HomeMy WebLinkAboutMiscellaneous PLANNER 5/17/2007
Nois~ a!ld New Project Development,
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. Definitions and "Measuremel"!ts'." .- ~'., .
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W:~o]n9~rsl~ar).~~ ~gY" _th11~il?nificance, of "noi~e impacts. is determined," it is useful to "'::""~
". t, understand how noise Is' defined and measured. Airborne sound is a rapid fluctuation of
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~at ~ressu~e> a~ove ~n_dJ PTllow~trTlOSPheriC. pres.su~e. There are sev~ral ,~ays to measure'
,noise,' depending' on thelsource of the noise, the receiver, and the reason forthe noise
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- T~ere a.res'everal, basiC: acoustical terms that me~i,t definition. As ~ basic. s~arting "poin~, . " , '. ,",
. . ',,;ambient noise level is defined as the normal or existing level of'environme~tal noise at a", ..'
-7' '::"-gi;e;i~~~tion,A~j,~t 'nol;e 'i~;h~,-~o-;';posite'of ~ols~from alisciur~es ~ea~"a~dfar, ,', :.1ISu'bscribe'" - .:. ,""0
. Noise itselfis measured in,decibels (dB): A decibel)s a unit that describes the amplitude ",
,or loudness of sound,'equal to 20 times the logarithm to the base 10 ofthe ratio of the'
reference pressure to th~ sound pressure, which" is,20 micropascal~ (20 micronewtons '
per. square meter). Based on the concepts' of ambient noise and decibel me~surem~~t,. ....
. the A;Weighted sound level (~BA) refersto the sound,pressure level in decib,els as" ',,' , RSS Feeds' ~','
. measured on a sound level meter using theA-weighted filter network, The A-weighted' . ' , '
filter deemphasizes.thevery low and very, high frequency components of the sound in a , ".,' '
I:'
Noise and New Pr:-oject Development
. By Q.~~!gf.tl!!p~i, ~r,~g..[):..<;gr!?i,~,
10/1/2002
Editor's Note: This article 'is the first in a four:part series by attorneys with.Stoel Rives
LLP to address what some consider to be non.,traditional environmental permitting issues
arising in new p'rojectdevelopment. The .series will-address noise, odor, and'View issues
.associated with the construc~ion and ~peration .o~ new development projects. in. Oregon,
and is intended to proVide 'readers' with a broad overview of relevant terms, applicable
regulations, andyn"ique issues likely to be encoun.ter~d by project developers. . "
Introduction "
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Since 1973, the Oregon Department of Environmental Quality ("DEQ'~) has had in 'place,
administrative rules that set a limit on the amount of ambient noise that a.new industrial
or commercial development may produce (see OAR 340, Division 35). While' DEQ's rules.
establish the applicabie limits; DEQ dissolved its noise control 'program in 1991: As a
result, "DEQ no longer maintains'noise staff or enforces its noise regulations directly: ~_
- ' '- ; ~:
However, the rules oftentimes are applied and enforced by other state agencies or local
j~risdictions overseeing 'the approval-of a given prC?ject. For exa~ple, the Oregon,Energy.
Facility Siting Council requires adherence to DEQ's noise regulations ~s p'art of its facility
siting process. Similarly, many local govert"!nients mandate'compliance with DEQ's noise
, '
regulations as a 'condition ofthe local land use approval for new projects. While local
governments may go beyond the limits and restrictions Imposed by the DEQ rules, ,",
understanding the general application of the DEQ rul~s for new project development Is a
good starting point. This article reviews the type and extent of evidence that is,often"
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required to support findings of compliance with DEQ's noise regulations., < '
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, 5/17/2007,
'';',: .J
Noise and New Project Development
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manner similar to the frequency response of the Kumanear and correlatesiwelJ with .-
subjective reactio~~.to- -noiS~. Thus, noise levels s~~t~d' in terms of dBA ref Met' the'
. 1\ l _' i
response of the human ear by filtering out some of the noise in the low- and high-
I . .. _ . I
frequency ranges that the ear,does not detect well. The A-weighted scale commonly is
used in lo~al ordinances and ~tandards. ~:.::.~:.::..=...:-:-~~: -. '. ,.-'. \{~
Another key con'cept iS'that of the equivalent sound pressure'level (I:eq)' which is the,
energy average A-weighfed noise level during the measurement period (such as hourly),
From this concept foll~ws the concept of measurements that relate to the noise-level'.. '.
