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Home My WebLink AboutCC Res 2467 1975-08-11 'I ~I I I \ 1 .1 .- ....._..,.:~ ," " .,. y RESOLUTION NUMBER' 01;;/;-7 ( A RESOLUTION OF THE CITY COUNCIL OF THE CITY ~F SEAL BEACH ADOPTING A NOISE ELEMENT TO THE GENERAL PLAN OF THE'CITY OF SEAL BEACH. THE CITY COUNCIL OF THE CITY OF SEAL BEACH DOES HEREBY RESOLVE: WHEREAS, California Government Code Section 65302 (g) requires that cities adopt noise elements to their General Plans; and WHEREAS, the consulting firm of Blo Acoustical Engineering and the City's Planning Department have prepared a proposed Noise Element; and WHEREAS, the City's Planning Commission held a study session with Interested residents to obtain their input; and WHEREAS, the Planning Commission of the City of Seal Beach held a public hearing on the proposed Noise Element on July 16, 1975; and WHEREAS, the Planning Commission of the City of Seal Beach adopted the Noise Element by ResolutIon Number 935 and recommended that the City Council adopt said Element; and WHEREAS, the City Council held a public hearing on the proposed Noise Element on August II, 1975; NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of Seal Beach does hereby adopt a Noise Element to the General Plan attached hereto and made a part hereof. PASSED, APPROVED and ADOPTED by the City Council of the Ci}y of Seal Beac'1ial ifornla, at a meetl,ng thereof held on the JJ~ day of ',oN.? t: , 1975, by the following vote: Councllmembers ~-;;A~J &-v~r;4_~~jA-~~ ~ " Counci lmember Councllmembers ' AYES: NOES: ABSENT: t-~.~~. AT.:rEST.: ... . "- ... . .. ..."- -.... - ,~ ....--=-----..... a' .. .. ~. -....... ". ... .,. ..... '" ........ ...""" '" .... /,;.;.,' .").".. .. ~ :-..... " ".... :: :]C I ty ~ ~~ "......... -""'"' -.,.". 'I' '::!o:''':' . ~ .., ... ...... '/..' ':Ji.. ""l .....,,'" .... -..- ." ... :\-, """ _..._.~e ~.," . "'" . .."":." ~ . .. ..-~- "'- . .1- I .. ,- r. "i::-", ," Resolution Number ; ~ NOISE EW1ENT Prepared by City of Seal Bedch Planning Department and Bio-Acoustical Engineering ,/ SUml1lel', 1975 ( I " ~.. . 1- I I. II. III. Resolution 'Number , , .~ NOISE ELEMENT: SUMr~.A.RY OUTLINE --" , . Introduction Noi~e Sources Authority for Element Intent - Goals and Objectives Goals. Obj ect i ves Noise Source Identification and Potential Noise Impact Assessment for Seal Beach Noise Rating Schemes' Existing Noise Environment Estimates of Future Noise Environment Identification of Potential Noise Impact Areas IV. Policy Recommendations V. Appendices A. Noise Data Sheets B. Noise Effects / C. Oefinitions of Noise Terminology I .' I r'" ,.1 , I J . j . l .,1 I i i I :'1 .J ,!I ':1 ;1~ ~ .. r. i ~ I I I I I 1 . I I r Resolution N\:tmber,' " ... '-' , , -NOISE ELEMENT / ., :~ I NTRODUCTI ON It has only been recently. that both government and public interests have begun to take a vocal and active concern over the increasing magnitude of noise pollution in our urbanized areas. Although there are disagreements as to just exactly what constitutes noise pollution, the following definition will serve as a point of departure: Noise pollution is the contamination of an acoustical environment by noises (unwanted sounds) which adversely affect people. One need only close his eyes and listen to discover the causes of noise- pollution. ~'hether sitting in your home listening to the steady hum of an air conditioner, standing outside hearing the fluctuating sound of passing traffic, or having a conversation interrupted by the intermittent noise of a passing aircraft, the source5 of urban noises are per'iasive. Ultimately, it is the concentration of people combined with an increasing use of ,technplogical apparatus that accelerates the noise problem. There are limits to the amount of waste our environment can absorb and assimilate. The diseconomies of motor vehicles, aircraft, appliances, TVs, stereos, etc. are surfacing as the ambient noise level rise5. Noise Sources Noise surveys conducted throughout the*United States over the past 30 years indicate increases of from 10 dB to 30 dB in newly urbanized areas. The rapid growth of commercial aviation and its use of jet aircraft, the construction of freeways and the popularity of recreational vehicles, and outdoor home appliances ha'ie all contributed to the noise increase. Noise sources can be generalized and classified into two categories: Constant Level Noise Events Internittent Single Nofse ,. Constant Level Noise Events Constant level noise events are those which increase the outdoor noise level above the residual level for a period of time and are generally characteristic of noise levels within a city. A recent survey of four cities and eleven Subul-ban cOnl'l1unities measured the Median Noise Level of the areas indicating the range~ of noise levels given in the table belO\~: I * dB = Decibel. Decibels arc not lincar units like miles or pounds. Rather, they are reprc5eotative poit,ts on a shal-ply ris'ing or descending curve. Thus, while 10 decihles is 10 times more intense than one decibel, 20 decibels is 100 times mer" intcI15e (10 x 10), 30 decibles is 1,000 times more iotense (10 x 10 x ;0) ~!1d so on. One hundred decibles, therefore, is 11) l.il1ion times as intense (that is, r:'!presents lJ billion times as much acou5fic ene!'9Y) J5 one decibel. The reason for such a complicated scale is sil,]pl.y that th~ hu;nc.m eclr detects a l'lide range of acoustic ener'gy. 1 , . , , I I , Figure 1 Resolutio~'Numqer T~' ne sounds arounq .. Sucre. Motor vehlclcs Alrcren Voices Radio end TV sets Home mainteonanco equipment Conslruction Industrial Other nQi~es Not a.certalned PilfC!Atar;1 55 15 12 2 ~ 1 1 6 6 PERCENT cOflrrilJut;on I)f each SOUTCi! identlfit'd bV respondents classifving their neighbor!1ood as nOisy 02% of 1,200 respondents). Spate Smell .tore (1-5 clerks) Large store (more lI,an 5 clorl:s) Small off,ca (1-2 desks) Medium office (:l-10) desks) I.., go "ffico (me.ro than 10 desks) . Miscellaneous business Leq (+) 60 65 56 63 67 63 Residencos Typ!ca' mo\'er"f.nt of people -. no TV orradio 40-45 Speec.h at 10 fee!, normal \"olce TV Iostening at 10 feel, no other activity Strreo music 55 ~5,60 50-70 (+ J ThfoSC mel'5Urcments were tei.