into Indianapolis Regional Airport (MQJ) and 
transfer all heliport and aviation-related equipment at 8A4 owned by 
the Authority that FAA determined to be salvageable for use at other 
airports. FAA initially found IAA's intent to transfer all assets to 
Indianapolis Regional Airport an acceptable disposition plan for all 
the Heliport's assets and unamortized portions of prior AIP grants. 
However, FAA does not rely on this planned disposition of assets alone 
when determining whether to approve release and closure of a facility.

C. The Net Benefit to Civil Aviation and Compatibility of the Proposal 
With the Needs of Civil Aviation

    When evaluating a request for release and closure, the FAA will 
also assess the net benefit to civil aviation and the compatibility of 
the proposal with the needs of civil aviation. Before FAA can evaluate 
the net benefit to civil aviation, it must first review the 
compatibility of the proposal with the needs of civil aviation.
1. Compatibility of the Proposal With the Needs of Civil Aviation
    Comments regarding the needs of civil aviation can largely be 
broken down into two groups: comments on whether 8A4 will contribute to 
the future needs of aviation, in emerging industries; and comments on 
whether or not the Heliport is required to fulfill current law 
enforcement and emergency response needs.
    Commenters supporting the permanent closure and release of 8A4 
provided information arguing that the Heliport is unnecessary for civil 
aviation. They suggested that all vertical lift operations can be 
accommodated at other existing facilities, including other airports 
within the Indianapolis area, and that 8A4 is not appropriate for 
future AAM and eVTOL operations that may be considered necessary for 
the future of civil aviation.
    The commenters opposed to the permanent Heliport closure argued 
that 8A4 should remain open and operational for existing and future 
users of the facility, emergency helicopter operations, public 
emergency operations, helicopter training opportunities, fueling 
operations, access to the downtown Indianapolis area, and future AAM 
and eVTOL operations.
    Aerospace industry groups submitted comments advocating for 
continued operation of the Heliport for AAM and eVTOL operations. One 
commenter noted there are several reasons to keep the Heliport open 
including its location in a busy area near transit hubs, making it easy 
for passengers to access; using the Heliport as a base for a vertiport 
enables quick adaptation and avoids the lengthy planning, zoning, and 
construction process required for new sites; using the Heliport is more 
affordable than building new vertiport sites in downtown Indianapolis; 
and the Heliport offers a unique setting for early eVTOL operations, 
making it easier to move from traditional helicopters to eVTOL 
aircraft.
    Commenters also focused on the aviation needs of law enforcement 
and emergency responders. Law enforcement comments were received from 
the Indianapolis Metropolitan Police Department (IMPD) and the Indiana 
State Police. The IMPD stated ``IMPD does not rely on this heliport for 
operational or public safety purposes and has no current or anticipated 
need for the facility. We continue to prioritize advanced technology, 
including unmanned aerial systems (drones), which are readily 
available, rapidly deployable, and offer greater operational 
flexibility. These capabilities provide faster response times and 
enhanced situational awareness without the need for a fixed aviation 
facility.''
    However, other State entities indicated that the Heliport is an 
important transportation asset and urged the FAA not to close the 
Heliport. The Indiana State Police (ISP) has used the Heliport to 
support its operations in a variety of ways including supporting 
intensive law enforcement operations; using 8A4 over other regional 
helipads to prioritize saving time and resources; transportation of the 
governor and dignitaries; and unique training opportunities. ISP stated 
``Access control has always been an issue and the heliport has never 
been actively managed as a critical transportation infrastructure 
asset. ISP believes that if ran well and properly resourced, the 
heliport would be a highly used and valuable asset for the State.'' The 
Attorney General of Indiana's, February 26, 2026, comment stated ``The 
Indiana National Guard (INNG) has a dual federal-state mission . . . 
The distribution of soldiers, equipment and facilities across the state 
allows the National Guard to respond quickly and efficiently to 
emergencies statewide. The loss of the heliport forecloses an important 
aviation asset for training purposes, not to mention its use during 
times of crisis when needed.''
    FAA received comments from Helicopter emergency medical services. 
Specifically, Indianapolis Emergency Medical Services (IEMS) commented 
``[a]fter a thorough assessment of our current operational needs and 
the landscape of emergency medical services in Marion County, it is the 
position of IEMS that the downtown heliport is no longer a necessary 
component of our city's public safety or emergency response 
infrastructure.'' Indianapolis Emergency Medical Services referenced 
Self-Sustaining Trauma Infrastructure, Zero Operational Reliance, and 
Public Safety Efficiency as factors central to their assessment. It 
noted that every major trauma center in Indianapolis is equipped with 
dedicated, onsite heliports; it does not utilize the downtown heliport 
for patient care, ground-to-air transfers, or staging; and modernizing 
their urban footprint allows them to focus resources where they are 
most effective. Indianapolis Emergency Medical Services further stated, 
``Because our hospitals have integrated aeromedical access directly 
into their campuses, the standalone downtown heliport has become a 
redundant asset in the context of emergency medicine.''
    FAA received other Helicopter emergency medical service comments 
indicating that 8A4 is not necessary for their operations citing the 
relocation of IU Health to a state of the art facility at Indianapolis 
Regional Airport. Alternatively, other commenters, primarily from the 
Helicopter emergency medical service profession, pointed out the 
continued ongoing need for a downtown heliport with fueling services. 
They indicated 8A4 is necessary to ensure the expeditious transport of 
patients, accommodate aircraft when weight limitations and occupancy 
limits of downtown hospital helipads are an issue, and ensure 
efficiency in returning helicopters to operational readiness after 
completing a patient transport.