" distribution d~rlng the ~easure~ent period. T.hus, LgO Is a measurement that
represents the noise level exceeded during 90 percent of the measurement period, ' ,
Similariy,LlO represents the noise level exceeded for 10 percent of the measurement'
period. These measurements playa key role in DEQ's ,noisej'egula~ions, as discussed .........-
below", " "
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The effects of noise on people fall Into three general .catego,ries: (I) subjective effects of
,_,annoyance" nuisance, ~nd, dissatisfaction;, (Ii) .interference wl'th such activities as ,_. .
speech, sleep',and'iearning;and (i1i) physiological effects such as startling and hearing,
loss. Inmost'cases, enyironmental noise pr!Jduces effects in the first two, categories , .
only. Ho\yever, ,worker~ii1 ,lndus~rial p'lants may experieilcE!'.noise' effects in the third'
'. .-'," ..,' . ". ,', .
category. No completely satisfactory way exists to measure \he subjective effect~ of
nOIse or to measure th~ corresponding reactions ?(a"!noyan,ce and dissatlsfac,tion. ThiS
'lack of a common standardis,primarHy a resulrofthe'w"ide variation~n.individual. ...~
" thresholds' of annoyance:aT)d habituation t~ nOi-se. Thus, a.rl i~portan.t way.of '-~'.,
determining a pe~so,n's ~ubjeC~iVe r7acti~n to a new_ nOi,se is b~ cO,mP?:lhg it' w'ith t~e~'.":
existing or "ambient",environment to ,which that person' has 'adapted. In general, 'the
more the level o~ the tonal (frequency) variations of a noise e~ceed 'thepreviO~sIY; , '
. ,- ,"
. existin~ ambi~nt n~ise l~v~1 or ton a', quality~ th'e less, a.~~ePtable the ,new nOis~_~i!f-.b~,,_
" as judged bY,the,e~J'9~ed ,indiVidual.,,; " ,:, ': ':, ' ", " ' ,';' " ,,: '
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To prOVide a sense of :;cale, typ.ical soundlevel~ measured In. the environment range ":'.
f~om.a civil defen~e s,irenat 100 feet with an 'A-weighted soun'd level 'of 130 dB, which,' ,"
surpasses the pain t~reshold on a scale of subjective jmpressions; to a freeway at 100"
,feet with an,A-welghted sound level of 80 dB,.which is.,considered moderately loud; to a ' ','
'SOft,whispecat 5 feet wi,th 'an A-weight~d sound ievel of30dB; which is considered,' ,;,-
quiet. " ....." . ' ...., ,",":--~'1s:":,:":',,,~.;r- ."~'",
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';. NOis~~~se~sme~~> .' ,:;"'<'Y ">:"';:':']:""'. .' ",:) '. ',.
,The starting point for:'anyrioise impacf'assessment' for a new project development Is the :,,'
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determihation 'of th~ ~ppropriate 'analysis area for nOise'imp'act~, whi~h iikelywill include,.:'
those areas that have' the potential to be affected by,construction or operational noise
. ' .' , ".' .,.'.
, resulting from the proposed facility, With an analysis area established, the next step is >:
. . " . ., " "" . '" .
;'" '.to conduct,noise,level measurements to establish an existing' noise baseline. Fromhere,
, - _' .,". ',- .~. -", - '.' . " '.'- .... -" --i,~, -I .~, . "'. .. - ~:., . .-' - - -',.. ',. '.", " '.. . ..: -' -' . '.' .'" -,
:: the final step is to predict-noise' 1~~~ls resulting from theconstructlon a,nd ope~aWlil' ot
',' .the,P,roposed.faCllity. "',.' .. c,'.,,' "',," "......,. .'....' , "
. ",_'_j..: '. ,.~', \J",/;,,;- '<:"~'''':':'~';'::':':'' .r",:. ""
'; . Constr~cti~n noj~~",'is usually.c~ns'idered short-'t'erm' 'nbise-~ arid',~~lse'.levels often 'vary' ,'..::/
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depending on the construction phase, Construction of new industrial facilitl~s can be ),', ':
divided into five phases;" when different types of,constructionequipment are used: site; .' '
'preparatIon .aT)d'excav~.tion, concrete 'po'uring, st$el ereCtion,"'mec~anlcal, and cleanup. ~->..' ~
Predictions are oftenti'mes based on individual pieces of construction equipment as well ,....
