Safeway Berkeley Renovation (0691) - Berkeley, California

Transcription

1 11 March 2010 revised 6 July 2010 Mr. Todd Paradis Safeway, Inc Stoneridge Mall Road Pleasanton, California Subject: Safeway Berkeley Renovation (0691) - Berkeley, California Dear Mr. Paradis: This report provides the results of our noise study for the proposed renovation of the Safeway Store No at 1425 Henry Street in Berkeley, California. Recent revisions to the report were made to include the sound walls at the loading dock and on the rooftop. The existing Safeway store is on a triangular shaped site, bounded by Shattuck Avenue and Shattuck Place on its east side, Henry Street on its west side, and by existing residential and commercial properties along Vine Street on the south side of the store. Figure 1 provides an aerial view of the existing store and surrounding areas. The store building occupies slightly less than one-half the area of the site. The northern part of the site is used for customer parking, with driveway access from Shattuck Avenue, Shattuck Place, and from Henry Street. There is also a parking garage below the store with access from Henry Street, although most customers use the street-level parking lot. The loading dock is on the west side of the store, and is partially screened from the existing homes along Henry Street by a wall on its west side (Figure 2). Trucks typically enter the parking lot from Shattuck Place, reverse into the loading dock, and subsequently depart onto Shattuck Place. Figure 3 is another view of the loading dock from the far side of Henry Street, showing the entrance to the basement parking garage. At the time of the noise survey in 2008, there was a recycling center on the east side of the existing Safeway store (Figure 4). However, the recycling center has been removed due to State budget cuts. The existing store would be renovated and expanded slightly. Some of renovations would include access improvements to the basement parking lot including a new access ramp for the basement parking lot from the street-level parking lot, and a new ramp for vehicle egress onto Henry Street. The expansion of the existing store would provide additional ground-level retail areas along Shattuck Place.

2 WILSON, IHRIG & ASSOCIATES 2 Safeway Berkeley Store Renovation This report provides a discussion of applicable noise standards, the results of an ambient noise survey previously performed for this project in 2008, an assessment of potential future noise impacts on the neighboring residential properties, and preliminary noise control recommendations for the proposed development. Our main findings are that the proposed changes to the Safeway store layout would generate the same noise or less. Rooftop mechanical equipment would comply with the Berkeley Noise Ordinance requirements for mechanical noise 1. APPLICABLE REGULATIONS The City of Berkeley Municipal Code, Chapter 13.40, Community Noise, states that no person shall operate or cause to be operated any source of sound at any location within the incorporated City or allow the creation of any noise on property owned, leased, occupied or otherwise controlled by such person, which causes the sound level when measured on any other property, either incorporated or unincorporated, to exceed: a. The noise level for that land use as specified in Table (of the Code) for a cumulative period of more than 30 minutes in any one hour, or b. The noise standard plus five db for a cumulative period of more than 15 minutes in any one hour, or c. The noise standard plus ten db for a cumulative period of more than 5 minutes in any one hour, or d. The noise standard plus fifteen db for a cumulative period of more than 1 minute in any one hour, or e. The noise standard plus twenty db or the maximum measured ambient level for any period of time. If the measured ambient level differs from that permissible within any of the first four noise limit categories above, the allowable noise exposure standard shall be the ambient noise level. The noise limits provided in Table of the Berkeley Municipal Code are reproduced in Table 1 of this report. The nearby residential properties are zoned R-2A. These values correspond to the median or L 50 statistic described further below. The sum total of provisions a. through e. for a time-varying noise source (e.g., loading dock activity, cars entering/exiting the basement garage, etc.) would generate an equivalent noise level (L eq ) 8 dba higher than the median noise level. Continuous noise sources, however, such as mechanical equipment, would dominate the noise environment and should be evaluated against the median noise level limit. In the event an alleged offensive noise contains a steady pure tone, such as a whine, screech, or hum, or is an impulsive sound such as hammering or riveting, or contains music or speech, the standard limits set forth in Table of the Berkeley Municipal Code shall be reduced by five db.

