NOISE ELEMENT CITY OF OAKLAND GENERAL PLAN June 2005 NOISE ELEMENT CITY OF OAKLAND GENERAL PLAN City of Oakland Community and Economic Development Agency Planning and Zoning Division 250 Frank H. Ogawa Plaza, Suite 3315 Oakland, CA 94612 510 | 238.3941 www.oaklandnet.com June 2005 CREDITS MAYOR AND CITY COUNCIL PLANNING COMMISSION Jerry Brown, mayor Nicole Y. Franklin Colland Jang, vice-chair Henry Chang, vice-mayor (at-large) Clinton Killian Jane Brunner (District 1) Suzie W. Lee Nancy Nadel (District 3) Michael Lighty Jean Quan (District 4) Mark A. McClure, chair Ignacio De La Fuente (District 5) Anne E. Mudge Desley Brooks (District 6) Larry Reid (District 7) COMMUNITY AND ECONOMIC DEVELOPMENT AGENCY Cover photo: Trail in Joaquin Miller Park, by Barry Muniz; Claudia Cappio, Director of Development courtesy of the Oakland Convention & Visitors Bureau Margaret Stanzione, Strategic Planning Coordinator Niko Letunic, project manager TABLE OF CONTENTS SECTIONS FIGURES TABLE OF CONTENTS ...................................................................................... i Figure 1: Noise monitoring locations ................................ after page 14 CHAPTER 1: Introduction .......................................................................... 1 Figure 2: Roadway noise contours ..................................... after page 14 CHAPTER 2: A noise primer ...................................................................... 5 Figure 3: Railroad noise contours ...................................... after page 16 CHAPTER 3: Institutional framework ...................................................... 9 Figure 4: Existing (2004) noise contours for Oakland CHAPTER 4: Local noise environment .................................................. 13 International Airport operations ..................................................... 17 CHAPTER 5: Noise­land use compatibility ............................................ 19 Figure 5: Projected noise contours for Oakland International CHAPTER 6: Policy statements ............................................................... 23 Airport operations in Year 2010 ...................................................... 18 CHAPTER 7: Resources ............................................................................ 27 APPENDIX A: Noise-related policy statements from other elements of the Oakland general plan ............................................ 29 APPENDIX B: Tables from the technical report ................................... 33 APPENDIX C: Oakland City Council resolution adopting the noise element ................................................................................................ 45 NOISE ELEMENT ii | This page intentionally left blank Table of Contents 1 | INTRODUCTION Legislative mandate  California state law requires that each city and county adopt  California Government Code, §65300-65303.4 a general plan to guide its physical growth and development. The general plan is a and §65350-65362; §65302(f) for noise element requirements. The Governor’s Office of Planning policy document that forms the basis for a jurisdiction’s official decisions regarding the and Research issues General Plan Guidelines, a future location of housing, business, industry, transportation facilities, parks, open space document interpreting the legal requirements for and other land uses, the conservation of natural resources, and the protection from the preparation of a general plan; Appendix C of environmental hazards. General plans must address locally relevant planning issues that document contains guidelines for the under various “elements,” or subject categories, including noise. preparation of the noise element. The noise element must analyze and quantify, to the extent practicable, current and  Noise-sensitive receptors are land uses whose projected noise levels from the following noise sources: major traffic thoroughfares, purpose and function can be disrupted or jeopardized by noise. Sensitive receptors include passenger and freight railroad operations, commercial and general aviation operations, residences, schools, churches, hospitals, elderly- industrial plants, and other ground stationary noise sources contributing to the care facilities, hotels and libraries and certain community noise environment. Noise levels for these sources must be shown on noise types of passive recreational open space. contour maps prepared on the basis of noise monitoring or modeling techniques. Noise Understandably, noise is of special concern when contours establish the locational relationship between existing and projected land uses it occurs near sensitive receptors. and noise sources, and must be used to guide land use decisions to reduce noise impacts, especially on  sensitive receptors. The noise element must include implementation measures that address any existing and foreseeable noise problems, and must serve as a guideline for complying with the state’s noise insulation standards. NOISE ELEMENT In preparing Oakland’s noise element, staff Updating Oakland’s noise element Oakland’s original noise element was adopted conducted a thorough review of the noise in 1974. Since then, Oakland’s land-use patterns have changed, and its population and elements from the following jurisdictions: Alameda and Contra Costa counties, and the cities of economy have expanded. While noise cannot be eliminated, the City believes that by Alameda, Berkeley, Emeryville, Fremont, updating the noise element and the policy statements in it, it can continue to protect Hayward, Los Angeles, Oakland (the 1974 residents’ exposure to excessive noise levels. This document is meant to satisfy the element), Palo Alto, Piedmont, Pittsburg, San state’s requirements for a noise element. Francisco, San Jose, San Leandro, South San Francisco, Union City and Walnut Creek. Policy statements At the heart of every element of a general plan is a set of goals, objectives, policies actions or other statements which are often collectively referred to as policy statements. The purpose of policy statements is to provide direction for a city or county and guide the development-related actions and decisions of its officials. Policy statements attempt to reconcile and accommodate the diverse and often competing interests of a community and its members. Oakland’s noise element contains two types of policy statements: policies and actions. Policies identify specific areas in which the 2 city will direct efforts in order to attain its goals. Actions are detailed and implementable | steps that, if feasible, the city will undertake in order to carry out the policies. There is at least one action supporting every policy, and each action lists the city agency (or agencies) expected to assume the leading role in implementing that action. It is important to keep in mind that actions are meant to apply only to those geographic Introduction and programmatic areas over which the City of Oakland has legal authority, and that the actions will only be implemented if they can be accomplished successfully given financial, environmental, legal, social and technological factors. Also, because the various elements of the Oakland general plan contain policies that address numerous different goals, some policies might compete with each other. In deciding whether to approve a proposed project, the City’s Planning Commission and City Council must balance the various policies and decide whether the project is consistent (that is, in general harmony) with the general plan overall. (Incidentally, project conflicts with the general plan do not inherently result in a significant impact on the environment under the California Environmental Quality Act, since, under the act, impacts must be related to physical changes.) Relationship to other elements By law, the elements of a general plan must be consistent with each other. Appendix C of the State’s General Plan Guidelines (“Guidelines for the Preparation and Content of the Noise Element of the General Plan”) discusses the relationship between noise and other elements, most importantly the land use and circulation elements (which in Oakland are aggregated as the land use CITY OF OAKLAND GENERAL PLAN and transportation element, or LUTE). Appendix C mentions that “a key objective of the noise element is to provide noise-exposure information for use in the land use element. When integrated with the noise element, the land use element will show acceptable land uses in relation to existing and projected noise contours.” Regarding the circulation element, Appendix C states that “the circulation system must be correlated with the land use element and is one of the major sources of noise. Noise exposure will thus be a decisive factor in the location and design of new transportation facilities and the possible mitigation of noise from existing facilities in relation to existing and planned land uses.” Appendix C goes on to state that “the local planning agency may wish to review the circulation and land use elements simultaneously to assess their compatibility with the noise element.” As recommended by Appendix C of the General Plan Guidelines, Oakland’s noise element provides noise-exposure information—in the form of noise contours ( CHAPTER 4) and 3 a land use-noise compatibility matrix ( CHAPTER 5)—to inform land-use decisions. (The | Introduction matrix illustrates the degree of acceptability of exposing specified land uses, including sensitive land uses, to a range of ambient-noise levels, as indicated on the