4.5 Noise Environmental Setting. Noise Background. Noise Exposure and Community Noise

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1 This section evaluates potential impacts on ambient noise levels from construction and operation of the proposed project. The analysis presented below is based on ambient noise measurements taken near the proposed project site and local noise ordinances and regulations set by the City of Oakland. This section identifies any potentially significant noise impacts and, if necessary, appropriate mitigation measures or standard conditions of approval. Pursuant to the City s amendment to the Oakland General Plan (City of Oakland, 2005), as well as Section 15358(b) of the CEQA Guidelines, mitigation measures are proposed only to address physical impacts that may result from the project Environmental Setting Noise Background Sound is mechanical energy transmitted by pressure waves through a medium such as air. Noise can be defined as unwanted sound. Sound is characterized by various parameters that include the rate of oscillation of sound waves (frequency), the speed of propagation, and the pressure level or energy content (amplitude). In particular, the sound pressure level has become the most common descriptor used to characterize the loudness of an ambient sound level. Sound pressure level is measured in decibels (db), with zero db corresponding roughly to the threshold of human hearing, and 120 to 140 db corresponding to the threshold of pain. Sound pressure fluctuations can be measured in units of Hertz (Hz), which correspond to the frequency of a particular sound. Typically, sound does not consist of a single frequency, but rather a broad band of frequencies varying in levels of magnitude (sound power). When all the audible frequencies of a sound are measured, a sound spectrum is plotted consisting of a range of frequency spanning 20 to 20,000 Hz. The sound pressure level, therefore, constitutes the additive force exerted by a sound corresponding to the sound frequency/sound power level spectrum. The typical human ear is not equally sensitive to all frequencies of the audible sound spectrum. As a consequence, when assessing potential noise impacts, sound is measured using an electronic filter that de-emphasizes the frequencies below 1,000 Hz and above 5,000 Hz in a manner corresponding to the human ear s decreased sensitivity to low and extremely high frequencies instead of the frequency mid-range. This method of frequency weighting is referred to as A-weighting and is expressed in units of A-weighted decibels (dba). Noise Exposure and Community Noise An individual s noise exposure is a measure of the noise experienced by the individual over a period of time. A noise level is a measure of noise at a given instant in time. However, noise levels rarely persist consistently over a long period of time. In fact, community noise varies continuously with time with respect to the contributing sound sources of the community noise environment. Community noise is primarily the product of many distant noise sources, which constitute a relatively stable background noise exposure, with the individual contributors ABSMC Summit Campus Seismic Upgrade and ESA /

2 unidentifiable. Background noise levels change throughout a typical day, but do so gradually, corresponding with the addition and subtraction of distant noise sources and atmospheric conditions. The addition of short duration single event noise sources (e.g., aircraft flyovers, motor vehicles, sirens) makes community noise constantly variable throughout a day. These successive additions of sound to the community noise environment vary the community noise level from instant to instant requiring the measurement of noise exposure over a period of time to legitimately characterize a community noise environment and evaluate cumulative noise impacts. This time-varying characteristic of environmental noise is described using statistical noise descriptors. The noise descriptors used in this analysis are summarized below: L eq : The equivalent sound level is used to describe noise over a specified period of time, in terms of a single numerical value. The L eq is the constant sound level which would contain the same acoustic energy as the varying sound level, during the same time period (i.e., the average noise exposure level for the given time period). L max : The instantaneous maximum noise level measured during the measurement period of interest. L dn : The energy average of the A-weighted sound levels occurring during a 24-hour period, and which accounts for the greater sensitivity of most people to nighttime noise by weighting noise levels at night ( penalizing nighttime noises). Noise between 10:00 PM and 7:00 AM is weighted (penalized) by adding 10 dba to take into account the greater annoyance of nighttime noises. Effects of Noise on People The effects of noise on people can be placed into three categories: subjective effects of annoyance, nuisance, dissatisfaction; interference with activities such as speech, sleep, learning; and physiological effects such as hearing loss or sudden startling. Environmental noise typically produces effects in the first two categories. Workers at industrial plants often experience noise in the last category. There is no completely satisfactory way to measure the subjective effects of noise, or the corresponding reactions of annoyance and dissatisfaction. A wide variation exists in the individual thresholds of annoyance, and different tolerances to noise tend to develop based on an individual s past experiences with noise. Thus, an important way of predicting a human reaction to a new noise environment is the way the new noise compares to the existing noise levels that one has adapted, which is referred to as the ambient noise level. In general, the more a new noise exceeds the previously existing ambient noise level, the less acceptable the new noise will be judged by those hearing it. With regard to increases in A-weighted noise level, the following relationships occur: Except in carefully controlled laboratory experiments, a change of 1 dba cannot be perceived; ABSMC Summit Campus Seismic Upgrade and ESA /