3 WILSON, IHRIG & ASSOCIATES 3 Safeway Berkeley Store Renovation Table 1 City of Berkeley Exterior Noise Limits (noise levels not to be exceeded for cumulative periods of more than 30 minutes per hour L 50 ) Zone Time Period Noise Level (dba) R-1, R-2 7:00 a.m. - 10:00 p.m. 10:00 p.m. 7:00 a.m R-3 and above 7:00 a.m. - 10:00 p.m. 10:00 p.m. 7:00 a.m Commercial 7:00 a.m. - 10:00 p.m. 10:00 p.m. 7:00 a.m Industry Anytime 70 The City of Berkeley Municipal Code prohibits the loading, unloading, closing or other handling of boxes, crates, containers, building materials, or similar objects between the hours of ten p.m. and seven a.m. in such a manner as to cause a noise disturbance across a residential real property line. The City of Berkeley Municipal Code also prohibits operating or causing the operation of any tools or equipment used in construction, drilling, repair, alteration, or demolition work between weekday hours of seven p.m. and seven a.m., or eight p.m. and nine a.m. on weekends or holidays, such that the sound creates a noise disturbance across a residential or commercial real property line, except for emergency work of public service utilities or variances issued by the Noise Control Officer. The Noise Element of the City of Berkeley s General Plan provides land-use compatibility in terms of the Day-Night Average Sound Level (L dn ). While these guidelines apply to new residential development, they nonetheless provide an indication of the acceptability of noise levels in existing residential areas. For example, noise levels of less than 60 db L dn are considered normally acceptable for new residential development without the need for additional noise control measures such as sound-rated windows and the provision of forced ventilation. 2. ENVIRONMENTAL NOISE SURVEY 2.1 Procedure Long-term noise surveys were performed at four locations adjacent to the site over a one-week period between Saturday, 31 May and Friday, 6 June 2008 using precision, calibrated, Type 1 logging sound level meters. These monitoring locations are indicated on an aerial photo of the site in Figure 1 and as follows: A. The first location (A) was at the front facade of the apartment building at 1406 Henry Street, opposite the entrance to the existing street-level parking lot. B. The second location (B) was on a tree on the west side of Henry Street opposite to the loading dock. C. The third location (C) was in the fenced-off area at the rear of the Safeway building, adjacent to the residence at 1451 Henry Street. D. The fourth location (D) was on a light pole in the Bank of the West parking lot, adjacent to the rear of the building located at Vine Street (currently used as a restaurant) and the neighboring apartment building at 2037 Vine.