[[Page 65034]]

    Specifically, a comment received from an individual stated ``[a]s a 
flight nurse I have already witnessed the consequences of not having 
this heliport. Parkview Samaritan is being forced to land at Indy 
Regional with all critical patients being flown in IU hospitals. This 
is a 30 min drive away. Adding 45-60 min of out of hospital time to 
critical patients. We must wait at the airport for an ambulance that is 
never available when we land. Lack of EMS services and distance from 
downtown makes this transport lengthy and dangerous for our patients.''
    IAA remains strongly in favor of closure and continued to argue, in 
their February 26, 2026, comment, that the Heliport is not needed for 
emergency management, law enforcement, fueling, hospital helicopter 
operations, or major event planning and is not able to cover operating 
expenses:

    Nothing in the letters from Sweet Helicopters and the Attorney 
General of Indiana justifies reconsideration, much less a different 
result. Significantly, neither letter provides data or analysis that 
could support keeping the Heliport open. For example, the Sweet 
Helicopter letter states that the Heliport is ``well positioned to 
be at the forefront of AAM and eVTOL'' without including any data or 
evaluation of whether the location could be realistically converted 
to a vertiport for these operations. The letter also takes a narrow 
look at only the Heliport's operations without taking into 
consideration the other Heliports and airports in the area and how 
the Heliport fits into the larger aviation ecosystem. All of these 
factors were carefully considered by the FAA, which found them to be 
insufficient to justify keeping the Heliport open.