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,',::' k;:~:;: 1';::;-ct'l",!,i~!J'1';~ermissible Environmental Noise Levels (d,BA), J' ., ,'" :," .:
;' ',':,' r'(7i \'StlOtisticai.' \ U 1l.' , , .,' Nighttime( 10 p.m. to
,";" """"" +1 ---.. _ '.0 :.: .'- Daytime(7, a,m. to 10 p.m.) , , ..
~,-~.'t.~':':::t1r.~-: -:-Descriptor~ ''''In''l~~- .-..- '_ -.'~' ,".--:-- '.7.a.mi"')'~.'';:' - --.......... .,. ....;",,-.-
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ji:~,:',1 ' ..., LTo ;-. '1'IIW\~5 o.Ambient + 10 dB'A 1150 or Ambient + 10 d~A I ,':' ~:-^ . .
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?~',:O; C:.:'::I LID '.,' ~~b o~Ambient + Hi dBA' 55 or Ambient +lO':dBA I'.:' ,,::, '^
',., J .,., ,l:I::r:' 75"DI 60 ";;1"
Noise and New Project DevelopmeT"
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as empirical evidence generated from ,construe,tian sites of similarly sized industrial'
projects, Such predictions may 'also factor in site-specific attenuating factors, sucti,as
topography and the divergence of m,uitiple sound waves in open air, Finally, as' ,
explained below, the predictions will wantta estimate average construction noise lev~ls ~.
projected to the nearest nqise receptors from 'the p'ro]ect site. . " .
Operational noise is viewed as long-:-term noise, and may vary 'depending on whether the
facility is in t~e testing and commissioning phase o~ is operating during normal, full-load ,
'operations. Operational noise should also be examined for potential cumulatiye noise
effects, in the event that the new project is being built and brought online at the same
time as other new projects. Again, the predictions will want to estimate average'
operational noise levels proi".cted to the nearest noise receptors from the project'site,
Applicable Noise Regulations ,",
"
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, OAR chapter 340; division 35, estabiishesstatewide maximum ,permissible, " ,
environmental noise levels Jor 'b~th ex}stirig and new commercial and industrial uses..
, The noise regulations apply at'''appropriate measurement points" on "noise";sensitive
property," The "appropriate measurement point"'is defined as which~ver of the following
is farther from the noise source: twenty-five feet toward the noise source from,that '~,
point on the noise-sensitive building nearest the,riqise s~urc~; o,r tha"t point on the
. noise-sensitive property line nearest the noise 'sour~e., -
, '
:'Noise-sen'sitive property" is defined as "real property normally u'sed for sleeping, or ",',
'normally used as schoo is, churches, hospitals or'publlc.libraries. 'Property ~sed in (""" "
'.., industrial or'agricult~r.al activities is not Noise-Sensitive Property uniess it-meets the.' :.:
above criteria in' more than an incidental man'ner.",Private residences often.,times turn
, '
ou\.to be the relevant noise-sensitive pr.operty ide!1tified.
In setting maximum 'pe~missible envlronm,ental noise levels, the DEQ rules disting~~ish
between new sources located on previously used sites and new sources located 'on '.,
, ,~ . -.' . ~ .. _. "'_ . r'" . " ,.
previously unused sites, A key limit that many developers face' is the limit set for new ,
sources located .on previously un,used S.it~s, In suc~ circumstance~, the rules ,prOVide' "~', ,~.
that the developer cannot operate a noise source if the noise levels generated by that' ,:
s9urce.increa.s~..the. ambie!1t statisticat' noise,'levels, LlO or LSD' by mo~e than-10'd!3A i~ .l,':.
,.' . a"ny one ~our,'or.-othermaximum I.imits. Such limits~ay be difficult 'to achieve,'" '. /'
~ :,,: espec~ally in previously und~veloped; ru~al settings. ,- , , '- .,~ .
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,," " The following table summarizes app'licable state reguiations" assuming a new rioise '. >
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"I s?urce located., ~na previously unused site:', ::_ - r .,~:' " ;"'~' ' ~ I "
'.
Base~ ~~ Table8 ofO~R 3~?'~3.5:, N~~ I,n~:~strlal an~ commerclal'N'~isel.'" .