3 Outside of the laboratory, a 3-dBA change is considered a just-perceivable difference when the change in noise is perceived but does not cause a human response; A change in level of at least 5 dba is required before any noticeable change in human response would be expected; and A 10-dBA change is subjectively heard as approximately a doubling in loudness, and can cause an adverse response. These relationships occur in part because of the logarithmic nature of sound and the decibel system. A ruler is a linear scale: it has marks on it corresponding to equal quantities of distance. One way of expressing this is to say that the ratio of successive intervals is equal to one. A logarithmic scale is different in that the ratio of successive intervals is not equal to one. Each interval on a logarithmic scale is some common factor larger than the previous interval. A typical ratio is 10, so that the marks on the scale read: 1, 10, 100, 1,000, 10,000, etc., doubling the variable plotted on the x-axis. The human ear perceives sound in a non-linear fashion, hence the decibel scale was developed. Because the decibel scale is based on logarithms, two noise sources do not combine in a simple additive fashion, rather they combine logarithmically. For example, if two identical noise sources produce noise levels of 50 dba, the combined sound level would be 53 dba, not 100 dba. Noise Attenuation Point sources of noise, including stationary mobile sources such as idling vehicles or onsite construction equipment, attenuate (lessen) at a rate of 6.0 to 7.5 dba per doubling of distance from the source, depending upon the type of ground surface. Widely distributed noises such as a large industrial facility spread over many acres or a street with moving vehicles (a line source) would typically attenuate at a lower rate of approximately 3.0 to 4.5 dba per doubling distance from the source also dependent upon the type of ground surface (California Department of Transportation [Caltrans], 1998). Vibration Vibration is an oscillatory motion through a solid medium in which the motion s amplitude can be described in terms of displacement, velocity, or acceleration. There are several different methods that are used to quantify vibration. The peak particle velocity (PPV) is defined as the maximum instantaneous peak of the vibration signal. The PPV is most frequently used to describe vibration impacts to buildings. The root mean square (RMS) amplitude is most frequently used to describe the affect of vibration on the human body. The RMS amplitude is defined as the average of the squared amplitude of the signal. Decibel notation (VdB) is commonly used to measure RMS. The decibel notation acts to compress the range of numbers required to describe vibration (Federal Transit Administration [FTA], 2006). Typically, groundborne vibration generated by man-made activities attenuates rapidly with distance from the source of the vibration. ABSMC Summit Campus Seismic Upgrade and ESA /

4 Existing Ambient Noise Environment The main contributor to the noise environment surrounding the proposed project site is roadway noise along Telegraph Avenue and Broadway. According to the City of Oakland General Plan Noise Element, existing L dn levels at 75 feet from the edge of Telegraph Avenue and Broadway are approximately 62 dba and 67 dba, respectively. The site is also located within the 70 L dn noise contour for I-580 (City of Oakland, 2005). Six 10-minute average noise measurements were taken in the vicinity of the proposed project site to determine typical short-term noise levels in the study area. Table displays the L eq and L max levels for the 10-minute measurements. As shown, ambient L eq noise levels in the study area were between 58.0 and 71.2 dba. The predominant noise source at most of the noise monitoring locations was vehicle traffic on nearby roadways. An ambulance siren approximately 50 feet from the noise meter produced an L max noise level of 92.9 dba; however, this noise level was short lived. TABLE MINUTE AVERAGE AMBIENT NOISE LEVELS IN THE STUDY AREA # Measurement Location Time L eq L max Description of Noise Sources 1 Telegraph Avenue and 34th Street (25 feet from Telegraph Avenue) 9:55 AM Vehicle traffic; cross walk signal; buses; hospital shuttles; trucks; freeway noise; L max was caused by an ambulance siren approximately 50 feet from noise meter 2 34th Street and Elm Street 10:14 AM Vehicle traffic; tow truck back up beeper about 200 feet away; hospital shuttles 3 Hawthorne Avenue and Elm Street (near private residences on Elm Street) 10:28 AM Vehicle traffic; people talking; car doors slamming; helicopter flying overhead; some trucks and hospital shuttles 4 30th Street and Broadway 11:05 AM Vehicle traffic; cross walk signal; trucks; lawn mower approximately 300 feet to the north 5 30th Street (adjacent to th Street residential building) 6 Telegraph Avenue and 30th Street (50 feet from Telegraph Avenue) 11:19 AM Vehicle traffic; trucks; people talking; helicopter flying overhead 11:41 AM Vehicle traffic; trucks; shuttles; people talking NOTE: Short-term (10-minute) measurements were collected on June 16, Sensitive Receptors Human response to noise varies considerably from one individual to another. Effects of noise at various levels can include interference with sleep, concentration, and communication, and can cause physiological and psychological stress and hearing loss. Given these effects, some land uses are considered more sensitive to ambient noise levels than others. In general, residences, schools, hotels, hospitals, and nursing homes are considered to be the most sensitive to noise. Places such as churches, libraries, and cemeteries, where people tend to pray, study, and/or contemplate are also sensitive to noise. Commercial and industrial uses are considered the least noise-sensitive. ABSMC Summit Campus Seismic Upgrade and ESA /