4 WILSON, IHRIG & ASSOCIATES 4 Safeway Berkeley Store Renovation A description of various acoustical terms is included in Appendix A. The noise loggers were programmed to record various statistical noise levels over consecutive hourly intervals. The statistical noise levels included the L eq (equivalent continuous, or essentially the energy mean noise level) and the L 8, L 25, L 50, and L 90 (the levels exceeded for 8%, 25%, 50%, and 90% of each hour, respectively). L 90 is a commonly used measure of the background or average minimum noise level. The other metrics were chosen for general consistency with some of the metrics used in the City of Berkeley Noise Ordinance, which includes limits for noise occurring 30 minutes per hour (50% of the time), 15 minutes per hour (25% of the time) and 5 minutes per hour (8% of the time). Short-term noise samples were also recorded between 1:40 p.m. and 3:35 p.m. on Friday, 6/6/08 at the front of the apartment building at 1406 Henry Street, and between 2:00 p.m. and 3:35 p.m. at the front of the residence at 1422 Henry Street. The samples were recorded on Digital Audio Tape using precision, calibrated sound level meters and DAT recorders. 1.2 Results Graphs showing the hourly statistical noise levels for each complete 24-hour period are presented in Appendix B. The Day-Night Average Sound Level (L 1 dn ) values at the long-term monitoring locations over each complete 24-hour period are summarized in Table 2. The weather during the survey was generally dry with no rainfall recorded. Table 2 Note: Summary of Day-Night Average (L dn ) Sound Levels at Long-Term Monitoring Locations Date Loc. A Loc. B Loc. C Loc. D 5/31/08 (Sat.) /1/08 (Sun.) /2/08 (Mon.) /3/08 (Tues.) /4/08 (Wed.) /5/08 (Thurs.) /6/08 (Fri.) Results rounded to nearest whole decibel. 1.3 Comments on Results The 24-hour average (L dn ) noise levels at the residential properties along Henry Street (A, B and C) were typically at or below 60 db, indicating that the current environment is consistent with the Berkeley Noise Element. The levels at monitoring Location B on the Henry Street curb were slightly higher due to the closer proximity of the noise equipment to Henry Street traffic than at the other locations. At noise Location B, there were two weekday periods where the noise levels exceeded the Ordinance limits (Figure B-11 and B-13). At Location C, one weekday period also exceed the Ordinance limits (Figure B-20). However, as these were not attended and observed, the actual source of the noise is unknown. Alternate noise sources could include 1 The noise exposure at a site, measured using the L dn metric, represents the A-weighted equivalent continuous noise exposure level (essentially the average sound level) for a 24-hour period, with a 10 decibel adjustment added to the sound levels occurring during the nighttime hours (10:00 p.m. to 7:00 a.m.). This adjustment is meant to account for the higher sensitivity of people to noise during the nighttime relative to the daytime. See Appendix A for additional definitions of the terminology used in this report.

5 WILSON, IHRIG & ASSOCIATES 5 Safeway Berkeley Store Renovation nearby idling/revving vehicles parked on Henry Street, leaf blowers, etc. One some mornings, the median early morning noise levels (L 50 ) at Locations B and C were very close to or exceeded 45 dba, even while the noise level at Location A was less than 45 dba. At times the daytime L 50 levels also exceeded 55 dba at Locations B and C. Again, since these measurements were unattended, the specific source is unknown. At monitoring Location D, where the 24-hour average noise levels were 64 to 66 db L dn, one of the major sources was the roof-top mechanical equipment at the rear of the Safeway store; this was confirmed with observations by WIA staff. The effect of this almost-continuous mechanical noise is evident in the 24-hour noise levels recorded at Location D (Figures B-22 to B-28), where the L 90 is higher during the early morning hours than at the other locations. It is possible that noise from a mechanical-equipment room at the rear of the store may also have influenced the results obtained at Locations B and C (See Figures B-29 through B-32). Figures B-29 through B-32 (in Appendix B) show the hourly L 90 (average minimum, or background) noise levels at Locations A, B, C, and D over the full weeklong survey. The background noise levels at Locations A and C adjacent to residential buildings and farther from the rooftop equipment fell to lows of 40 to 45 dba at night. The short-term attended measurements taken on Friday, 6/6/08 at the front of the apartment building at 1406 Henry Street (near Location A) recorded noise levels of up to about 83 dba from a beverage truck maneuvering into the loading dock at around 2:11 p.m., and up to about 71 dba when the truck departed at 3:02 p.m. The same truck produced noise levels of up to about 76 dba at 1422 Henry Street (close to Location B) when backing into the loading dock, and up to about 70 dba on departure. Truck unloading activities produced levels of up to about 73 dba at 1422 Henry. The Berkeley Ordinance requires maximum noise levels to remain below 75 dba during the daytime hours 2. The Ordinance limits maximum noise to 65 dba during the nighttime hours (10 PM to 7 AM), but truck deliveries are currently limited to the hours of 7 AM to 7 PM, so the nighttime limit does not apply. The typical maximum noise levels are not shown in the survey figures in Appendix B, but these short-term results at Location A (farthest from the loading dock) indicate that there can be regular exceedances from loading dock activity. As noted above, our observations and attended measurement results indicate that the operational noise from the existing Safeway store can cause adverse impacts for the neighboring residential properties near the loading dock and at the rear of the store. Residential properties on Henry Street in the vicinity of the store s parking lot and loading dock are exposed to intermittent noise from truck movements into and out of the loading dock, including truck engines, reversing alarms and air brakes, and noise from truck unloading activities and stationary refrigerated trucks. The current conditions typically include three large delivery trucks every day between 7 AM and 7 PM, comprised of a mix of Safeway and vendor trucks. The beverage truck deliveries typically occur a few times a week (at most). Mechanical-equipment noise from the store can also adversely impacts some of the neighboring residential properties. Additionally, the homes on Henry Street and other local streets are also exposed to street traffic noise, including Safeway customers vehicles; however the traffic noise itself does not appear to exceed the Berkeley Noise Ordinance. 2 The truck noise measurements were made approximately 75 ft from the truck, which means that at a distance of 50 ft, the beverage truck generated about 74 to 87 dba. The California Vehicle Code (Section 27204) limits noise from highway vehicles constructed after 1988 to be 80 dba at 50 ft at any speed or gear, including idle. The distance is specified from the centerline of the truck.

