Public Comment - Exhibit I
From: Bernedine Lund To: Commission-Public-Records Subject: Re: [EXTERNAL] Comment for Tuesday Feb 9 commissioner"s meeting Date: Monday, February 8, 2021 9:12:14 PM Attachments: PoS Commissioner 2-9-2021.pdf FAA Aircraft Noise Policy and Research Efforts - Request for Comments.pdf Thanks for the response. Here are my comments and the FAA Policy and Request for Input. Stay safe - Bernedine On Monday, February 8, 2021, 03:17:13 PM PST, Commission-Public-Recordswrote: Thank you for letting us know, Bernedine. Just a reminder to please submit your written comments before 9:00am on February 9. Best Regards, Commission Public Records From: Bernedine Lund Sent: Monday, February 8, 2021 3:09 PM To: Commission-Public-Records Subject: [EXTERNAL] Comment for Tuesday Feb 9 commissioner's meeting WARNING: External email. Links or attachments may be unsafe. Hello, I will most likely send you a comment in writing tonight or in the morning, We have a medical appt by video conference at 1 PM tomorrow and that may overlap with the public comments. The comment will ask the Commissioner[s to respond to the FAA's draft policy on noise and I'll send a copy of that draft policy as well. Thanks. Bernedine Lund philandbernedine2002@yahoo.com 2-9-2021 PoS Commissioner's meeting, Public Comment 2-9-2021, Bernedine Lund, resident of Federal Way, member of QSPS and volunteer for 350 Seattle Aviation Group Hello, Commissioners, Attached is a copy of a request from the FAA on input for its Aircraft Noise Policy and Research Efforts see the Comments on the last page of the Policy. Here too is a link if you would rather read it on line. https://www.federalregister.gov/documents/2021/01/13/2021-00564/overviewof-faa-aircraft-noise-policy-and-research-efforts-request-for-input-on-research-activities. The deadline for comments is March 15th, and several people n the community are planning to give input. It would be helpful if you, as Port Commissioners, would add your response to the FAA. You are in a good position to know about the increases in public complaints and what is be contributing to them. Adding your comments about the issues the public has had with the increased noise would let the public know that you are interested in the noise and its effect of the local communities. I'm not sure how to phrase my comments to the FAA given the FAA's blatant disregard for previous public comments from others and its dismissal of the issue of noise as requested in the 2018 FAA reauthorization bill. This current request for more information seems to be a delay tactic where they can say they are studying the issue before taking any action, when they already know about the issues. Comments I am going to make include the following, though I hope to have more by next week.: - The DNL is an old metric based on the Schultz Curve that is difficult to replicate using our current noise monitors. The noise metric also does not capture the long sound waves that one can feel more than hear. - The nature of rising and falling noise from aircraft and the frequent flights, such a 1 every 2 minutes for hours on end, is more akin to torturous exposure that to annoyance. Noise has been used in the past to weaken and disorient prisoners who cannot mitigate nor get away from the noise; it is hard to find a difference between that description and that of being under a flight path. - The current FAA mandate is to ensure the safety of the flying public; it needs to be expanded to include the safety of all citizens, both local and international. These are sure to change over the next week before I send them in. AUTHENTICATED US GOVERNMENT, GPO, 2722 Federal Register/Vol. 86, No. 8/ Wednesday, January 13, 2021/Notices DEPARTMENT OF TRANSPORTATION 2601-2623, as recodified at 49 U.S.C. DATES: Comments on this notice must Subtitle IX, Ch. 701Commercial Space identify the docket number and be Federal Aviation Administration Launch Activities, 49 U.S.C. 70101 received on or before March 15, 2021. 70119 (1994), requires certain data be [Docket No. FAA-2020-1157] ADDRESSES: Send comments identified provided in applying for a license to by docket number FAA-2021-0037 Agency Information Collection conduct commercial space launch using any of the following methods: Activities: Requests for Comments; activities. 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West Building Ground Floor at 1200 Whether the proposed collection of New Jersey Avenue SE, Washington, information is necessary for FAA's SUMMARY: The FAA is releasing a DC, between 9 a.m. and 5 p.m., Monday performance; (b) the accuracy of the summary to the public of the research through Friday, except Federal holidays. estimated burden; (c) ways for FAA to programs it sponsors on civil aircraft FOR FURTHER INFORMATION CONTACT: Mr. enhance the quality, utility and clarity noise that could potentially inform Donald Scata, Office of Environment of the information collection; and (d) future aircraft noise policy. The FAA and Energy (AEE-100), Federal Aviation ways that the burden could be invites public comment on the scope Administration, 800 Independence Ave. minimized without reducing the quality and applicability of these research SW, Washington, DC 20591. Telephone: of the collected information. The agency initiatives to address aircraft noise. (202) 267-0606. Email address: will summarize and/or include your The FAA will not make any NoiseResearchFRN@faa.gov. comments in the request for OMB's determinations based on the findings of clearance of this information collection. these research programs for the FAA's Contents OMB Control Number: 2120-0608. noise policies, including any potential Supplementary Information Title: Commercial