5 There are a number of single family homes located along 34th Street to the north of the site. Telegraph Avenue to the west of the site has a mix of urban residential uses and there are a number of single family residences located along Webster Street to the east. There is also a residential building located south of the Providence Pavilion South and Providence MOB at th Street. Churches located in the vicinity of the proposed project site include Abyssinian Missionary Baptist, Parks Chapel A.M.E. Church, Phillipian Church, and St. Augustine s Episcopal Church. The nearest educational facility is the Street Alternative School, located approximately 1,250 feet south of 30th Street. In addition to these receptors, the existing site itself has a number of sensitive uses including educational and hospital facilities with overnight beds. Figure identifies the location of sensitive receptors nearest to the project site Regulatory Setting Federal, State, and local agencies regulate different aspects of environmental noise. Federal and State agencies generally set noise standards for mobile sources such as aircraft and motor vehicles, while regulation of stationary sources is left to local agencies. Local regulation of noise involves implementation of general plan policies and noise ordinance standards. Local general plans identify general principles intended to guide and influence development plans; local noise ordinances establish standards and procedures for addressing specific noise sources and activities. Local Plans, Policies and Regulations City of Oakland General Plan The Noise Element of the City of Oakland General Plan contains guidelines for determining the compatibility of various land uses with different noise environments (City of Oakland, 2005). The Noise Element recognizes that some land uses are more sensitive to ambient noise levels than others, due to the amount of noise exposure (in terms of both exposure duration and insulation from noise) and the types of activities typically involved. The City uses State noise guidelines for judging the compatibility between various land uses and their noise environments (City of Oakland, 2005). For institutional uses such as hospitals, nursing homes, schools, libraries, and churches, the guidelines indicate that a noise environment of 60 dba L dn or less is normally acceptable, while a noise environment between 60 and 70 dba L dn is considered conditionally acceptable and 70 to 80 dba L dn is normally unacceptable. Noise environments of greater than 80 dba L dn are considered clearly unacceptable for such uses. For commercial, business, and office uses, which are generally less noise-sensitive, a noise environment of 65 dba L dn or less is considered normally acceptable, while a noise environment between 65 and 75 dba L dn is considered conditionally acceptable. In this context, normally acceptable is defined as satisfactory for the specific land use, assuming that normal conventional construction is used in buildings. Conditionally acceptable means that new construction or development should be undertaken only after a detailed analysis of the noise reduction requirements is made and needed noise insulation features are included in the design. Conventionally constructed buildings, with closed windows will normally suffice. Normally unacceptable means that new construction or development should generally be discouraged. If new construction or development does proceed, a detailed analysis of the noise reduction requirements must be made and needed noise insulation features must be included in the design. ABSMC Summit Campus Seismic Upgrade and ESA /

6 Abyssinian Missionary Baptist Parks Chapel AME Church th St Phillipean Church Telegraph Ave Hawthorne Ave th St Webster St Broadway St. Augustine s Episcopal Church Street Alternative Academy Residential Uses Other Noise Sensitive Uses Project Site N SOURCE: GlobeXplorer; ESA, 2009 Alta Bates Summit Medical Center (ABSMC) Summit Campus Seismic Upgrade and Master Plan EIR Figure Noise Sensitive Receptors in the Project Vicinity

7 The Noise Element also identifies the following maximum interior noise levels as generally acceptable for various common land uses: 45 db: residential, hotels, motels, transient lodging, institutional (churches, hospitals, classrooms, libraries), movie theaters; 50 db: professional offices, research and development, auditoria, meeting halls; 55 db: retail, banks, restaurants, sports clubs; and 65 db: manufacturing, warehousing. Specific noise level standards are set forth in Chapter of the City of Oakland Municipal Code. Table presents the maximum allowable receiving noise level standards as outlined in this chapter of the Municipal Code (City of Oakland, 2009). TABLE MAXIMUM ALLOWABLE RECEIVING NOISE LEVEL STANDARDS Receiving Land Use Cumulative number of minutes in any one-hour time period Daytime (7 AM to 10 PM) Noise Level (dba) Nighttime (10 PM to 7 AM) Residential and Civic Commercial Manufacturing, Industrial, Agricultural, and Extractive a a a a a a a a a a a Noise level standards for Commercial and Industrial Uses are the same for both daytime and nighttime hours. SOURCE: City of Oakland, Temporary construction and demolition activities are not subject to the noise restrictions set forth in Table However, per Municipal Code Chapter , these activities are required to abide by the noise level standards shown in Table Short-term construction activities are those that last less than ten days while long-term construction activities are those that last ten days or more. Nighttime noise levels produced by any construction and demolition activity between weekday hours of seven PM and seven AM or between eight PM and nine AM on weekends and federal holidays shall not exceed the applicable noise level standards outlined in Table above (City of Oakland, 2009). ABSMC Summit Campus Seismic Upgrade and ESA /