('n over durClt:ons t)'(Jical ot the op- cr~tion of these facilities. Let! = oqul"'alol'\t A-weighted d~cil:Jols. EQUIVAU':NT S":!'und rev~ls ill ::irelhe's normallv occur!'irlg insido v""rious pla~os. '" DAY-NIGHT SOUND lfVEl fJf.Cl!1HS -,:I- I - I O~ A.NGEtES - '3fd RaOft A.P~ftT'4'ENT NUT T:) FREEWAY ~A"GH[S-3J4r""LE FRQ\1TOUCH caWNAT -- MAJOR I\IIU'ORT - 'CITY NO~SE -90- LOS I\NGELEt - D(h'IrlTQWtd WITH SCME CON. !OOWfITOh'N 1.1AJOR ~. :iiRUClIOtj ACTlVI11 ,,:!HRIJPOlltl :t'- HARLi:M -2nd fLOOR .lPART~fNT 1 . t~V '-JO_ ~ NOISY URBAN t ~ -6~ ~ , ~ ClUAlITATIVE O[SCRIPT/OIIS us '-1 OUTDOOR LOCAHONS BOSTON - ROW HOIJ~!NG or. MAJOR JY'ENUE S",tALL TOWN,. _~'I):""""'" lJLlIETS!JBUP.D,llN :E ....... i t ......0- OUTDOOR day-night sound various locations. WATTS - a "'IL[$ FROM lOllCH DOWN AT MAJOR AUt?OAT N~\'VPDr.T -] 5M:US FRQY it.I(EOfF AT SM-\LL:'IRi'ORT LOS: ANGHES - DL!J RESIDENftAL AREA FlllfJOFlE - ~'/.A,I.L 1[I',',N C'IL-",-S4C S.At.: IJIECoO - WOODED p.ESloermAl CALlrORN'I~ - TOM Ala ;Ir:.o ON FAFlM level in dB (r9 20 micropa~alsl at Enm~Je Witnin bl"::::~ lone of Dxplodlng bomb Wirhin crew area of heavy 81tillorf riece or ml\'aj g11" when Shooting At shooter's eRr whbn firil1g hand gun At chilcJ'~ car whorl datonMII"!R tOy cap Q:- fireclRckar Metallo m('tai imf'l:C~~ In ....Iany industrial prucess&s (0.<).. drcp~forgm9: Il1eta'-t)c~tUlg) 00 t.on~lru:hon &ite rtull('J~ ~)ilc-drjvlng Sor.1ll (In dB ly~ical vdlue:> of pot-elk sound pre:iSUre IO'"ols for Inlputo;c noi'i8 ie 20 liIicro~.!SCdh::). , NOT E.VEHVOr-JE STAN OS WITHIN EARSI-IOT Of A eorl!:! ULAS1. bl,.( it j!. intClt.!:=.ling to know that thl-'! !.Ound- Illc3':Oure lavel (~PU If:lthi(\ thlJ hlil5~ 1::."Ir,~ IS 190 '3'-tlbO'h (dBl. 1he toh.../,/'InQ t,I"Jul,ltlon'S BIt' frem "Information on Levels ('If Em:lr0'1mef'l.t;f1 NC/30 Requisite 10 PIOtC:t Public H~aUh af'l~ V':d1f:m with an AdcquOile Margin of Safety:' publtshl'(j by the: U. S. t:I1Ylronmcntal rrotE:l~tion Agl:ncv. . ' m 190+ lGO-1ijO 140-170 125~160 120-140 l1C-130 .- :..., . I I . Resolution ~umber , , [Jay Night 55-75 dB . i Cities 64-80 dB Suburbs 44-59 dB 38-50 dB Those noise sources res~onsible for constant level intru~ions would include such things as air conditioners and industri~1 equipment and other sources that emit a constant noise. (See Figure 1) Intermittent Single Event Noises Intermittent single event noise raises the outdoor noise level above the residual Jevel for a period of sho~t duration. A variety of noises have been measured yielding a range of maximum noise levels From 100 dBA for a four engine turbofan jet aircraft landing near a residential area, 84 dBA for a garbage truck and 74 dBA for an automobile on a 'residential street; to 44 dBA for children at play or 60 dBA for a dog _ barking. (See Figure 2) , It is important to note that the characteristics of a noise in terms of its community acceptability raises more complicated considerations than have been made above. There remains great variation among individuals regarding their sensitivity to noise. Furthermore, a noise which may be considered unacceptable in a residential area may be quite acceptable in llra industrial park. Thus, tfJe context and not just the content is important in the determination of noise as 'un~lanted' sound. The noise level we experience daily has increased so gradually tliat \'Ie fail to recognize its danger. It can result in a hearing loss t.hat not only can be a handicap, but what is worse, a hearing loss th3t cannot be restored. (See Appendix B for the Effects of Noise) Authority / Government Code Section 65302(9) requires a noise element of all county general plans, as follows: .' "A noise element in quantitative, numerical terms, showing contours of present and projected noise levels associated with all existing and proposed nlajor transpol'tation elements. These include but are not limited to the Following: (1) Highways and freeways, (2) Ground rapid transit syst~ms, and (3) Ground facilities associated with all airports operati r,g under a pemoi t rrO'll the Sta te Depal'tment of Aeronautics. These noise contours may be expressed in any ~tandard acoustical scale which includes both the magnitude to noise and frequency of its occurrence. The recommended scale is sound level A, dS 3. . I I " . ; Resolution N1,1mber' FIGURE -L SINGLE EVENT SOUND LEVELS AND HUMAN RESPONSE , ~ Response ''::' Hearing Ellects ! '" ! 2 a .';)I'II"TUllyl..oud Ul ll;) l.lmlt ,A.mplr'lE'd I- 2 :;;a~cch Ul I :; a: ;;: f Maumom Vocal "- ~ Elfort Cl L- 2 a: <I: w X 0 I- 2 I Hearing Damage 0 118 hour" ;:: ~"".rln. ::> lC ii l- I . z 0 <J , Telephone Use -- Y IOIrf,cult Irllruslvl Qulol -" ; Very Qul.t I JUGI Audlbltl r Threshold of ,Uontrng . -.= Cartier Deck Jet Operation ,,\0 ISO Jet Takeoff !lIP (200 '08 IJ D1"ot....qu. Auto Hern P f.,t) RlYetlnv Machh'" lID "" i.\~n (2.ooD fpotl G_aoe Truck '\1!lO N.V. Subw.~ StlUon H.avy Truck "10 150 felll) PMumetlc Drill (SO "'11, go All,," Clock F't'laht Train (SO "'"1 F....w.y Traffic '10 (SO IMQ A" Condltlonln" (jO 'lnll (20 1081) LIGht Auto Traffic SO (TOOIGGt} Uvino noom B.drQOftl 10 UbralY Soft Whl~r 30 (16 'OVQ Broadc...t1ng 'lIl> StudiO' 10 0 '" ," .... \ \ I I i r . , . , . I I . .1 I " . 