    The comments FAA received reflect diverging opinions on whether 
permanent closure and release of the Indianapolis Downtown Heliport 
would be compatible with the needs of civil aviation. State, municipal, 
helicopter emergency medical service organizations, and business 
entities, as well as individuals, submitted comments that described how 
the Indianapolis Downtown Heliport is an essential part of operations 
for some of them and how for others, it is not needed at all. Although 
some entities and individuals have moved away from using the 
Indianapolis Downtown Heliport by utilizing other airport facilities or 
substituting helicopters for drone technology that doesn't require a 
dedicated heliport, there were a significant number of comments that 
detailed how the Indianapolis Downtown Heliport is still needed in 
their operations. Moreover, as discussed in subsection C.2., FAA has 
determined that preserving existing aviation infrastructure is the best 
way to enable rapid advancement of eVTOL and AAM operations while FAA 
continues to develop guidance for updating vertiports for such uses. 
FAA weighs comments that indicate continued need for the facility that 
has received federal funds more heavily in determining whether or not 
closure of a facility yields a net benefit to civil aviation.
2. Net Benefit to Civil Aviation
    The FAA received general statements from commenters regarding the 
net benefit to civil aviation in keeping 8A4 open and operational and 
in closing 8A4 and using the sale proceeds at other IAA airports.
    In its November 25, 2024, Letter of Intent, FAA, in accordance with 
its policies at the time, agreed with IAA. FAA initially found that the 
net benefit to civil aviation from IAA's contribution of the total 
funds from the sale of 8A4 for use at Indianapolis Regional Airport 
would outweigh the benefit of 8A4's continued operation. FAA relied on 
IAA's argument that proceeds from 8A4's sale would offer other IAA 
airports additional financial support, a source for aeronautical 
capital or operational expenses, and aid in their financial self-
sustainability.
    The February 26, 2026, comment IAA submitted to the Federal 
Register, stated ``The FAA should again conclude that closure of the 
Heliport results in a net benefit to civil aviation.'' IAA also stated 
in their comment, ``To Keep the Heliport open and operate it at a loss 
for no known tenants makes no financial sense and disadvantages civil 
aviation.''
    Sweet Helicopters February 26, 2026, comment suggested that 8A4 
could still contribute to the net benefit to and needs of civil 
aviation by staying open:

    [T]he closure of the Heliport cannot be a benefit to civil 
aviation when: (1) there is demonstrated demand, (2) Sweet 
Helicopters has firmly committed to purchasing the Heliport, keeping 
it operational, and making the necessary investments, and (3) where 
the superior sale price could be used to further support airports 
within the Authority's jurisdiction.

    Since the November 25, 2024, Letter of Intent was issued, FAA both 
received new information and implemented new policies affecting its 
determination regarding the net benefit to and needs of civil aviation. 
The Department of Transportation and FAA now prioritize advancing AAM 
and eVTOL operations in the U.S. On September 12, 2025, U.S. 
Transportation Secretary Sean P. Duffy announced a new pilot program 
within the FAA to accelerate the deployment of advanced air mobility 
(AAM) vehicles. The pilot program, known as the Electric Vertical 
Takeoff and Landing Integration Pilot Program (eIPP), will form public-
private partnerships with State and local government entities and 
private sector companies to develop new frameworks and regulations for 
enabling safe operations. Under President Trump's direction, the FAA 
introduced the eIPP to accelerate the safe deployment of AAM vehicles 
in the National Airspace System. FAA Administrator Bryan Bedford 
stated, ``This pilot program gives us another opportunity to advance 
the Administration's plan to accelerate safe eVTOL and advanced air 
mobility operations across the United States.''
    In addition, on December 17, 2025, the Department of Transportation 
promulgated a new Advanced Air Mobility National Strategy: A Bold 
Policy Vision for 2026-2036 (Strategy). Under this Strategy, the 
Federal Government will lead a nationwide effort to accelerate the 
development and deployment of AAM technologies throughout the United 
States. The strategy seeks to align policies and programs behind this 
policy priority, while also providing leadership and support for State, 
local, Tribal, and territorial (SLTT) governments, for which new AAM 
transportation options could provide substantial benefits. The strategy 
emphasizes safety, security, national defense, and economic 
competitiveness, and expanding jobs and opportunities.
    By contrast, IAA's February 26, 2026, comment stated: ``The 
existing location and configuration of the Heliport would also not 
likely satisfy vertiport design standards. Indeed, as IAA plans for 
burgeoning Advanced Air Mobility (``AAM'') and electric vertical 
takeoff and landing (``eVTOL'') operations, it believes that these 
operations can be more safely accommodated at new or existing 
infrastructure elsewhere in the IAA Airport System, with less 
population density and surrounding hazards to air navigation.''
    FAA notes that it is FAA, not local or state authorities (or local 
airport sponsors), that acts as the final arbiter of aviation safety--
whether it be regarding the safety of traditional heliport operations 
or those involving AAM and eVTOL. FAA anticipates AAM operations will 
leverage existing infrastructure like airports and heliports (with 
modifications) in addition to new facilities, such as vertiports, to 
accommodate these growing operations. As a result, FAA has made it a 
policy to prioritize and save aviation infrastructure and facilities to 
support AAM and eVTOL operations. IAA's assertion the Heliport ``would 
not likely satisfy vertiport design standards''