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Noise and New Project Development
Page 4 )f 5
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Ilsource Sta~da~s and OA~ 3~O-035-0035(1)(b)(~)(i),
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A hypothetical proposed facility subject to the above maximum permissible noise,levels
might play out as follows: Assuming that the proposed facility will operate 24 hours per'
day and emit a relatively constant level of noise, the nighttime limits will be the
, controlling regulatory threshold, Further assuming that the monitoring resuits show the
Ambient L10 to ,be 25 dBAand the Ambient Lso to be 21 dBA; the proposed facility
would be subject to the following limits: '. ",'
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. The'L1 would be limited to '60 dBA. .,'
t-'';'.:'The'L:- '-would be'llmited to 35 dBA (25 dBA + 10 dBA),'
(I,'-..j ,"J .10, I ~ -; . .It
1'1' )91 .:' T~e Lso would be,limited to 31 dBA (21 dBA +10 dBA).
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In addition to the above limits, the DEQ noise rules also regulate "impulse sounds,"
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'meaning a single pressure peak or a single burst of sound for a duration of less than a
., ' '/. -, - - . ~, . . .' .
second,(such,as,blasting)!:finaliy, the DEQ rules establish standards. to regulate octave
v__..._________.___.--" .'
" band sound pressure levels and audible discrete tones, Such'standards can be applied
, by DEQ when,it does not believe that the basic limits for existing or new sources (such ..
as those described abo:-,e) adequately protect the ,health, safety, or welfare of the .. '
public" " " ,'..: , ,. ",
- ' .' . . ,."" .'.'
DEQ' noise' regulatIOns do exempt several categories of nOise sources from the Industrial
. noise limits, The rules exempt sounds created by: tires or motor used to propel any:', '
road vehicle complying with the noise standards for road vehicles; sounds that originate
. on construction sites; and soun~s c~eated in"the construction or. maintenance of capit~l, .: ,
; equipment. Variances may be.requested,,- perhapsdifflcu!t given that DEQ does not,.. ",
"maintajn any noise'staff. ~. ':.;' . ',' '.' ,!'....~.. .' "~.' . ", f'.-.~."" '~.: ..~:;:
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~oiise Mitigation Measure~L "..;. "
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, Local governments, in particular, will often Incorporate requirements into their' IOG~1 . ;'. _ ,<'
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codes that cail on project developers to take measures to reduce predicted noiseJevels ;';',
, .. ' ' ,~
where possible. In such 'circumstances, cO'TImon' nc~ise ~itigation ,measures, associated .'.. \~...
with construction, activities incl~de'limiting-~?ISY con~tr~ction activit'i~s betwe~n_l0 p:m. :;~"'l~,;~,
, and 7'a,m,; ensuring that all construclion eq'uipment 's properly ,:,uffied;. a~d U~i~9 low- .; I', ','
pressure steam blows or temporary blowout SIlencers when appropriate. W!th respect to, . :.
. , . .j
, oper,ational .noise, comm'on mitigation features include t~e use of acousti~ally insulated -:". <,'
'. ' buildings, the use-of silencers,. and other appropriate noise control (~.g., duct Silencers;.; ~
.." acoustical,louvers, and acoustical cauiking), S~me form of monitoring during facility, ,,;,":,' '(~'"
constructi?n and/or operation mayaiso be required, Finally, it may be possibleto",,''',''',: '
, " '
,':::~~:~~:::~::~~;s:~cep~~~s,on ,~oise-~~n~iti,vepr~~;~ie::;~r?~gh n:ise,~: ~on- " , .., ; ~'~< /~;~I~, '~:W'i~]'
.-c',""~m, ""~ ;;, .;,., ~,," ,.;,;. mO""''',"'' ,"0< ""N'; .~;"," :'mi""", _i. ,.:, <>-, :', :. + 0:.. I
,::, planning and permitting stages of~ew project develo'p'!'ent,W,hilnegulations(y'ay'vaiy::"; :. ,~');:~t{';,' ;~ ' '
,;' depending on the local jurisdiction and the nature of the' project,a good starting"p,oint ,,-:',",, :': ~~" '0~\1.'-b:) , ,
"for those considering ne';; pr~jects is a noise analysis 'aimed, at ;hci~ing compliance With:; "',. , ' ,
, ',' applicable DEQ noise regulations, Careful,'predictlve noise analysis, taking into,account
'. .. . , . ,- ,- "~.
" the step~ilnd regulations described above'; may be the key to building a solid ' "
'~'admi~istrative record fo~addressing potential noise imp~cts:,::, ,,;>'c;,' :,"i;,:',
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5/1712007
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Noise lrnd New Project Developme~+
For Additional Information, Contact:Stoel Rives LLpattorneys David Filippi (503)
294-9529, Greg Corbin (503) 294-9632, or Thomas Wood (503) 294-9396,
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