FAR Part 150 Noise Exposure and Land Use Compatibility
Scope of Services

Background

The impact of aircraft noise is potentially the most noticeable and most critical of environmental effects associated with the development and administration of airport operations. Noise is defined as "unwanted sound" and its effect on people is subjective and can vary from person to person. Airport noise exposure is more likely to have a behavioral effect on people, rather than causing them physical injury. Because it is difficult to predict an individual's response to noise, a community response index has been developed to evaluate aircraft noise impact potential.

The U.S. Environmental Protection Agency (EPA), the Department of Housing and Urban Development (HUD), and the Federal Aviation Administration (FAA) have adopted a methodology to evaluate measurable sound from a variety of sources to community response. This method has led to the establishment of a 24-hour average sound level, in decibels, which has been named the "day-night average sound level" (DNL).
The FAR Part 150 Noise Compatibility Program is aimed at balancing an airport's operational needs and its impact on the surrounding community. Its purpose is to reduce noise impacts on existing non-compatible land use and to prevent the introduction of new non-compatible land uses in the areas impacted by aircraft noise. The Part 150 process includes funding for the implementation of noise abatement strategies (which affect the operation of the airfield) and noise mitigation techniques (designed to mitigate the impact of aircraft noise on existing non-compatible land uses through sound insulation, acquisition, etc.). Prior to initiating a Noise Exposure and Land Use Compatibility Study, it is important to understand the regulatory requirements, and the interaction of the various agencies that may have jurisdiction over the issue.

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Regulatory Framework

Through the Federal Aviation Act of 1958, as amended, the Federal government established regulatory control, over state and local authorities, in the areas of airspace use and management, air traffic control, aviation safety, and the regulation of aircraft noise at its source. The Federal government also controls interstate and foreign air commerce.
The FAA adopted the Federal Noise Abatement Policy in 1976, which sets forth the noise abatement authority and responsibilities of the Federal government, airport proprietors, state and local governments, air carriers, air travelers, and shipping companies. This policy basically states that the FAA's role is primarily in regulating noise at its source (the aircraft), and to support local efforts to develop noise abatement plans. State and local governments and airport owners are to undertake the land use and operational actions necessary to promote compatibility (which is what our proposed scope of services is intended to accomplish).

In 1979, Congress enacted the Aviation Safety and Noise Abatement Act, which provided for "assistance to airport operators to prepare and carry out noise compatibility programs." This law established funding for noise compatibility planning and set forth the requirements by which airports could develop a noise compatibility program. As a means of implementing this act, the FAA adopted Federal Aviation Regulations (FAR) Part 150. Part 150 "prescribes the procedures, standards, and methodology governing the development, submission, and review of airport noise exposure maps and airport noise compatibility programs, including the process for evaluating and approving or disapproving these programs." Part 150 also prescribes a system for measuring airport noise impacts and presents guidelines for identifying incompatible land uses. Airports that choose to undertake a Part 150 study are eligible for federal funding for the study itself, and for the implementation of approved components of a local program.

In 1990, Congress adopted the Airport Noise and Capacity Act, which intended to balance local needs for airport noise abatement, with national needs for an effective air transportation system. To accomplish this, the act directed the FAA to establish a national program to review noise and access restrictions on aircraft operations imposed by airport owners, and it established phase-out requirements of older, and louder, Stage 2 aircraft from the nation's airline fleets. The Act provides for an exemption from the phase-out requirements for aircraft that are exclusively used outside the 48 contiguous States. However, the International Civil Aviation Organization (ICAO) has a similar schedule for conversion to quieter aircraft, which would apply to foreign air carriers.

The Environmental Protection Agency (EPA) published a set of guidelines on noise impacts, in 1974. This document, titled: Information on Levels of Environmental Noise Requisite to Protect Public Health and Welfare with an Adequate Margin of Safety is better known as the "Levels Document." The document does not establish EPA regulations or standards, but is intended to "provide state and local governments as well as the federal government and the private sector with an informational point of departure for the purpose of decision-making." Using the "day-night average sound level" (symbol: Ldn), the Levels Document states that "undue interference with activity and annoyance" will not occur if outdoor noise levels in residential areas are below Ldn 55 dB (decibel) and indoor levels are below Ldn 45.

The Federal Interagency Committee on Urban Noise (FICUN) released a report in 1980 entitled, Guidelines for Considering Noise in Land Use Planning and Control. These guidelines were to serve as a common basis upon which agency standards could be developed. According to the guidelines, all land uses are considered compatible with noise levels less than Ldn 65 dB. Higher than this level, residential and certain other land uses are judged compatible only if adequate noise level reduction is provided in the structures housing persons.

The Department of Housing and Urban Development (HUD) guidelines mirror those suggested in the FICUN report. HUD's goal for interior noise levels is Ldn 45 dB, and anything above Ldn 75 dB is considered unacceptable. These guidelines apply to new construction projects supported by HUD grants.