[[Page 65035]]

reflects a misunderstanding of the relevant FAA guidance.
    FAA Advisory Circular 150/5390-2D, Heliport Design, states:

    The FAA is developing guidance for vertiports that would be 
intended for VTOL and/or unmanned aircraft. Until that guidance is 
published, entities developing operating sites for new aircraft 
entrants are encouraged to work with the FAA Office of Airports and 
Flight Standards on applicable design, operational, and safety 
criteria tailored to the performance of aircraft which intend to 
operate at those facilities.

    Supplemental FAA guidance Engineering Brief (EB) # 105A, Vertiport 
Design, Supplemental Guidance to Advisory Circular 150/5390-2D, 
Heliport Design, states:

    At this time, the Federal Aviation Administration (FAA) is still 
collecting validated VTOL aircraft operational data and is 
transitioning from a prescriptive approach to a performance-based 
design approach with the recommendations in this EB. This EB is a 
living document that serves as the FAA's standards and guidance. An 
AC will be developed to adapt and address new aircraft and 
technology as performance data is received. This EB will be 
cancelled concurrent with the publication of the AC.

    FAA has repeatedly stressed that eVTOL and AAM facility 
requirements are rapidly evolving. Against this backdrop of innovation, 
FAA has determined that preserving existing infrastructure is the best 
way to enable rapid advancement of eVTOL and AAM operations.
    FAA's prime concern is the net benefit to civil aviation. FAA's 
November 25, 2024, Letter of Intent, relied heavily on the financial 
aspects of closure of the Heliport and the corresponding sale with the 
proceeds being reinvested into the airspace system to fund improvements 
at Indianapolis Regional Airport and the overall reduction in 
operations at the Heliport. The FAA has since received new information, 
namely that a private entity, Sweet Helicopters, is willing to purchase 
the Heliport and continue operating it as a heliport.
    Moreover, FAA policy has changed since 2024, and places priority on 
maintaining existing facilities, like the Indianapolis Downtown 
Heliport, for use by AAM and eVTOL operators. FAA now heavily weighs 
the net benefit to civil aviation with the new policy directive to 
preserve aviation infrastructure to advance the Administration's larger 
plan to accelerate safe eVTOL and AAM operations across the United 
States over the proceeds of a sale being reinvested into the airspace 
system through improvements at Indianapolis Regional Airport.

D. The Existing Airport Being in a Safe and Operable Condition

    When evaluating a request for release and closure, FAA will 
consider whether the existing facility is being operated in a safe and 
operable condition. Compliance Guidance Letter 2022-1 states ``A 
sponsor may not allow an airport to fall into disrepair while 
considering closure or awaiting a decision on a closure request.''
    FAA received comments indicating IAA did not invest in or properly 
promote 8A4 resulting in declining activities. On commenter stated: 
``It doesn't appear that the airport authority has taken any action to 
promote the use of the heliport. Quite the contrary, it seems that it 
has done whatever it can to ensure the closure of the heliport.'' 
Another commenter stated: ``[8A4's] demise really began around 2015 
when the dedicated heliport staff started to disappear. The front 
counter was completely emptied and endless phone calls would go 
unanswered. By 2019, the street level doors permanently locked and the 
ramp side doors were programed to automatically lock at the end of each 
business day and weekends. Only a handful of pre-approved operators 
were privileged to have entry key cards.''
    IAA has identified a number of facility improvements that would be 
required if the Heliport is to stay open, requiring significant 
investment that would likely amount to $30 to $40 million.
    FAA did not, in its initial determination find that IAA had allowed 
the Heliport to fall into disrepair. Such maintenance, however, does 
not necessarily mean that closure of the Heliport would result in a net 
benefit to civil aviation. The FAA merely requires an airport be in 
safe and operable condition to prevent sponsors from attempting to 
force closure approval due to disrepair.