8 TABLE MAXIMUM ALLOWABLE RECEIVING NOISE LEVEL STANDARDS FROM CONSTRUCTION ACTIVITIES Noise Level (dba) Type of Activity Receiving Land Use Weekdays (7 AM to 7 PM) Weekends (9 AM to 8 PM) Construction (Short-Term) Construction (Long-Term) Residential Commercial, Industrial Residential Commercial, Industrial SOURCE: City of Oakland, City of Oakland Standard Conditions of Approval and Uniformly Applied Development Standards Imposed as Standard Conditions of Approval The City s Standard Conditions of Approval relevant to noise are listed below for reference. If the proposed project is approved by the City, then all applicable Standard Conditions of Approval would be adopted as conditions of approval and required of the project to help ensure less-thansignificant impacts to noise. The Standard Conditions of Approval are incorporated and required as part of the project, so they are not listed as mitigation measures. Standard Conditions of Approval applicable to potential noise impacts due to the project include: NOI-1: Days/Hours of Construction Operation Ongoing throughout demolition, grading, and/or construction. The project applicant shall require construction contractors to limit standard construction activities as follows: a) Construction activities are limited to between 7:00 AM and 7:00 PM Monday through Friday, except that pile driving and/or other extreme noise generating activities greater than 90 dba shall be limited to between 8:00 AM and 4:00 AM Monday through Friday. b) Any construction activity proposed to occur outside of the standard hours of 7:00 AM to 7:00 PM Monday through Friday for special activities (such as concrete pouring which may require more continuous amounts of time) shall be evaluated on a case by case basis, with criteria including the proximity of residential uses and a consideration of resident s preferences for whether the activity is acceptable if the overall duration of construction is shortened and such construction activities shall only be allowed with the prior written authorization of the Building Services Division. c) Construction activity shall not occur on Saturdays, with the following possible exceptions: i. Prior to the building being enclosed, requests for Saturday construction for special activities (such as concrete pouring which may require more continuous amounts of time), shall be evaluated on a case by case basis, with criteria including the proximity of residential uses and a consideration of resident s preferences for whether the activity is acceptable if the overall duration of ABSMC Summit Campus Seismic Upgrade and ESA /

9 ii. construction is shortened. Such construction activities shall only be allowed on Saturdays with the prior written authorization of the Building Services Division. After the building is enclosed, requests for Saturday construction activities shall only be allowed on Saturdays with the prior written authorization of the Building Services Division, and only then within the interior of the building with the doors and windows closed. d) No extreme noise generating activities (greater than 90 dba) shall be allowed on Saturdays, with no exceptions. e) No construction activity shall take place on Sundays or Federal holidays. f) Construction activities include but are not limited to: truck idling, moving equipment (including trucks, elevators, etc) or materials, deliveries, and construction meetings held on-site in a non-enclosed area. g) Applicant shall use temporary power poles instead of generators where feasible. NOI-2: Noise Control Ongoing throughout demolition, grading, and/or construction. To reduce noise impacts due to construction, the project applicant shall require construction contractors to implement a site-specific noise reduction program, subject to the Planning and Zoning Division and the Building Services Division review and approval, which includes the following measures: a) Equipment and trucks used for project construction shall utilize the best available noise control techniques (e.g., improved mufflers, equipment redesign, use of intake silencers, ducts, engine enclosures and acoustically-attenuating shields or shrouds, wherever feasible). b) Impact tools (e.g., jack hammers, pavement breakers, and rock drills) used for project construction shall be hydraulically or electrically powered wherever possible to avoid noise associated with compressed air exhaust from pneumatically powered tools. However, where use of pneumatic tools is unavoidable, an exhaust muffler on the compressed air exhaust shall be used; this muffler can lower noise levels from the exhaust by up to about 10 dba. External jackets on the tools themselves shall be used where feasible, and this could achieve a reduction of 5 dba. Quieter procedures shall be used, such as drills rather than impact equipment, whenever feasible. c) Stationary noise sources shall be located as far from adjacent receptors as possible, and they shall be muffled and enclosed within temporary sheds, incorporate insulation barriers, or other measures to the extent feasible. d) If feasible, the noisiest phases of construction shall be limited to less than 10 days at a time. NOI-3: Noise Complaint Procedures Ongoing throughout demolition, grading, and/or construction. Prior to the issuance of each building permit, along with the submission of construction documents, the project applicant shall submit to the Building Services Division a list of measures to respond to and track complaints pertaining to construction noise. These measures shall include: ABSMC Summit Campus Seismic Upgrade and ESA /