6 WILSON, IHRIG & ASSOCIATES 6 Safeway Berkeley Store Renovation Vehicles on Henry Street generated maximum pass-by noise levels up to approximately 70 dba at both short-term measurement locations. There was no noticeable noise from the recycling center in 2008 at these two measurement locations on Henry Street. 3. OPERATIONAL NOISE FROM PROPOSED SAFEWAY STORE RENOVATION The main changes that are likely to affect the noise levels at the neighboring residential properties due to the operation of the renovated store are discussed below. Loading Dock The operations will remain similar to the existing, and with the proposed project, the noise generated by delivery trucks would be the same as or less than the existing condition. The project includes a 15 ft high sound wall along the loading dock that blocks the loading dock area from view at the nearby residences. This sound wall thus reduces the loading dock area noise by at least 10 dba, well below the Noise Ordinance limits. The new sound wall could cause some echoes to build up within the loading dock area, and we recommend that Safeway retain the option to install acoustical panels along the building wall or the new wall. These acoustical panels would not be required to meet the Noise Ordinance. Enclosed Parking Garage The renovation design will encourage more customers to use the garage parking, which is fully contained within the building. Thus, noise from the movement of shopping carts, opening and closing of car trunks and doors, cars starting, and vehicle movements within the building would be lower at the neighboring properties than the noise from the existing street-level parking lot. However, more traffic is likely to be directed to Henry Street. See below for more discussion of noise from traffic on Henry Street. The new basement parking access ramp would bring more vehicular traffic to the west side of the Safeway property, close to the homes on Henry Street. See Figure 5. Since these vehicles would be moving at a low speed, the addition of these vehicles is also not likely to introduce a substantial amount of noise to Henry Street. At this time, there are no plans to implement an audible warning for the new basement egress (Figure 5) onto Henry Street. If one would be required, additional analysis would be necessary to determine how such a device would provide the necessary safety warning while also operate within the limits of the Noise Ordinance. However, any alarm would likely be viewed as a nuisance by neighbors and the City of Berkeley, and thus might be subject to further restriction beyond those of the Noise Ordinance. Removal of Recycling Center Safeway has indicated that they would discourage incorporating a recycling center at the renovated store, thus removing a potential noise source.