1 Resolution Number' . . measured with A-Itp.ighting network of a standard sound leve1 meter, with corl"ec:tions added fO!' the time duration per event and the totltl number of events Ilel"' 24-!lOur period. Noise contours shall be shown in minimum increments of five decibels and shall be continued down to 65 dBA. For regions involving hospitals, rest homes, long-term medical and mental care, or outdoor recredtional areas, the contours shall be continued .down to 45 dBA. " Conclusions regarding appropriate site or route selection alternatives or noise impact upon compatible land uses shall be included in the general plan. The state, local or private agency responsible for the construction or maintenance of such transportation facilities shall provide to the local agency producing the general plan a statement of the present and projected noise levels of the facility, and any information that was used in the development of such leve'ls." Intent The tw~ major sources of noise pollution in Seal Beach, aircraft and motor vehicle noise, are under the control of the State and federal governments, respectively. However, although both have prepared standards, they have not been adequately enfOI"Ced. Their' ineffectiveness can be illustrated by the hundreds of lawsuits totaling billions of dollars against airports and the 10\~ pr'iority given noise control by the California Highway Patrol. For example, in 1973 the CHP had six two-man noise monitoring teams respons ible for 162,303 miles of roadway and 11,980,000 . motor vehicles. Recognizing the jurisdictional limitations of the City in the control of noise, it is the intent of this element to identify the potential noise impact areas in Seal Beach and propose means of reducing unacceptable noise levels which are \~ithin "the legal jurisdiction of the City. ,. i 5 . .1 I Resolution Numper GOALS AND OBJECTIVES I Goals Reduce the level of noise, so that it causes less human stress or health damage and is not as likely to interfere with human activities such as sleep, 'work, play or thought. Objectives The identification in quantitative, numerical terms of existing and projected noise levels, noise sources, and noise-sensitive land uses in the City of Seal Beach. ,Establishment of appropriate standards and criteria for desirable sound levels and the identification of means availab1e to achieve these sound levels in the City of Seal Beach. Direction for an implementation program which may be used to achieve and maintain a desirable noise environment. MaintaIn the relatively quiet areas of Seal Beach by regulating existing and potential noise sources. Inform the citizenry of Seal Eeach of real and potential noise hazards, both physical and psychological. ,/ .- I 6 . -I I' Resolution Number ' NOISE SOURCE IDEN1IFICATI0N AND POTENTIAL NOISE IMPACT ASSESSMENT " FOR SEAL BEACH The following section consists largely of the technical findings of the consultant, Bio-Acoustical Engineering. It has been divided into four major parts: 1. Noise Rating Schemes. 2. Existing Noise Environment. 3. Estimates of Future Noise Environment. '4. Identification of Potential Noise Impact Areas. ." i 7 . .1 I " - Resolution ~umbe~ NOISE RATING SCHEMES The A-weighted or dBA scale on the sound level meter is most often u;ed in the measurement of noise because the weighting characteristics of this scale approximates the subjective response of the human ear to a broad frequency band noise source by discriminating against the very low and the very high frequencies of the audible spectrum. Since sommunity noise is seldom constant, varying from moment to moment and throughout the day, the dBA noise level needs to be further described to provide meaningful data. The Environmental Protection Agency, Federal Department of Transportation, foreign countries and private consultants are now using three time-exceeded percentile figures to describe noise: 1. L90, is the noise level which is exceeded 90% of a time period (such as 24 hours) and is used to describe the background or ambient noise level. L50 is the noise level which is exceeded 50% of the time; it is the median level and indicates the average intensity. , 3. L10 is the'noise level which is exceeded 10% of the time and is a good descriptor of fluctuating noise sources such as vehicular traffic since it indicates the near-maximum levels that occur from grouped single events; being related to the subjective annoyance to community noise, it is a good design tool in the planning of acoustical barriers. 2. More recent noise assessment methods are based on the equivalent energy 'concept where Leq represents the average energy content in dBA of a fluctuating noise source over a specified period of time such as 8 hours or 24 hours. Le is further refined into Lon (Level Day-Night) and CNEL (Community NoiseqEquivalent Level) where nOlses that occur during certain hours of the day are weighted (or penalized) because they are considered subjectively more annoying during these time periods: 1. '-dn is the sound level in dBA which corresponds to the average energy content of the noise being measured over a 24-hour period including a 10 dBA ~/eighting penalty for sound levels which occur during the nighttime hours of 10:00 P.