10 a) A procedure and phone numbers for notifying the Building Services Division staff and Oakland Police Department; (during regular construction hours and off-hours); b) A sign posted on-site pertaining with permitted construction days and hours and complaint procedures and who to notify in the event of a problem. The sign shall also include a listing of both the City and construction contractor s telephone numbers (during regular construction hours and off-hours); c) The designation of an on-site construction complaint and enforcement manager for the project; d) Notification of neighbors and occupants within 300 feet of the project construction area at least 30 days in advance of extreme noise generating activities about the estimated duration of the activity; and e) A preconstruction meeting shall be held with the job inspectors and the general contractor/on-site project manager to confirm that noise measures and practices (including construction hours, neighborhood notification, posted signs, etc.) are completed. NOI-4: Interior Noise Prior to issuance of a building permit and Certificate of Occupancy. If necessary to comply with the interior noise requirements of the City of Oakland s General Plan Noise Element and achieve an acceptable interior noise level, noise reduction in the form of sound-rated assemblies (i.e., windows, exterior doors, and walls), and/or other appropriate features/measures, shall be incorporated into project building design, based upon recommendations of a qualified acoustical engineer and submitted to the Building Services Division for review and approval prior to issuance of building permit. Final recommendations for sound-rated assemblies, and/or other appropriate features/measures, will depend on the specific building designs and layout of buildings on the site and shall be determined during the design phases. Written confirmation by the acoustical consultant, HVAC or HERS specialist, shall be submitted for City review and approval, prior to Certificate of Occupancy (or equivalent) that: a) Quality control was exercised during construction to ensure all air-gaps and penetrations of the building shell are controlled and sealed; and b) Demonstrates compliance with interior noise standards based upon performance testing of a sample unit. (a) Prohibition of Z-duct construction. NOI-5: Pile Driving and Other Extreme Noise Generators Ongoing throughout demolition, grading, and/or construction. To further reduce potential pier drilling, pile driving and/or other extreme noise generating construction impacts greater than 90dBA, a set of site-specific noise attenuation measures shall be completed under the supervision of a qualified acoustical consultant. Prior to commencing construction, a plan for such measures shall be submitted for review and approval by the Planning and Zoning Division and the Building Services Division to ensure that maximum feasible noise attenuation will be achieved. This plan shall be based on the final design of the project. A third-party peer review, paid for by the project applicant, may be required to assist the City in evaluating ABSMC Summit Campus Seismic Upgrade and ESA /

11 the feasibility and effectiveness of the noise reduction plan submitted by the project applicant. A special inspection deposit is required to ensure compliance with the noise reduction plan. The amount of the deposit shall be determined by the Building Official, and the deposit shall be submitted by the project applicant concurrent with submittal of the noise reduction plan. The noise reduction plan shall include, but not be limited to, an evaluation of the following measures. These attenuation measures shall include as many of the following control strategies as feasible: a) Erect temporary plywood noise barriers around the construction site, particularly along on sites adjacent to residential buildings; b) Implement quiet pile driving technology (such as pre-drilling of piles, the use of more than one pile driver to shorten the total pile driving duration), where feasible, in consideration of geotechnical and structural requirements and conditions; c) Utilize noise control blankets on the building structure as the building is erected to reduce noise emission from the site; d) Evaluate the feasibility of noise control at the receivers by temporarily improving the noise reduction capability of adjacent buildings by the use of sound blankets for example; and e) Monitor the effectiveness of noise attenuation measures by taking noise measurements. NOI-6: Vibrations Adjacent Historic Structures Prior to issuance of a demolition, grading or building permit. The project applicant shall retain a structural engineer or other appropriate professional to determine threshold levels of vibration and cracking that could damage the Parks Chapel A.M.E. Church (Historic Structure) and design means and methods of construction that shall be utilized to not exceed the thresholds Impacts and Mitigation Measures Significance Criteria The project would have a significant impact on the environment if it would: 1. Expose people to or generate noise levels in excess of standards established in the Oakland General Plan or applicable standards of other agencies (e.g., OSHA); 2. Violate the City of Oakland Noise Ordinance (Oakland Planning Code Section ) regarding operational noise; 3. Violate the City of Oakland Noise Ordinance (Oakland Planning Code Section ) regarding construction noise, except if an acoustical analysis is performed; 4. Violate the City of Oakland Noise Ordinance (Oakland Municipal Code Section ) regarding nuisance of persistent construction-related noise; ABSMC Summit Campus Seismic Upgrade and ESA /

