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7-1 State Law Requires a Noise Element As Part of All City And 7 NOISE ELEMENT State law requires a Noise Element as part of all city and county General Plans. The Noise Element provides a systematic approach to measuring and modeling noise, establishing noise standards, controlling major noise sources, and planning for the regulation of noise. This Noise Element provides back- ground information about evaluating the effects of noise on communities and the current regulatory framework. It also presents baseline information for the existing noise environment in the Eden Area and Alameda County along with goals, policies and actions for controlling noise in existing and future development. A. Background Information This section provides a brief discussion of acoustical fundamentals to assist the reader in understanding the current noise environment of the Eden Area. Current noise policies regulating development in the area are discussed. A description of the existing noise environment, based on the results of a noise monitoring survey conducted by Illingworth & Rodkin, Inc., concludes the section. 1. Understanding Noise This section explains how noise is measured and gives an overview of the po- tential effects from excessive noise. An explanation of how noise affects vari- ous land uses is also provided. a. Measurement of Noise Noise may be defined as unwanted sound. Noise is usually objectionable be- cause it is disturbing or annoying. The objectionable nature of sound could be caused by its pitch or its loudness. Pitch is the height or depth of a tone or sound, depending on the relative rapidity (frequency) of the vibrations by which it is produced. Higher pitched signals sound louder to humans than sounds with a lower pitch. Loudness is intensity of sound waves combined with the reception characteristics of the ear. Intensity may be compared with 7-1 COUNTY OF ALAMEDA EDEN AREA GENERAL PLAN NOISE ELEMENT the height of an ocean wave in that it is a measure of the amplitude of the sound wave. In addition to the concepts of pitch and loudness, there are several noise measurement scales which are used to gauge noise in a particular location. A decibel (dB) is a unit of measurement which indicates the relative amplitude of a sound. The zero on the decibel scale is based on the lowest sound level that the healthy, unimpaired human ear can detect. Sound levels in decibels are calculated on a logarithmic basis. An increase of 10 decibels represents a ten-fold increase in acoustic energy, while 20 decibels is 100 times more in- tense, 30 decibels is 1,000 times more intense, etc. There is a relationship be- tween the subjective noisiness or loudness of a sound and its intensity. Each 10 decibel increase in sound level is perceived as approximately a doubling of loudness over a fairly wide range of intensities. Technical terms are defined in Table 7-1. There are several methods of characterizing sound. The most common in California is the A-weighted sound level or dBA. This scale gives greater weight to the frequencies of sound to which the human ear is most sensitive. Representative outdoor and indoor noise levels in units of dBA are shown in Table 7-2. Because sound levels can vary markedly over a short period of time, a method for describing either the average character of the sound or the statistical behavior of the variations must be utilized. Most commonly, envi- ronmental sounds are described in terms of an average level that has the same acoustical energy as the sum of all the time-varying events. This energy- equivalent sound/noise descriptor is called Equivalent Noise Level (Leq). The most common averaging period is hourly, but Leq can describe any series of noise events of arbitrary duration. The scientific instrument used to measure noise is the sound level meter. Sound level meters can accurately measure environmental noise levels to within about ± 1 dBA. Various computer models are used to predict envi- ronmental noise levels from sources such as roadways and airports. 7-2 COUNTY OF ALAMEDA EDEN AREA GENERAL PLAN NOISE ELEMENT TABLE 7-1 DEFINITIONS OF ACOUSTICAL TERMS Term Definitions A unit describing the amplitude of sound, equal to 20 times the loga- rithm to the base 10 of the ratio of the pressure of the sound measured Decibel, dB to the reference pressure, which is 20 micropascals (20 micronewtons per square meter). The number of complete pressure fluctuations per second above and Frequency, Hz below atmospheric pressure. The sound pressure level in decibels as measured on a sound level meter using the A-weighting filter network. The A-weighting filter A-Weighted de-emphasizes the very low and very high frequency components of Sound Level, the sound in a manner similar to the frequency response of the human dBA ear and correlates well