~!. to 7:00 A.M. This is a rating scheme recomnended by the Environmental Protection Agency because it takes into account those subjectively more annoying noi se events whi ch occur duri ng the nOI'r,la I s 1 eepi n!l hours. When L10 levels are reported for peak-hour highway vehicular traffic on heavily tr'aveled roadl'lays, Ldn can be estimated by subtracting 2 dB from the L10 level. ( 8 . I I , Resolution ~umbe~ , 2. CNEL is the sound level in dBA which corresponds to the aver~ge energy content of the noise being measured over a 24-hour period including a 3 dBA weighting penalty fo. noises that occur during the evening hours of 7:00 PM to 10:00 PM plus a 10 dBA penalty for noise events that occur during the nighttime hours of 10:00 to 7:00 AM. For typical highway vehicular traffic situations, computer analysis has shown that CNEL and Ldn correlate within 0.5 dBA. While the percentile figures L10' LSO and L90 can be directly scaled from a g~aphical recording of the measured noise, over a particular time period, Ldn and CNEL must be computed because of their integrated Leg base and the respective weighted time periods involved. Ideally, the noise at a particular sight would be recorded for a 24-hour period and then computer pro- cessed where it would be integrated to obtain Leg and then weighted ~ppropriately to obtain Ldn or CNEL. Tnis, however, wo~ld be a costly and time consuming process for the many sites involved in a cOINnunity-wide noise survey. Wyle Laboratories in El Segundo has conducted extensive noise studies of vehicular t.affic and has computer analyzed the relationships between traffic flow, vehicular speeds, number of travel lanes, percentage of trucks, median width, etc., and has published ,data and graphs fronl which Ldn can be computed utilizing known vehicular traffic flow data. The assumption is made that 87% of the average daily traffic volume occurs during the daytime hours of 7:00 AM to 10:00 PM and that the remaining 13% occurs during the nighttime hours of 10:00 Pl-1 to 7:00 AM. (If this ratio is altered by ~5% of the ADT, the corresponding change in the computed Ldn is less than 1 dB) It is this methodology that was used to obtain the reported Ldn's for the measurement sites, in Seal Beach. t 9 . I I Resolution Nu~er , EXISTING NOISE ENVIRONMENT Selection of Sites In consultation with city planning staff, noise measurement sites were selected to obtain a broad perspective of typical noise emissions throughout the City of Seal Beach. Initial site observations and me~surements ,were taken by the consultant with the intent of identifying and measuring any potentially offensive fixed noise sources as well as mobile noise sources such as vehiculac traffic. After this initial phase, some of the original proposed sites were abandoned when field obser- vations indicated that these sites experienced relatively little noise impact, while other areas not previously considered were found to exhibit noise levels worthy of extensive measurement. Noise measurements were made during the early morning hours as well as during the daytime hours to identify , any noise sources that might cause interference with sleep. Noise measurements were also conducted during the peak traffic hours (typically 6: 00 AM to 7: 30 AM and 4: 30 P]<l to 6: 00 PM) on those roadways where the traffic volume appreciably increased during these hours. t ~ ~ . " '. t' 10 . I I , . Resolution Numb~r Measurement Procedure Acounst;cal' data ''!~as recorded util izin9 a Bruel and Kjaer 22045 sound, level meter' with remote .microphone and a General Radio 1565-A sound level meter with remote microphone feeding a Bruel and,Kjaer 2305 graphic level recorder and Bruel and Kjaer 4420 statisticul distribution analyzer. The sound level meters (SLr~) were operated in the A-weighted, slow mode and the graphic level recorder was set to a writing speed of 16~/sec. to correspond to the "slow" response of the sound level meters. The level recorder and statistical distribution analyzer were operated from a 110 volt A.C. source provided by a Tprado 240 watt D.C. to A.C. converter , mounted in the testing vehicle. The system was calibrated after every two hour period of noise measurements with a Bruel and Kjaer 4230 acoustic calibrator; any calibration drift observed was less than 0.5 dB. Each measurement sample was of 15 minutes duration except for a few readings where the noise level was constant. The resulting chart recordings were cut to fit 8~" x 11" data pages. The 'recordi ngs on the data sheets represent approximately 11 to 13 minutes of actual noise measurements with major noise sources identified (the chart speed for all the measurements was 0.3 mm/sec). The cumulative distribution data for each site measurement was plotted on a graph to extract the statistical percentiles of L10' LSO and L90' The Ldn levels were calculated from the ADTs (Average Daily Traffic) provided by the Orange County Road Department's 1974 traffic census utilizing the methodology outlined in the Wyle Laboratories Research Report I~CR73-8, "Development of Ground Transportation Systems Noise Contours for the San Diego Region." A more current traffic census will be available in the fall of 1975, but it is not expected that any significant increase in traffic volume will be noted over that provided by the 1974 census. Even if there were an increase, it would take a doubling of the present volume to raise the reported noise leveis by 3 dBA. Ldn levels associated \~ith ADTs below 10,000 were not reported because of ambiguity resulting from the utilization of extrapolated data. Also, in a few cases, L10 and L90 levels were not reported because the spread bebleen maximum and minimum noise levels recorded at the site \~as ~lithin 5 or 6 dBA, making the determination of these per'centile figures irrelevant. Some of the data sheets do not have plotted percentile curves because the relatively steady state of the noise levels at the site did not permit taking useful data on the statistical distribution analyzer. Reported noise levels in these cases were derived manually from the chart recordings. t The NLT abbreviation which often appears in the Measurement Location block of the data sheets means Neare~t Lane of Traffic. 