12 5. Create a vibration not associated with motor vehicles, trains, or temporary construction or demolition work which is perceptible without instruments by the average person at or beyond any lot line containing the vibration-causing activity, except vibration-causing activities located in the M-40 zone or in the M-30 zone more than 400 feet from any legally occupied residential property (Oakland Planning Code Section ); 6. Expose persons to or generate rail-related groundborne vibration in excess of standards established by the Federal Transit Administration (FTA); 7. Generate interior L dn or CNEL greater than 45 dba for multi-family dwellings, hotels, motels, dormitories and long-term care facilities (and may be extended by local legislative action to include single family dwellings) per California Noise Insulation Standards (CCR Part 2, Title 24); 8. Result in a 5 dba permanent increase in ambient noise levels in the project vicinity above levels existing without the project; 9. Conflict with land use compatibility guidelines for all specified land uses for determination of acceptability of noise after incorporation of all applicable Standard Conditions of Approval; 10. Be located within an airport land use plan and would expose people residing or working in the project area to excessive noise levels; or 11. Be located within the vicinity of a private airstrip, and would expose people residing or working in the project area to excessive noise levels. In general, projects within the City of Oakland are considered to have a significant noise impact if they would violate the City of Oakland Noise Ordinance or result in a five dba permanent increase in ambient noise levels in the project vicinity above levels existing without the project. Furthermore, projects that would create vibration not associated with motor vehicles, trains, or temporary construction or demolition work, which is perceptible without instruments by the average person at or beyond any lot line containing the vibration-causing activity, would be considered significant. Since the proposed project would not include any vibration-causing activity aside from that associated with construction and motor vehicles, it can be assumed that no impact would occur with regard to criterion 6). The proposed project is not located within the vicinity of a private airstrip nor is it located within the land use plan area for Oakland Airport or any other airport. Therefore, impacts associated with criteria 10) and 11) are not discussed further in this EIR. Impacts and Mitigation Measures Impact NOI-1: Construction activities associated with the proposed project would temporarily generate noise levels that could conflict with standards established in the City noise ordinance. (Less than Significant) Phase 1 of the proposed project would include construction of a new 11-story new Patient Care Pavilion hospital tower and a new seven-story parking garage, as well as demolition of six buildings. The future phases would include construction of a new fitness center on top of the ABSMC Summit Campus Seismic Upgrade and ESA /

13 Phase 1 parking garage, a new five-story MOB, and a new four-story building for use by Samuel Merritt University. A number of existing buildings would be demolished in future phases to accommodate the new MOB. Construction of the proposed project would result in temporary increases to ambient noise levels associated with operation of heavy duty construction equipment. Pile driving has not been proposed due to noise and vibration issues; however, concrete drilled piles would be required for construction of the new Patient Care Pavilion tower and the new parking garage. Table lists heavy duty construction equipment that would likely be required as well as typical noise levels for each piece of equipment measured at 50 feet from the source. As shown, equipment noise levels in the vicinity of the construction sites would range from 80 dba up to 88 dba. TABLE TYPICAL MAXIMUM NOISE LEVELS FROM CONSTRUCTION EQUIPMENT Construction Equipment Noise Level (dba, L eq at 50 feet ) Air Compressor 81 Backhoe 80 Compactor 82 Concrete Mixer 85 Crane, Mobile 83 Dozer 85 Grader 85 Jack Hammer 88 Paver 89 Roller 74 Scraper 89 Truck 88 SOURCE: FTA, 2006, Layne Christiansen As discussed previously, noise from construction equipment generally attenuates (decreases) at a rate of 6.0 to 7.5 dba per doubling of distance. Construction activities associated with the Project could take place as close as 100 feet from the nearest existing sensitive receptors which include existing hospital facilities (see Figure for the location of nearby receptors). Based on the more conservative attenuation rate of 6 dba per doubling distance, this would result in noise levels of approximately 82 dba at the nearest receptors during drilling activities. These noise levels would exceed the City of Oakland maximum allowable receiving noise level standards for short-term construction activities. In addition to pile drilling activities, general construction activities would exceed long-term construction noise level standards at the nearest sensitive receptors. For example, construction noise levels at the nearest sensitive receptors could be as high as 74 dba from use of backhoes and 83 dba during paving activities. Use of such equipment would last longer than 10 ten days; therefore, it can be assumed that impacts would be significant at the closest sensitive receptors. ABSMC Summit Campus Seismic Upgrade and ESA /

14 Noise from Demolition Phase Noise from proposed demolition activities would commence in The Bechtel Hall Plaza is scheduled for a one to two month demolition period. Bechtel Hall is scheduled for an approximate demolition period of approximately four months. A timeline has not yet been established for proposed demolition of other buildings. Demolition activities would involve operation of backhoes and/or bulldozers, jackhammers, loaders and trucks. Noise levels at nearest receptors, generally assumed to be adjacent hospital facilities at 100 feet, would be 74 dba to 82 dba intermittently over the demolition period. Noise from Drilling Activities for Piles Duration of noise from drilling activities for the Patient Care Pavilion depends on the duration of construction which cannot be precisely estimated at this time. Construction of the entirety of the substructure would likely occur over a 15 to 24 month period. Piles may require up to 60 days of drilling and installation for the Patient Care Pavilion for which a total of 150 piles are estimated as needed. For the parking garage, up to approximately 25 to 35 days may be required to install an estimated total of 1,300 to 1,500 piers. Due to concerns about noise and vibration, the proposed foundation system for the parking garage consists of shallow foundations supported on improved soil, rather than pounded piles. A Rammed Aggregate Pier (RAP) system is specified for ground improvement. This system lends itself well to tight urban sites in residential areas because the RAP construction process produces low noise and vibration. The noise reduction is due to the rammer being muffled down in the shaft 80 percent of the time. (Bligh S.E., 2009) Noise from General Construction Activities Noise from general construction activities would be more intermittent and less intensive as those described above for demolition and drilling. It would include a myriad of equipment shown in Table and occur over an approximately 24 month period. Noise from Construction Trucks Noise would also be generated by construction truck trips and, to a lesser degree, construction worker vehicle trips. Average daily truck trips are estimated to be up to 56 trips per day or about 8 trips per hour. Inbound trips would primarily use Telegraph Avenue and Webster Street to access Hawthorne Avenue. Outbound truck trips would primarily use Elm Street, 34th Street and Telegraph Avenue to the freeway. The quietest of these roadways for which traffic volumes is provided in the Transportation analysis is Hawthorne Avenue which has an existing volume of 262 vehicles per hour. The TNM traffic model of the Federal Highway Administration indicates that addition of 8 truck trips to this existing volume of 262 trips would result in an increase of less than 2 dba and not be considered a significant contribution to local noise levels. Summary Implementation of Standard Conditions NOI-1, Days/Hours of Construction Operation, NOI-2, Noise Control, NOI-3, Noise Complaint Procedures, and NOI-5, Pile Driving and Other Extreme ABSMC Summit Campus Seismic Upgrade and ESA /