E. State Aeronautical Agency's Recommendation on the Sponsor's Request

    When evaluating a request for release and closure, the FAA will 
also take into consideration the state aeronautical agency's 
recommendation on the sponsor's request.
    The Indiana Department of Transportation, Office of Aviation issued 
a letter to the Authority on June 30, 2021, that stated:

    INDOT Office of Aviation concurs that the facility is being 
under-utilized in its current state. However, the potential for 
aeronautical use is still valuable to the Indiana State Aviation 
System Plan, and in accordance with the charge in IC 8-21-1-14, this 
office recommends development of more alternatives to keep the 
Indianapolis Heliport in operation to serve the needs of Indiana's 
flying public. The INDOT Office of Aviation understands the 
potential for change of sponsorship may not have been considered, 
but as an alternative to closure of the aviation facility, selling 
the facility and transferring the sponsorship would still allow the 
heliport to continue to serve the needs of Hoosiers by maintaining 
its place in the Indiana State Aviation System.

    In further email communications between the Manager of the Indiana 
Department of Transportation, Office of Aviation and FAA on August 26, 
2024, and September 20, 2024, they indicated their position remains the 
same in recommending the review of other alternatives for the facility.
    One of FAA's major considerations of closing an obligated facility 
includes the state aeronautical agency's recommendation on the 
sponsor's request. Indiana Department of Transportation, Office of 
Aviation, recommended alternatives to closure be pursued that would 
allow the Heliport to continue to serve the needs of Indiana by 
maintaining its place in the Indiana State Aviation System. In 
addition, FAA notes that it has considered comments by the Governor, 
Attorney General, and Indiana State Police, which clearly objected to 
the permanent closure of the facility and release of heliport property 
at 8A4 from federal land covenants, as part of the factor considering 
the net benefit to civil aviation and compatibility of the proposal 
with the needs of civil aviation.

F. Other Considerations

    Some commenters supporting closure also noted that permanent 
closure and repurposing of the Heliport property would offer greater 
economic benefits to the City of Indianapolis and the region as a 
whole.
    FAA acknowledges those comments that suggested both the City of 
Indianapolis and the region would derive greater economic benefit from 
a non-aeronautical use of the Heliport property. However, those 
arguments are not necessarily persuasive and are not dispositive in 
release and closure determinations:

    Only benefits to aviation may be cited as justification for the 
release, whether tangible or intangible. The nonaviation interest of 
the sponsor or the local community--such as making land available 
for economic development or increased tax revenues--does not 
constitute a benefit that can be considered in justifying a release 
and disposal of the airport.

    FAA Compliance Guidance Letter, 2022-1.

[[Page 65036]]

IV. Conclusion

    FAA reviewed all comments received on the Federal Register Notices 
seeking public comments on the proposed permanent closure and release 
of land covenant at 8A4; correspondence from the State of Indiana; and 
all documentation provided by the Authority. After review of this 
information and for the reasons described above, FAA has determined the 
AIP obligations at the Indianapolis Downtown Heliport will not be 
released and directs the Authority to make the Heliport available for 
public use. FAA relies on new information received from commenters and 
notes that its own recent policy directives change its analysis 
regarding closure and release. FAA withdraws the Notice of Permanent 
Closure; Indianapolis Downtown Heliport, Indianapolis, Indiana, 90 FR 
51067 (November 14, 2025), and rescinds the November 25, 2024, Letter 
of Intent sent to IAA.

Christopher S. Kelly,
Associate Administrator for Airports.
[FR Doc. 2026-20859 Filed 10-9-26; 8:45 am]
BILLING CODE 4910-13-P


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