11' . I I Resolution:Nu~er Measurement Data , The consultant, Bio-Acoustical Engineering, conducted a total of 47 measurement samples at 38 different sites throughout the City of Seal Beach. (See Appendix A for Chart Recordings) The measurement data has been compiled in summary fashion with each site cross-referenced to its location on a 100'=1" scale map which has been cut into 8'1; by 11 sections and included in the text. ' In addition, the map sections also indicate existing motor vehicle noise contours. These contours were derived from the computed Ldn data utilizing traffic volumes supplied by the Orange County Road Department. The contour lines can be considered only approximations of the actual geographical locations, since the complex effects on sound propagation due to various land forms, man-made structures and atmospheric disturbances could not be considered in the for'mulation of the contours. The contours serve primarily as graphic guidelines to assist in the identification of ' areas subject to noise impact. They are most useful in formulating strategies for noise control and abatement. Although they can be used to indicate areas where specific noise measurements may be necessary, they canno~ substitute for such measures. The NAS Los Alamitos contour map I'epresents contours developed by the Orange County Airport Land Use Commission based on helicopter operation data provided by the U. S. Army Environmental Hygiene Agency. t 12 ' . ~ -. '" '" _.1/ ..... I-"" ~ 0 0 ~ w ~ 00 00 00 ~ ~ m ~ :J:l:J:l :J:l '" c 3 '" 16 '""l CD " '" '""l ,... G1 -'. 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AI AnJU"!'" n.~ \ Re601.utiOn ,'~--- \ ~ eOLS"'" ~'J E - > 33 .....,.. , .. ' . " , 34 .<J Et)"'01!.t'\ AVE. \ ,. Y 'y 0 f Of Sf-A\.. &EAC~ ~Ut!"\l'G10M &EAC~ , ,.-... J /'/' I.. ..... _ J / '1:~ ~... /~ !:--', I. ' .... , " '-...,/ ') . , ~ ~ 4- , t ~ I,,) - .,:: , ~. c.> u ~~ \, fit ...1 .rJ I , " , . ..__I \ I \ , . I I Resolution ~umbe~ ESTIlo\ATES OF THE FUTURE NOISE ENVIRONt~ENT Roadway t{oise " ," The California Vehicle Code Section 27160 lists maximum noise emissions permitted for new motor vehicles (automobiles, motorcycles and trucks) through'19B7. Using these standards it is estimated that the, noise output level of automobiles will be decreased by a minimum of 3 dBA in 1995. However, the major noise generator on highways is diesel trucks. They are generally 10 dBA noisier than automobiles. The application of current state-of-the-art noise control technology could result in a reduction of 15 to 20 dBA per vehicle by 1995, assuming the propulsion systems remain basically the same. Although tire noise at higher speeds (greater than 50 mph) may limit the reduction, it is reasonable to assume that the noise emissions of a diesel truck'will be reduced 10 dBA by 1995. Recognizing the future noise reduction for both automobiles, motorcycles !lnd trucks, if a conservative overall noise reduction of 3 dBA. were assumed for highway noise in 1995, it would take over twice as much traffic as there is today to increase noise levels above what they are presently. Roadways such as the San Diego Freeway (210,000 ADT) and Pacific Coast Highway (36,000 ADT) are already approaching their maximum useful capacities and thus a 100% increase in traffic would be impossible. In effect then, by 1995 even with maximum traffic volumes, noise emission from highl.tays should be less than they are at pi'esent. Ai rpOl:t Noi se The present CNEL contours associated with NAS Los Alamitos were developed on the basis of 144,000 helicopter operations per year. This volume is much greater than the present level of operations. At present there are no plans to restore fixed win9 jet aircraft activity. In fact, the military is removing all operational and training activities for jet aircraft aI'lay from ma,jor urban areas in California and concentrating them in outlying areas such as NAS Fallon Md Lemoore. Thus, the contours for NAS Los Alamitos in this element are in reality much closer to the airfield and flight paths than shown and will most likely remain t.hat way for some time, t 16 . I I Resolution Numbe~ IDENTIFICATION OF POTENTIAL NOISE IMPACT AREAS Th~ purpose of this portion of the noise element is to identify those areas where potential noise impacts may exist. College Park East Residences in College Park East adjacent to the San Diego-Garden Grove Freeway experience exterior noise levels up to'75 Ldn'. depending upon their proximity to the vehicular traffic. the variable amount of acoustical shielding provided by the existing six foot block wall along the southern boundary of the tract. and the orientation of the dwellings with respect to the line-of-sight to the vehicular traffic on the freeway. The replacement of the six foot wall with a higher acoustical barrier could reduce the noise from the vehicular traffic on the freeway to accepta~le levels and provide a more comfortable living environment especially for those residents immediately adjacent to the freeway. Leisure World The Beverly Manor Convalescent Hospital and residences in the northeast section of Leisure World immediately adjacent to the freeway are exposed to exterior noise levels of up to 70 Ldn. However, as the freeway continues to the west, it turns northward and pulls away from Leisure'World resulting in much