15 Noise Generators, would reduce impacts from construction noise by limiting hours of construction activities, requiring best available noise control technology, and by requiring the project applicant and/or its contractors to notify local residents of construction activities and to track and respond to noise complaints. To specifically address impacts from pile drilling and other extreme noise generating construction activities that may expose sensitive receptors to noise levels greater than 90 dba, Lmax, the proposed project, to comply with part of the Standard Condition NOI-5, would be required to develop and submit for review and approval by the City a Site-specific Construction Noise Reduction Plan that would ensure that maximum feasible noise attenuation will be achieved. Implementation of Standard Conditions NOI-1 through NOI-3 and NOI-5 would reduce temporary noise nuisance impacts associated with construction to a less-than-significant level. Mitigation: None required. Impact NOI-2: Noise levels from Project generated traffic would increase roadside ambient noise levels. (Less than Significant) The proposed project would increase noise levels on local roadways due to increased traffic. To assess the significance of the increase in traffic noise due to the proposed project, roadside PM peak-hour noise levels have been estimated for existing conditions, near-term baseline conditions, near-term conditions with Phase 1, near-term conditions with buildout of the Project (Phase 1 and future phases), and future cumulative conditions with buildout of the proposed project. Using algorithms from the Federal Highway Administration s Highway Traffic Noise Prediction Model (FHWA- RD ), traffic noise levels were analyzed for roadway segments that experienced the greatest percentage increase in Project traffic when compared to existing traffic volumes along those segments. Table presents the results of the noise modeling. As shown in Table 4.5-5, neither Phase 1 nor the future phases of the proposed project would lead to a 5 dba or greater increase in noise over the without project noise levels along any of the analyzed roadway segments. Therefore, impacts from the proposed project would be less than significant. Mitigation: None required. Impact NOI-3: Operational noise sources generated by HVAC equipment, emergency generators, ambulance sirens, proposed parking structures, and truck loading/unloading may impact nearby noise-sensitive receptors. (Less than Significant) Once operational, a major source of noise would be from the operation of mechanical equipment associated with the heating, ventilation, and air conditioning (HVAC) systems associated with the newly constructed buildings. It is assumed that the majority of HVAC equipment that would serve ABSMC Summit Campus Seismic Upgrade and ESA /

16 TABLE TRAFFIC NOISE INCREASES ALONG LOCAL ROADWAYS IN THE PROJECT AREA Modeled L dn Noise Level at 50 feet from Roadway Centerline Street Segment Existing Existing plus Project Project Change over Existing 2015 w/o Project Phase 1+ MOB Change Phase 1 + MOB vs w/o Project 2035 w/o Project Project Change 2035 w/project vs w/o Project Telegraph North of Grand North of 27th North of 30th North of Macarthur North of 40th North of 51st Broadway North of Grand North of 27th North of Macarthur North of 51st West Macarthur East of Piedmont Northgate North of 27th Grand Avenue East of San Pablo Castro Street North of 17th SOURCE:ESA, the project buildings would be located within the mechanical equipment wells on the roofs of the buildings. Operation of HVAC equipment would be subject to noise ordinance standards shown in Table Provided that the equipment is designed and used in a manner that complies with those standards, the related noise impact to residences and adjacent land uses would not be significant. The applicable design standard would be 45 dba at adjacent sensitive land uses. Air handling equipment is mounted on the rooftops of many buildings in Oakland that operates without noise impacts to adjacent buildings. The equipment for the proposed project would be anticipated to be recently manufactured and be compliant with the operational restrictions of the City of Oakland Noise Ordinance. For these reasons, noise from HVAC equipment would not be expected to significantly affect the noise environment at nearby land uses. The proposed project would result in the installation of two new emergency generators at th Street. These generators would be located within 200 feet of the Parks Chapel A.M.E. Church and would also be located within a few hundred feet of residences located along 34th Street. All generators and enclosures would be designed to meet the Oakland noise ABSMC Summit Campus Seismic Upgrade and ESA /