7 WILSON, IHRIG & ASSOCIATES 7 Safeway Berkeley Store Renovation Mechanical Equipment Noise The locations of the new or relocated mechanical and refrigeration equipment (air-conditioning units, refrigeration units, garage and other exhaust fans, and similar equipment) have been determined, and with the proposed acoustical screens the noise from the rooftop equipment would be in compliance with the Berkeley Ordinance, which requires mechanical equipment to be no greater than 55 dba during the daytime (50 dba with an audible hum), and 45 dba during the nighttime (40 dba with a hum). We expect that the current rooftop design would generate the same or less noise than the existing condition. Increased Street Traffic Increased traffic generated by the new store could increase noise levels along the existing streets near the site, including Henry Street, Vine Street, Shattuck Avenue and Shattuck Place. A traffic study has been prepared by Fehr and Peers 3. Assuming a similar mix of vehicles and speed, for the peak hour, the traffic volume changes along each street would generate a noise increase of almost 2 db along Henry Street and Rose Street, about 1 dba near Vine Street, and 0.5 dba or less for Shattuck Avenue. However, since the noise environment is generally controlled by traffic noise from Shattuck Avenue, the actual noise during the peak noise hour would increase about 0.6 dba above existing for the existing + project condition, and the cumulative condition would raise the noise level by 1.1 dba over the existing. Further, the effects on the total noise exposure over a 24-hour period would be even less, since Safeway would not be contributing to any traffic increases during the late night or early morning hours. Thus, for the cumulative condition, the 24-hour noise exposure (Ldn) would only increase by 0.6 dba. As noted in Table 2, the noise environment at Locations A and C are currently less than 60 Ldn, and therefore the Project + cumulative conditions would cause the noise environment to remain at or below 60 Ldn and the noise environment would remain compatible for residential use. For Location B, directly across from the loading dock, the Project + cumulative would increase the noise environment to a typical range of 60 to 62 Ldn, which would not cause any changes to the existing Land Use Compatibility, per the Berkeley Noise Element. A sound barrier for the loading dock, as discussed above, would improve the noise environment in this area, but the effect on the Day-Night Level, Ldn, would be small, given the small number of truck deliveries. 4. DEMOLITION/CONSTRUCTION NOISE The demolition/construction period for a development of this type could be at least a year, indicating the potential for adverse noise impacts on neighboring properties without effective noise-control provisions. Demolition/construction noise sources would likely include diesel-powered mobile equipment (such as hoe-rams, front-end loaders, vibrating rollers, cranes, and material delivery trucks); air compressors; welding machines; jackhammers, power saws; power drills; angle grinders; and 3 Feher and Peers, Safeway On Shattuck Avenue - Transportation Impact Analysis Report, March 2010.

8 WILSON, IHRIG & ASSOCIATES 8 Safeway Berkeley Store Renovation hand tools, such as hammers. We do not anticipate that pile driving would be required for this renovation project, and that limited earthmoving, if any, would be conducted. Thus, the highest construction noise exposures are likely to occur during demolition and building (re)construction operations. Hoe-rams, jackhammers, welders, saws, front-end loaders, delivery trucks and haul trucks would likely be involved during these phases of the project. The levels of noise emission associated with diesel-powered construction machinery are largely dependent on the extent of exhaust silencing and whether the engine is housed within an acoustic enclosure. Noise emission levels and potential annoyance also depend on the condition of the equipment, the type of operation, its duration and the time of day. Construction-noise impacts on projects of this type can be difficult to control entirely, but their effects can be reduced by implementation of the following noise control measures: Bidding Phase The importance of minimizing construction noise impacts should be emphasized at pre-bid conferences. Potential contractors should be requested to submit information on their noisemanagement procedures, and to demonstrate a successful track record of construction noise management on prior projects. Noise Management Plan The Contractor should be required to develop a plan to assess potential noise impacts on a stageby-stage basis as each phase of the works is defined and implemented. The Contractor should select plant and equipment, design work practices and limit hours of operations, to reduce potential impacts as much as practicable. Hours of Construction The Contractor should limit the hours of operation to the day period (7:00 a.m. to 5:00 p.m.), Monday to Friday, and prohibit significant-noise-generating activities at night, on weekends and public holidays, except in special circumstances. Noise Barriers The Contractor should, where practicable, provide temporary construction noise barriers, for example in the form of solid plywood walls, with sound absorbent material on the surfaces facing the noise source. To be effective, the barrier must block the line-of-sight between the noise source and the receiver, and should be placed as close as practicable to the noisegenerating equipment or activity and/or erected at the property boundary. Barriers are most effective when they are installed before demolition or construction work begins. The locations and height of the barriers should be subject to review by Safeway.