reduced noise levels. Residences in the vicinity of the western property line of Leisure World are subject to constant exterior noise levels of up to 65 Ldn.generated by operation of the Haynes Steam Plant. Downtown Area . The major source of noise to the downtown area of Seal Beach is the vehicular traffic on Pacific Coast Highway. Traffic volumes of up to 36,000 vehicles per day are reported by the Orange County Road Department. This computes to a Ldn of 72 dBA at 50 feet fronl the nearest lane of traffic on either side of Pacific Coast Highway. Thus. the Mary E. Zoeter Elementary School and the residentially zoned parcel on the northwest corner of Seal Beach Boulevard and Pacific Coast Highway are exposed to relatively high vehicular traffic noise levels. In addition, McGaugh Intermediate School at the corner of Bolsa Avenue and Seal Beach Boulevard is a potential impact area due to noise from traffic on Seal Beach Boulevard. An Ldn of 68 was computed at a distance of 50 feet from the nearest travel lane on that roadway. t 17 . I I Resolution Nu~er , POLICY RECOMMENDATIONS 1. That the City of Seal Beach adopt a noise ordinance tb regulate and discourage harmful and unnecessary npise within its boundaries. . . 2. ,Demand that local police enforce the State Motor Vehicle Code as 'it applies to excessive noise. . 3. Due to excessive traffic noi~e exposure from the ~n Diego Freeway, it is proposed that an acoustical barrier be constructed between the freeway and the College Park East area to reduce the residential noise impact to an acceptable level. A local assessment district should be formed to include the affected residents and nelp finance such construction. (Note: A separate study is being undertaken to determine the boundaries of such a district.) , . .-......-.. 18. " . I I , Resolution Number' . . APPENDIX A NOISE MBASUREI'Q.'NT DATA ( . VI 0 Z 0 H [/1 t>:l '" 0 t"' t>:l t;j t"' I~ -.I 0 CIO 0 % OF TIME EXCEEDED 1-' ~ N'W ~. ~ m ~ m ~ 0 o 0 000 0 0 0 000 "" o \D o I . , I I I I I -- I L [/1() 1-3 ~ I1H 'OZ -.1'0 ~ [/1 ~g: H (1):3: 110 VII!> H ~ 8~ OH 11 1-3 t>:l:.J tzJ 0[/1 Hl~UJ tzJ 01-3 .. <() (1)t>:l (1) e:: .. Il:l (1)1-3 fIl (1) \-"1 H .... VI llo:z:. fIll/l c1'::s :~ 0 .. "- \-,.0 I ,0 "" \D a~ ::se:: fIlll:l f) . '" "- \Q~ OI1Z .... -.I s:: \-'-.., 0 '0 VI a.. 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VI 0 a H tIl t"l 0'\ 0 I:' t>:1 ~ I:' I~ ..... 0 ex> 0 Resolution Number % OF TIME EXCE~DED NOISE LEVEL (dBAl I-' I-' N W A VI 0'\ ..... ex> <D 0 o 0 000 0 0 000 0 .... o ol'o VI 0'\ .\0 0 0 ijl ! II OJ 0 II; I 2 "ll !!. 0 ill' ". <5 , ' , ..., :, I' Z' l\l ~ \0 o 1 I I ..-' V / - , , : i 'j I, , :1, I ! II I I ill i " 'II ! 1,1 : , -II' , I', . I' II! ' " 'i ' 'II! ' , I: I I , ,! j I I I ! I I' I , II : " I, . , I' , I, I 'I i i , '!I I, I I !ii I' : I!! I I II I" I' I i II I II ' II I' I I I , I ~ I' I I, I 11 ; III I I ' II I' ! I ' I II t i : 1 II I ' : j I I II .1 " ! I . , % OF TIME EXCEEDED , . \ . , ~ !: :. I: I' .' !. ,- ~ .' I H '(Jl r, t'.1 t" ;1 t'.1 I, f ;;j t" .' I .. ~ I 0. t!l :z:< -- j l-' '" o 0 I-' o o W .r,'Io U1 000 C'\ -....J co \D o 0 0 0 o .... o VI o ,I I I '" o .... o co o '" o . Resolution Number NOISE L~VEL (dDA) ~ I.J1 0) -....J 0) o 0 0 0 0 '" <:> Ii ' " I : "II II'I,';;!1 iill , ,; I, I '< , I I , I ! II "I : 'j 'ii i j...1 , III " I: !! ! 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I-' 0 ~ \1l rtK m III ~'J. 0 ~ ~ ~ ~ g; 0 (\) ~ \1>' \1>' III ';I 11I0 \ 1"' rtH'l ~ t'l o~ H P. g 1"' H\"" 0 t:l H'l ICl \1l \"\ . .\ , .- . , '" <:) . ,I I Resolution Number APPENDIX B NOISE EFFECTS The effects of noise cover a broad range of conditions and so it is often dlfficult to determine the causal relationship between the pollutant and its consequences. However. research scientists have uncovered sufficient evidence to support standards whose violation could endanger public health. 1. Hearing Damage Noise of 120 decibels and higher will cause ear pain, Pain occurs'as the ear unsuccessfully attempts to protect itself through a mechanism physicians call the acoustic reflex. This reflex protects the inner ear from extra loud sounds by reducing them, just as the eye protects itself from extra bright light by contracting the pupil. The ear is not completely successful in this task. ~hen the intense sound waves occur only briefly, the damage may be temporary. But if noises are frequent or sustained, the damage may be permanent. and such noise induced hearing loss cannot be restored. Research by the EPA concludes that an eight hour per day exposure at 70 dB steady noise induced permanent threshold shift (heari ng loss) of no more than 5 dB at 4,000 Hz. For most environmental noise, protection at 4.000 Hz will ensure that all other frequencies are protected. In view of possible data uncertainities it was considered reasonable to round down from 73 dB to 70 dB. 2. Interference with Conversation When background noise exceeds 50 decibels, conversation is impaired. The EPA, in evaluating the effects of such background noise concludes that the outdoor average sound level (Le'q. (24)) should not exceed 55 dB if people are to converse without difficulty outdoors at a three meter distance. It is important to note that average outside-to-inside sound attenuation of typical Southern California dwellings is about 24 dBA, with doors and windows closea. Therefore, if noise exterior to residences is limited to 60 Ldn or less, noise intrusion to the interior less than 40 Ldn will be assured (provided windows and doors are closed). In California the State has adopted noise insulatiun standards to be met by all new multiple unit construction. The