with subjective reactions to noise. All sound levels in this report are A-weighted, unless reported otherwise. L01, L10, L50, The A-weighted noise levels that are exceeded 1%, 10% and 90% of L90 the time during the measurement period. Equivalent Noise Level, The average A-weighted noise level during the measurement period. Leq Community The average A-weighted noise level during a 24-hour day, obtained Noise Equiva- after addition of 5 decibels in the evening from 7:00 pm to 10:00 pm lent Level, and after addition of 10 decibels to sound levels measured in the night CNEL between 10:00 pm and 7:00 am. Day/Night The average A-weighted noise level during a 24-hour day, obtained Noise Level, after addition of 10 decibels to levels measured in the night between Ldn 10:00 pm and 7:00 am. The maximum and minimum A-weighted noise level during the Lmax, Lmin measurement period. Ambient Noise The composite of noise from all sources near and far. The normal or Level existing level of environmental noise at a given location. That noise which intrudes over and above the existing ambient noise at a given location. The relative intrusiveness of a sound depends Intrusive upon its amplitude, duration, frequency, and time of occurrence and tonal or informational content as well as the prevailing ambient noise level. 7-3 COUNTY OF ALAMEDA EDEN AREA GENERAL PLAN NOISE ELEMENT TABLE 7-2 TYPICAL SOUND LEVELS Noise Generators A-Weighted (Distance from Sound Level Noise Subjective Noise Source) in Decibels Environments Impression 140 Civil defense siren 130 (100 feet) Jet take-off (200 feet) 120 Pain threshold Rock music 110 concert Diesel pile driver 100 Very loud (100 feet) Boiler room Freight cars (50 feet) 90 Printing press plant Pneumatic drill (50 feet) In kitchen with 80 Moderately Freeway (100 feet) garbage disposal loud Vacuum cleaner (10 feet) 70 running Data processing 60 center Light traffic (100 feet) Large transformer 50 Department store (200 feet) Private business 40 Quiet office Soft whisper (5 feet) 30 Quiet bedroom 20 Recording studio Threshold of 10 hearing 7-4 COUNTY OF ALAMEDA EDEN AREA GENERAL PLAN NOISE ELEMENT The accuracy of the predicted models depends upon the distance the receptor is from the noise source. Close to the noise source, the models are accurate to within about ±1 to 2 dBA. Since the sensitivity to noise increases during the evening and at night -- be- cause excessive noise interferes with the ability to sleep -- 24-hour descriptors have been developed that incorporate artificial noise penalties added to quiet- time noise events. The Community Noise Equivalent Level, CNEL, is a measure of the cumulative noise exposure in a community, with a 5 dB pen- alty added to evening (7:00 p.m. – 10:00 p.m.) and a 10 dB addition to noctur- nal (10:00 p.m. – 7:00 a.m.) noise levels. The Day/Night Average Sound Level, Ldn, is essentially the same as CNEL, with the exception that the eve- ning time period is dropped and all occurrences during this three-hour period are grouped into the daytime period. b. Effects of Noise There are numerous short and long term effects of noise on communities. These include hearing loss, sleep and speech interference and annoyance. i. Hearing Loss While physical damage to the ear from an intense noise impulse is rare, a deg- radation of auditory acuity can occur even within a community noise envi- ronment. Hearing loss occurs mainly due to chronic exposure to excessive noise, but may be due to a single event such as an explosion. Natural hearing loss associated with aging may also be accelerated from chronic exposure to loud noise. The Occupational Safety and Health Administration (OSHA) has produced a noise exposure standard, which is set at the noise threshold where hearing loss may occur from long-term exposures. The maximum allowable level is 90 dBA averaged over eight hours. If the noise is above 90 dBA, the allowable exposure time is correspondingly shorter. 7-5 COUNTY OF ALAMEDA EDEN AREA GENERAL PLAN NOISE ELEMENT ii. Sleep and Speech Interference The threshold for speech interference indoors is approximately 45 dBA if the noise is steady or above 55 dBA if the noise fluctuates. Outdoors, the thresh- old is approximately 15 dBA higher. Steady noise of sufficient intensity (above 35 dBA) and fluctuating noise levels above approximately 45 dBA have been shown to affect sleep. Interior residential standards for multi-family dwellings are set by the State of California at 45 dBA Ldn. These standards are designed for sleep and speech protection and most jurisdictions apply the same criterion for all residential uses. Typical structural attenuation is 12 to 17 dBA with open windows. With closed windows in good condition, the noise attenuation factor is around 20 dBA for an older structure and 25 dBA for newer homes.
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