Space revised use of the Day-Night Average Overview of FAA Research on Aircraft Noise Transportation Licensing Regulations. Sound Level (DNL) noise metric, until it (1) Effects of Aircraft Noise on Individuals Form Numbers: FAA Form 8800-1. has carefully considered public and and Communities Type ofReview: Renewal of an other stakeholder input along with any Speech Interference and Children's information collection. Learning additional research needed to improve Neighborhood Environmental Survey Background: The Commercial Space the understanding of the effects of Health and Human Impacts Research Launch Act of 1984, 49 U.S.C. App. aircraft noise exposure on communities. Impacts to Cardiovascular Health Federal Register/Vol. 86, No. 8/Wednesday, January 13, 2021/Notices 2723 Sleep Disturbance than 250 airports have used this Economic Impacts process areas experiencing significant aircraft to consider changes to local land use (2) Noise Modeling, Noise Metrics, and noise has started to show a gradual Environmental Data Visualization planning and zoning, sound insulation, expansion. The introduction of Aviation Environmental Design Tool acquisition of homes and other noise- Performance Based Navigation (PBN) Noise Screening sensitive property, aircraft noise procedures, as needed to safely and Environmental Data Visualization abatement routes and procedures, and efficiently modernize the national air Supplemental Noise Metrics other measures. Over $6 billion in transportation system,? has also (3) Reduction, Abatement, and Mitigation of funding has been provided for airports provided noise benefits for many by Aviation Noise to undertake noise compatibility Aircraft Source Noise Reduction allowing for new and more efficient programs and implement noise Noise Abatement flight paths, but has in some places Noise Mitigation Research mitigation measures. The FAA resulted in community concerns, Aircraft Noise Policy Background encourages the process by providing particularly related to increased Comments Invited financial and technical assistance to concentration of flights. In 2016, the airport sponsors to develop Noise FAA released an update to the FAA Background Information Exposure Maps and Noise Compatibility Community Involvement Manual to Since the mid-1970s, the number of Programs, and implement eligible noise- reaffirm the FAA's commitment to people living in areas exposed to related mitigation measures inform and involve the public, and to significant levels of aircraft noise 1 in recommended in the program, give meaningful consideration to the United States has declined from depending upon the availability of community concerns and views as the roughly 7 million to just over 400,000 funding. FAA makes aviation decisions that today. At the same time, the number of In addition to noise compatibility affect community interests. The FAA commercial enplanements has increased planning, the FAA also issues grants to has since developed and begun from approximately 200 million in 1975 airport operators and units of local implementing a comprehensive and to approximately 930 million in 2018. government to fund mitigation projects, strategic approach to transform and The single most influential factor in that most notably to sound-insulate homes, enhance FAA community involvement decline was the phased transition to schools, and other noise-sensitive practices, including working through quieter aircraft, which effectively facilities. While sound insulation airport community roundtables, to reduced the size of the areas around reduces indoor noise levels, it does not equitably discuss opportunities to shift airports experiencing significant noise address concerns about noise interfering or, when possible, reduce aircraft noise levels. That transition was the result of with the enjoyment of the outdoors. exposure. the development of new technology by Moreover, there are limits to the effectiveness of sound insulation. In Overview of FAA Research on Aircraft aircraft and engine manufacturers; establishment of increasingly stringent some areas with elevated noise levels, Noise noise standards for civil subsonic sound insulation may not sufficiently Recognizing that aircraft noise aircraft, investments by U.S. airlines in reduce interior noise levels to meet remains a primary concern of many established interior noise standards.4 newer, quieter aircraft; and stakeholders, the FAA is actively requirements by the FAA and the Conversely, in areas where overall noise working to understand, manage, and United States Congress to phase out levels are lower, interior noise standards reduce the environmental impacts of operations by older, noisier aircraft. may already be met without additional global aviation through research, A second sound insulation treatments.5 factor has been cooperative technological innovation, policy, and efforts by airports, airlines and other Today's civilian aircraft are quieter outreach to benefit the public. than at any time in the history of jet- aircraft operators, State and local With the vision of removing powered flight. The FAA, aircraft governments, and communities to environmental constraints on aviation reduce the number of people living in manufacturers, and airlines continue to growth by achieving quieter, cleaner, work toward further reducing aircraft and more efficient air transportation, the areas near airports exposed to noise at the source.6 As an example, the significant levels of aircraft noise. Under FAA has worked closely with a number noise produced by one Boeing 707-200 the FAA's Airport Noise Compatibility of industry, academic, and Planning Program, airports may flight, typical in the 1970s, is equivalent governmental