9 WILSON, IHRIG & ASSOCIATES 9 Safeway Berkeley Store Renovation Equipment Type The Contractor should use the quietest practicable type of equipment, for example, electric instead of diesel-powered equipment, hydraulic tools instead of pneumatic impact tools, and electric instead of air or gasoline-driven tools, to the extent practicable. If pneumatically powered tools cannot be avoided, mufflers should be used on the compressed air exhausts. Quieter procedures, such as drills rather than impact equipment, should also be used wherever practicable. Sound-Attenuated Equipment The Contractor should use equipment and trucks fitted with the best available noise-control technology, including high-performance intake silencers and engine-exhaust mufflers on diesel engines, and sound-attenuated enclosures for generators and compressors. Equipment Operation and Maintenance The Contractor should ensure that all equipment is in good repair and operated in the correct manner. This includes replacement of engine covers, repair of defective silencing equipment, elimination of rattling components, repair of leaks in compressed air lines, and shutting down any equipment not in use. Truck idling should also be minimized near sensitive receptors. Equipment Location and Orientation The Contractor should locate stationary equipment such as generators and air compressors as far as practicable from residences. If the noise is directional, orient the equipment to reduce sound at the residences. Public Notification Notices describing the project and likely adverse noise effects should be distributed to residents at an appropriate interval before each stage of the works commences. A personal representation should also be made to the closest neighboring residents to advise them of the project and discuss any concerns. The Contractor should provide a contact telephone number in notices to residents and on signs posted at the site entrance, for dealing with queries and/or complaints, and should respond to all issues of concern in a prompt and courteous manner. 5. SUMMARY OF FINDINGS The proposed changes would generally reduce the noise or keep it the same as the existing noise levels at the nearest residential structures. Specific sound control elements of the proposed project include acoustical sound barriers on the rooftop to block sound from ventilation and refrigeration equipment, and a sound wall along the loading dock to reduce noise from activities in that area.

10 WILSON, IHRIG & ASSOCIATES 10 Safeway Berkeley Store Renovation Increased traffic generated by the renovated store would cause a small noise increase to nearby homes on Henry Street, but this increase would not generate any changes in the Land Use Compatibility, and the Project would remain consistent with the Berkeley Noise Element. Demolition of the existing store and construction of the new store would likely result in unavoidable noise impacts at the adjoining residences. These impacts can be controlled by implementation of the noise management practices outlined in Section 4 of the report. Very truly yours, WILSON, IHRIG & ASSOCIATES, INC. Deborah A. Jue Associate Principal

11 11 WILSON, IHRIG & ASSOCIATES Safeway Berkeley Store Renovation Shattuck Place Henry St. A Existing Loading Dock Existing Truck Movements Existing Safeway Store B D Shattuck Ave. C Vine St. FIGURE 1 AERIAL PHOTO OF SAFEWAY BERKELEY SITE SHOWING LONGTERM NOISE MONITORING LOCATIONS

12 WILSON, IHRIG & ASSOCIATES 12 Safeway Berkeley Store Renovation FIGURE 2 EXISTING LOADING DOCK ON WEST SIDE OF STORE (PHOTO TAKEN 6/6/08)

13 WILSON, IHRIG & ASSOCIATES 13 Safeway Berkeley Store Renovation FIGURE 3 VIEW OF LOADING DOCK AND ENTRANCE TO BASEMENT PARKING GARAGE, FROM WEST SIDE OF HENRY STREET (7/11/08)

14 WILSON, IHRIG & ASSOCIATES 14 Safeway Berkeley Store Renovation FIGURE 4 RECYCLING CENTER AT EAST SIDE OF EXISTING SAFEWAY STORE (7/11/08) No longer on site due to State budget cuts

15 WILSON, IHRIG & ASSOCIATES 15 Safeway Berkeley Store Renovation New Entrance Ramp Existing Loading Dock to remain unchanged Existing Entrance New Exit FIGURE 5 PROPOSED NEW FOOTPRINT AND PARKING ACCESS (Drawing A1.1)