standar'ds include insulation from exterior as ~rell as interior n0ise sources. In fact, multiple unit residential structures to be loc~ted ~Iithin vehicle, industrial or ai,"pOl't noise contour's 1 . I I Resolution number: , . of 60 CNEL or greater are required to have an acoustical analysis to insure that the interior noise level of the new units shall not exc~ed an annual CNEL of 45 dB~ 3. Sleep Disturbance Noise can interfere with sleep by either awakening a person or causing a shift from a deep sleep level tp a shallower level. Brief sounds of sufficient intensity and fluctuating noise levels above 35-45 decibels have been shown to alter the sleep pattern to lighter sleep and hence poorer sleep. Research indicates that when people are exposed to a great deal of noise they will complain of sleep loss and suffer a reduction of their feeling of well beinq. Regular interruptions of sleep by noise may prove a'health hazard both physi~al1y and mentally. The EPA in considering the effects of noise on sleep has shhd: . 4. "The maximum permissible outdoor level of Ldn = 55-60 dB is proposed in order to limit people's annoyance due to noise, and to provide average sound levels from exterior noise sources below 35 dB at night in an average bedroom with closed windows. The levels in a bedroom with open windows could, of course, be higher but it is reasonable to expect people who open their windows at night to be able to accommodate to slightly higher levels." Noise Annoyance The EPA reviewed several studies in the annoyance of people caused by noise. These studies sho~l~d an almost identical relationship between noise levels and percentage of people annoyed. The EPA concludes that: "An 'outdoor Ldn of approximately 60 dB or le~s is required in order that no more than 23% of the population expused to noise would be individually highly annoyed. (The same average sound level would guarantee that, on the average, 95% effective speech conversation at two meters distance outdoors would be possible at all times, and normal domestic speech activities are possible indoors, with open windows.) It therefore appears reasonable to propose an Ldn of 55 to 60 dB as the long range goal for maximum permlssible average sound level with respect to health and welfare. (Note that this level is not considered optimum, merely thetupper limit of permissibility. 110 endot'sement is intended of degradation of existing areas having a lower noise level.)" 2 . .1 I Resolution N~mber: It is EPA's judgement that the maintenance of levels of environmental noise at or below those specified above are requisite to protect th~ public from adverse health and welfare effects. Thus, as ,an individual moves from a relatively quiet home, through the transportation cycle, to a somewhat noisier occupational situation, and then back home again, his hearing will not be impaired if the daily equivalent of sound energy in his environment is no more than 70 decibels. Likewise, undue interference with activity and annoyance will not occur if outdoor levels are maintained at an energy equivalent of 55 dB and indoor levels at 45 dB. However, it is assumed that environmental noise levels will fluctuate, even though the identified energy equivalent is not exceeded. Human exposure to noise \1ill vary during the day, even though the daily "dose" may correspond well to the identified levels. This brief analysis of noise effects and standards has been included here for two purposes. On the one hand to acquaint the reader with the variety of subtle, but undesirable effects of noise; and on the other to provide reliable data for the creation of local noise policy standards. t I , ~ ( \ . r , " ~ II ~ ': ~ : ~ :~ t !~ , '. Ii , 3 'I , " . .1 I Resolution Num~er ~ . . , , SUMMARY OF NOISE LEVELS IDE:--:T1FIED AS REQUISITE TO PROTECT PUBLIC HEALTH AND WELFARE Wlnl AN ADEQUATE MARCIl>; OF SAFETY I TO PREVENT LEVEL AREA .: Hearing Loss ...... -L;;Q(i4) " 70 dB... Al!nareas:::'" 'Outdo'Or activity Ldn "',5 S dB" Outdoors in rcsidential areas and . interference and farms and othcr au tdoor areas annoyance . where people spelld widely varying amounts of limc and other places in which quict is a basis for use. Leq(24)" 55 dB Outdoor areas where people spend . limited amounts of time, such as school yards, playgrounds, etc. -- j ,idoor'activitY'-l "L"~-;.;;- 45 rill' Indoor residential areas ,dn .,., interference and annoyance Leq(24) .. 45 dB Other indoor areas with human activities such as schools, etc. Explanation: I. Detailed discussions of the tcrms Ldn and Leq were explained earlier. Briefly, Leq(24) represents the sound energy ~veraged over a 24-hour pcriod whil.. Ldn reprcsents the Leq with a 10 dB nighltime weighting, 2. The hearing loss level identified here represents annul,l averages of the daily level over a period of forty ye:!Is. (These are energy averages, not to bc confused with arithmetic averages.) 3. Rcl:ltionship of an LCQ(24) of 70 dll to higher exposure Icvels. . EPA has determincd that for pll\'pO~cS of hcrrril1g ~onscrvulion alone, a level which is protective of that scgment of the population at or below rhe 9Cith percentile will protecl virtually the enliw population. This Ilwe! h'IS becn ealcul:ncd to be an Lcq of 70 dB over a 24-hour day. .' 4 w .1 I . . Resolution Number " . APPENDIX C o . GLOSSARY 1. A-Weiqhted Sound Level (dBA) - A unit of sound measurement in which a single number represents the human ear's response to sound. 