Finally, another committee, the Federal Interagency Committee on Aviation Noise (FICAN), released a report in 1992, which is an evaluation of the federal government's noise policies that govern the assessment of airport noise impacts. Among other issues, this document evaluates the relationship between the FAR Part 150 process and the NEPA (National Environmental Protection Act) process, including ramifications to the NEPA process if they are separate.

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Project Approach

Study Mobilization and Public Involvement

The PCR Environmental, Inc. has prepared a detailed work plan, including the establishment of a Committee and Community Involvement Program, which identifies local and federal authorities, affected entities (air carriers and shipping companies), and interested community members (residential and business communities). A timeline will be developed that incorporates the various stages of the project, public review periods, and FAA approval processes.

Our Committee/Community Involvement Program is based on a comprehensive Public Involvement Plan that identifies overall objectives, target audiences, and strategies to reach them. Committee/community meetings and public hearings are an integral part of the communication strategy at different stages of the project. They provide instant feedback and consensus building.

The FAA-approved Integrated Noise Model (INM) for Airports software is being utilized to model location specific noise impacts from the GIAA.

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Evaluation of Existing Conditions

Existing documents such as the Airport Master Plan, the NAS Agana Base Reuse Plan, the NAS Disposal Environmental Impact Statement, the I' Tano Ta Land Use Plan, and the NAS AICUZ Study have been evaluated to determine their pertinence. Existing land use and controls within the noise exposure corridor are being evaluated, as well as land use trends and impacts.

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Noise Measurements and Exposure Evaluation

Although the FAA does not require actual noise measurements to be performed as part of the development of noise exposure maps or airport noise compatibility programs, we believe that it will be to our benefit to obtain actual noise exposure data. The existing Airport Master Plan states that the environmental conditions on Guam are similar to those in Hawaii and that we have an "open environment" life style (i.e. open-windows, open-air, etc.). Consequentially, the State of Hawaii uses Ldn 60 dB to determine airport noise and residential land use compatibility. However, we feel that because of the more stringent building codes on Guam, as a result of frequent typhoons and earthquakes, and since most residences are air-conditioned, this similarity is not valid.
A legally defensible noise exposure assessment can potentially be used to indicate that certain land use can be compatible under Guam conditions. In addition, no land use has to be identified as non-compatible if the self-generated noise from that use and/or the ambient noise from other non-aircraft and non-airport uses are equal to or greater than the noise from aircraft and airport sources.
Actual noise measurements will be compared to theoretical levels as obtained with the Integrated Noise Model. Validated noise levels will be used to develop a Noise Exposure Map. Current and projected 5 and 10 year unabated aircraft noise exposure will be evaluated.

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Noise Impact and Compatibility Alternatives

The noise exposure determined during the previous task will be evaluated in light of current and future land use, the impacts the projected increase (or decrease) future operations may have, and the population anticipated to be impacted.
Noise control alternatives will be considered according to the following categories:

* Noise abatement alternatives for which the GIAA has adequate implementation authority;

* Noise abatement alternatives for which the implementation authority is vested in a local agency or governing body, and;

* Noise abatement alternatives for which the authority is vested with the FAA or other Federal agencies.

At a minimum we will analyze and report on the following alternatives:

* Acquisition of land, including air rights, easements, and development rights to ensure the use of the property for purposes which are compatible with airport operations;

* The construction of barriers and acoustical shielding, including the soundproofing of public buildings;

* The implementation of a preferential runway system;

* The use of flight procedures, including the modifications of flight tracks, to control the operation of aircraft to reduce noise exposure to individuals;

* The implementation of any restriction on the use of the airport by any type or class of aircraft;

* Other actions or combinations of actions which would have a beneficial noise control or abatement impact on the public, and;

* Other actions recommended for analysis by the FAA for the Guam International Airport.

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Noise Compatibility Plan and Compliance Program

A noise compatibility program will be developed which purpose will be:

* To promote a planning process through which the airport authority can examine and analyze the noise impact created by the operation of the airport, as well as the costs and benefits associated with various alternative noise reduction techniques. In addition, the responsible planning agencies can examine existing and forecasted areas of non-compatibility and consider actions to reduce non-compatible uses.

* To bring together through public participation, agency coordination, and overall cooperation, all interested parties with their respective authorities and obligations.

* To develop comprehensive and implemental noise reduction techniques and land use controls which, to the maximum extent feasible, will confine severe aircraft noise levels to areas included within the airport boundary, and maintain compatible land uses in the areas affected by noise between the Ldn 65 and 75 dB contours.

The FAA Administrator will approve the Noise Compatibility Plan if: a) it is found that the plan's measures to be implemented will not create an undue burden on interstate or foreign commerce and are reasonably consistent with achieving the goals of reducing existing non-compatible land uses around the airport and preventing the introduction of additional non-compatible land uses; b) the plan provides for revision if made necessary by the revision of the noise map, and; c) those aspects of the plan relating to the use of flight procedures for noise control can be implemented within the period covered by the program without reducing the level of aviation safety.

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