17 ordinance standards. In addition, by definition, the emergency generators would not be regularly used and would be used only during emergency power outages. Therefore the noise impact from the generators would be less than significant. The proposed new parking garage to be located on Hawthorne Avenue would be adjacent to a private residence located on the corner of Hawthorne and Elm Street. The parking garage would have approximately 1,067 spaces on seven parking levels. A new surface parking lot would also be developed at the corner of Hawthorne and Elm, opposite the residential unit identified above. Noise sources would potentially include tires squealing, engines starting, doors slamming, car alarms, and people talking. Parking lots with 1,000 cars during peak activity hours have a reference hourly L eq of approximately 56 dba at 50 feet (FTA, 2006). The nearest resident would be approximately 250 feet from the center of the proposed lot; therefore, assuming that noise would attenuate at a rate of 6 dba per doubling distance, peak hour L eq at the nearest resident would be approximately 42 dba and impacts would be less than significant. Operational noise would occur related to the arrival, departure, and loading/unloading of goods from delivery trucks associated with the Project. This noise would be less than significant, as it would primarily take place during the less noise sensitive daytime hours. Emergency vehicle sirens are another noise source associated with hospital activity. Overall, the proposed project would not result in a significant change in the number of ambulance trips per day. Although ambulance siren noise level is loud, typically about 90 dba, noise generated by emergency vehicles is not considered to be a nuisance considering the urgent and imperative nature of the operations and is not subject to local noise standards. In most cases, sirens are no longer used as the ambulance approaches the hospital as critical cases are typically stabilized by that time. As stated in the Transportation Section, existing ambulance drop-off access to the Providence Pavilion would remain and has acceptable circulation. The proposed ambulanceonly access for the Emergency Department at Merritt Pavilion would also use Hawthorne Avenue. Therefore no change in ambulance routes is anticipated. Impacts would be less than significant. Mitigation: None required. Impact NOI-4: The interior noise levels within hospital buildings, especially in rooms used for overnight use such as patient wards, could exceed L dn 45 dba, the interior noise standard for hospitals according to the City of Oakland General Plan Noise Element. (Less than Significant) As mentioned previously, the proposed project site is located within the City of Oakland s 70 dba noise contour for I-580. Furthermore, short term noise measurements taken in the area demonstrate noise levels between 58.0 and 71.2 dba. In order to meet the interior noise standard of 45 dba L dn, building construction would need to significantly reduce noise levels from the external facades of the building. Conventional contemporary building construction methods and materials decrease ABSMC Summit Campus Seismic Upgrade and ESA /

18 outdoor noise by db (with partially open windows) which would not be sufficient to comply with the City s interior noise level standards for hospitals. Implementation of Standard Condition NOI-4, Interior Noise, would ensure that interior noise level standards would be met at the proposed hospital site and that impacts would be less than significant. Mitigation: None required. Cumulative Noise Impacts Cumulative Context The geographic context is the area in close proximity to the project site, including areas of downtown Oakland that encompass the projects included in the City of Oakland s Active Major Development Projects list on page In addition, since area traffic contributes to local roadway noise near the project site, the context includes projects in the ACCMA travel demand model, which are included in Appendix B.7. Impact NOI-5: The proposed project, together with past, present, existing, approved, pending, and reasonably foreseeable future development in the area, could result in longterm traffic increases that could cumulatively increase noise levels. (Less than Significant) The geographic area considered for cumulative noise analysis includes areas within close proximity to the project site and roadways examined in the transportation analysis. Longer-term noise from cumulative development (including past, present, existing, approved, pending, and reasonably foreseeable future development) in the area would primarily occur from motor vehicle traffic. Cumulative traffic noise levels in the project area were estimated using traffic data provided by Fehr and Peers and are presented in Table As shown in the table, the combination of project and cumulative traffic would not increase traffic noise levels by greater than 5 dba along the analyzed roadway segments. Therefore, this increase would not be perceptible over the total noise levels along these segments. Traffic noise forms one component of the total noise environment. An increase in traffic noise of 5 dba would not necessarily translate to an increase of 5 dba in the total ambient noise environment. When the resultant noise levels from project combined with cumulative traffic (past, present, existing, approved, pending and reasonably foreseeable future development) along these segments are logarithmically added to the existing monitored noise levels, the increase would be less than 5 dba and therefore less than significant. Noise impacts under cumulative conditions must consider other projects in the vicinity that could contribute a significant cumulative impact on sensitive receptors. Other planned major construction projects in the project vicinity are presented in Table 4-1 of this document. Two types of short-term noise impacts would occur during demolition and construction phases for both the proposed and cumulative projects. The first is the increase in traffic flow on local streets associated with the transport of workers, equipment, and materials to and from the project ABSMC Summit Campus Seismic Upgrade and ESA /