'This is accomplished by a weighting networ~, signified as "A", assigned to the appropriate fl"equency bands and thereby reducing-the effects of the low and high frequencies with respect to the medium frequencies. Sound level meters with an A-\1eighted scale are used for community noise measurement with units being expressed as dBA. 2. Ambient Noise - The total level of all noise near and far, 'detectable in a given system or environment, independent of the specific source being mea5ured. The ambient represents all noises present at a given location'. Audible Range of Frequenst - The frequency range of human hearing encompassing 16 Hz to 20,000 Hz. o Background Noise - The total level of all noise in a given situation witb the exception of the desired sound (i.e., residual noise). . 3. 4, 5, Decibel- The measurement scale of sound repl'esenting one-tenth of a bel. A decibel level of zero represents the faintest sound audible to the human ear. Decibels are logrithmic, thus, 100 decibels represent 10 billion times as much acoustic energy as one decibel. 6. Frequency - The number of times per second in which a sound wave is repeated, expressed in a medsurement unit called Hertz (Hz). 7. Hearinq loss - At a specified frequency, an amound in decibels by which the threshold of audibility for that person exceeds the normal threshold. 8. .Impulsive ~ol:nd - A noise of high intensity and a shcl't duration such as a gun shot or explo~lon. Level - The value of an acoustical quantity in decibels. Maskina - A second, usually louder, sound that makes a first sound inaudible or unintelligible. t Mode Noise Level - The most frequently occurring noise level in any specified time interval. 12. Noise - Annoying, harmful, obnoxious, 01' unwanted sound. 9. 10. 11. 1 II., I I .L. , ,- -<< p . '. " Resolution Number . . Noise Attenuation - The ability of a medium to reduce the level of a noise source, specified in decibles (dB) of transmission 1~3s, ~~ually in octave frequency bands. : 14. Noise Contour - A line connecting geographical points of equal noise level as measured on the same scare. 13. .. 15, Noise Impacted Area - A specific area exposed to substantial levels of noise, usually described by a cumulative exposure rating scale. 16. Noise Performance Standards - A standard based on permitted emissions rather than on the category of type of land use. 17. Noise Referr.al Zone - Noise-affected areas identified by noise contour maps. Its intent is to act as a tool to identify noise-sensitive land uses. Noise Sensitive Land Uses - Noise sensitive land uses include but are not. iim'ited to: residential, hospitals, schools, libraries, churches, unsoundproofed offices, hotels and motels, and outdoor recreational areas. The use of land in which individuals are or can be particularly affected by noise is determined by such factors as psychological impairment, sleep disturbance, speech and talk interference, and annoyance. 19. Peak No'ise Level - The maximum instantaneous level that occurs during a specified time interval. In acoustics. maximum sound pressure is to be understood for single events unless some other kind of level is specified. 18. 20. Permanent Threshold Shift - Permanent hearing loss at certain energy leveis caused by exposure to excessive noise. 2i, Residual Noise Level - The lowest noise level existing at a site in the absence of identifiable sources (i.e., background noise). 22. Sound - As used herein, a rE!action in the ear caused by mechanical radiant energy of a source transmitted by longitudinal pressure \~aves in air or other elastic medium. 23. Soun~~~vel Meter - A measurement instrument, containing a microphone, an amplifier, an output meter, and one or more frequency weighting networks, used for the determination of noise and sound levels. 24. Temporarv Threshold Shift - A temporilrp hearing impairment at certain E!nergy levels. 2 '. I I . . Resolution Numbe; . . References ,. . 1. "Community Noise" U.S. Environmental Protection Agency. NTID 300.3. 2. "Transportation Noise and Noise by Internal Combustion Engines" Agency. NTID 300.13. from Equipment Powered Environmental Protection 3. Register 70 No. 48. California Department of Aeronautics Noise Standards. 4. 23, CFR Part' 1 - Transportation: Noise Standards., Department of Federal Highway Administration. 5. Report 117. Highway Research Board. 6. fiRB Special Report 87. Highway Capacity Manual, 1965. 7. "Noise as a Public Health ~azard" American Speech and Hearing Report No.4, 1969. 8. Leo L. Beranek. Noise and Vibration Control, l.ol.cGraw-Hill, 1971. 9. 'Michael Rettinger. Acou.stic Design and Noise Control, Chemical Publishing Company, Inc., 1973. - 10. Leslie L. Doelle. Environmental Acoustics, McGraw-Hill, 1972. 11. "Impact Characterization of Noise Including Implications of Identifying and Achieving Levels of Cumulative Noise - Exposure" Environmental Protection Agency. NTID 73.4, July 1973. 12. "Information on Levels of Environmental Noise Requisite 'to Protect Public Health and Welfare with An Adequate Margin of Safety" EPA Document 550/9-74004. 13. California Noise Insulation Standards (California Admini- strative Code, Title 25, Chapter 1, Subchapter 1, Article 4). 14. "Development of Ground Transportation Systems Noise Contours for the San Diego Region" I'lyle R'esearch Repo,':"t WCR 73-8, Wyle Laboratories, December 1973. 15. "Orange County General Plan Noise Element" Olson J"aboratories, Inc., April 1975. 16. "EnviroIlJllental Ji:oi.se ASReement, lIe11ccpter Aircraft Ol'Grllt1.ons, LOB Alamitos Naval Air Station," U.S. Army. ,En:liroIllllental Hygiene Agency, No. 34-021-74, llovember. 1973. .~ ,.1.1. , " .....___.f__ .. 1'1__1...'" tty.....""__ l.1r.1.U.I....."'.\.~ 1.1.. IIJCi....,O':::......' .....Cb".G.. Comission," June 2, 1975. t~ the C:::l";lO::' Cm.:nt.j" A:!.rpo~!: ~~l'..d !Js~