stakeholders to assemble in noise to 30 Boeing 737-800 flights voluntarily initiate a collaborative a comprehensive portfolio of research that are typical today." As a result, for activities (including leveraging research process to consider measures that reduce existing noncompatible land many years there was a steady decline undertaken by others) aimed at guiding in the number of people exposed to investments in scientific studies, uses and prevent new noncompatible land uses in areas exposed to significant significant noise in communities located analytical tools, and innovative levels of aircraft noise. Since 1983, more near airports. In recent years, however, technologies to better understand and as aviation industry growth has led to manage aircraft noise. However, due to an increase in operations in many areas, Under longstanding FAA policy, the threshold the complex nature of aircraft noise and of significant aircraft noise the number of people and the size of the the varied priorities and concerns of exposure in residential areas is a Day-Night Average Sound Level of 65 stakeholders, no single set of findings decibels (dB). See the "Aviation Noise Abatement #FAA Order 5100.38D, Appendix R. can completely guide decision making. Policy," issued by the Secretary of Transportation SP.J. Wolfe et al., 2016 Costs and benefits of US and the FAA Administrator in 1976. This document A broad understanding of aircraft noise aviation noise land-use policies Transportation is available on the FAA website at https:/ Research Part D 44 (2016) 147-156, http:// and any potential impacts, from many www.faa.gov/regulations_policies/policy_guidance/ dx.doi.org/10.1016/j.trd.2016.02.010. different perspectives, is therefore envir_policy/. See, for example, | I li onthe FAA's needed. Summaries of the FAA's key 2 Consistent with International Civil Aviation "Continuous Lower Energy, Emissions, and Noise" Oy i li standards, FAA has set increasingly (CLEEN) Program at: https://www.faa.gov/about/ 8 See Section 213, "Acceleration of more stringent aircraft certification noise standards, office_org/headquarters_offices/apl/research/ NextGen such as the Stage 5 noise certification standard. 82 Technologies," of the FAA Modernization and aircraft_technology/cleen/. FR 46123 (October 4, 2017). Reform Act of 2012, Public Law 112-95, 7 Based 213, 126 on an average of approach and takeoff 3 This Stat. 11, 46-50 (2012), 49 U.S.C. 40101 note (PBN process is outlined under 49 U.S.C. 47501 certificated noise levels as defined in 14 CFR et seq., as implemented by 14 CFR part 150. part implementation required at key airports by 36. statutory deadline). 2724 Federal Register/Vol. 86, No. 8/ Wednesday, January 13, 2021/ Notices research, tools, and technology Health, the FAA is working to might reduce economic productivity. programs designed to potentially inform understand the relationship between The FAA is also in the developmental aircraft noise policy are provided below. aircraft noise exposure and stage of a research project that would cardiovascular health. The researchers (1) Effects of Aircraft Noise on build on existing work done by MIT that Individuals and Communities are doing this by leveraging existing has used housing value data to reveal national longitudinal health cohorts the willingness of people to pay to avoid Speech Interference and Children's wherein statistically large numbers of aircraft noise exposure. This research is Learning people provide data about their health intended to serve as a follow on to the Much of our current understanding on on a periodic basis over the course of Neighborhood Environmental Survey speech interference due to noise was many years. These studies are typically (described in the next section), to established by the Environmental used to understand the relative risk of determine whether the findings of that Protection Agency (EPA) in the 1970s. different factors like diet on different survey on residents' sensitivity to The findings from these early research health outcomes like heart disease. The aviation noise is also reflected in their assessments are still relevant for today's Boston University team is expanding the "revealed preferences" when making considerations on the impacts from list of factors to include aircraft noise housing location decisions. aircraft noise. However, the FAA is also exposure such that it can be placed in investigating whether there are related context with other factors that could Neighborhood Environmental Survey considerations warranting more detailed increase one's risk of cardiovascular To review and improve the agency's studies. One area in particular is the disease. The team is leveraging existing understanding of community response potential effects of aviation noise on collaborations with well-recognized and to aircraft noise, the FAA initiated the reading comprehension and learning respected health cohorts including the Neighborhood Environmental Survey motivation in children. Initial research Nurses' Health Studies and the Health (NES) to help inform ongoing research in this area has shown there are Professionals Follow-Up Study, as well and policy priorities on aviation noise. challenges in designing effective as a complementary study at Boston Section 187 of the FAA Reauthorization studies, and this continues to be an area University that is examining the Act of 2018 11 requires the of interest to better inform noise Women' Heath Initiative cohort through Administrator of the FAA to "conclude mitigation and abatement strategies for funding from the National Institutes of the Administrator's ongoing review of schools and other noise-sensitive Health. the relationship between aircraft noise facilities. While additional research in Sleep Disturbance exposure and its effects on communities this area is still being explored, the FAA around airports The FAA is working with a team led . . . [and] submit to has invested more than $440 million in Congress a report containing the results sound insulation treatments at schools by the University of Pennsylvania School of Medicine to conduct a of the review." around the country 10 in order to Due to the interest from Congress and national sleep study that will quantify mitigate any potential issues related to other stakeholders in the findings of this the impact of aircraft noise aircraft noise. exposure on research, an expanded summary is sleep. The study will collect nationally Health and Human Impacts Research representative information on the provided in this notice below. The full text of the NES report, including a While community annoyance due to probability of being awoken by aircraft detailed description of the methodology aircraft noise exposure provides a useful noise exposure. The study will start and findings, as well as additional with input being requested from summary measure that captures public background material to help inform perceptions of noise, a full approximately 25,000 respondents understanding of the impact of noise on through a mail survey. These surveys readers, is available on the FAA's will be used to determine the eligibility website at: www.faa.gov/go/ communities requires a careful of respondents for a detailed field study aviationnoise. consideration of the potential that will involve roughly 400 physiological impacts as well. Overview of the Survey volunteers. The volunteers in the Knowledge of physiological impacts detailed field study will use equipment Working with statisticians and noise could also help the FAA develop provided by the research team to collect experts,12 the FAA worked with other targeted measures to address aircraft Federal agencies that have statutory, both noise and electrocardiography data noise. Emerging research capabilities are providing new opportunities to examine in their homes while they sleep. The regulatory, or other policy interests in aviation noise, to conduct a nationwide specific impacts of noise on humans. electrocardiography data combined with When these are examined in a holistic information on the level of aircraft noise survey to update the scientific evidence on the relationship between aircraft manner with research on community exposure will advance our noise exposure and its annoyance annoyance, they could further inform understanding of the physiological effects on communities around airports, effects of aircraft noise on sleep. aircraft noise policy considerations. The based on today's aircraft fleet and FAA is conducting research on the Economic Impacts operations. The NES included a range of potential impacts of aircraft noise on In addition to the aforementioned questions on a variety of environmental cardiovascular health and sleep community and physiological impacts, concerns, including aviation noise disturbance, as described below. the FAA is also working with exposure. Impacts to Cardiovascular Health researchers at Massachusetts Institute of The team of expert consultants, under direction from the FAA, surveyed In partnership with academic Technology (MIT) to conduct an empirical assessment of the economic residents living around representative researchers that are being led by the Boston University School of Public impacts to businesses located U.S. airports, drawing upon well- underneath aircraft flight paths. This established research methods in order to assessment will take into account the 2EPA, 1973, Public Health and Welfare Criteria 11 Public Law 115-254. For Noise, https://nepis.epa.gov/. economic benefits from aviation 12 The FAA contracted with Westat, *Provided through Airport Improvement activities, as well as potential a leading statistics firm, and HMMH, a leading noise Program funding since 1994. environmental and health impacts that consultancy, to conduct the survey. Federal Register/Vol. 86, No. 8/ Wednesday, January 13, 2021/ Notices 2725 ensure scientific integrity and historical over the years.16 The dose-response terms of the percentage of people who continuity with prior studies, while also relationship it depicts has provided the are "highly annoyed" and describes employing advancements in techniques best tool available to predict noise- aircraft noise exposure in terms of the for noise modeling and social surveys. induced annoyance for several decades. DNL noise metric. Based on the 1992 The NES consisted of over 10,000 mail In 1992, the Federal Interagency FICON Report, discussed previously, responses from residents in Committee on Noise (FICON) reviewed both the percentage of population communities around 20 statistically the use of the Schultz Curve, and highly annoyed and the DNL noise representative airports across the created an updated version of the curve metric have continued to be recognized Nation, making it the single largest using additional social survey data.1" for this purpose including by FICON's survey of this type undertaken at one The updated dose response curve was successor, the Federal Interagency time. In addition to the mail responses, found to agree within one to two Committee on Aviation Noise in its the consultants also conducted a follow- percent of the original curve, leading 2018 report.20 up phone survey, which included over FICON to conclude that "the updated 2,000 responses to a series of more Schultz Curve remains the best available NES Results detailed questions. The FAA is now source of empirical dosage-effect to Compared with the Schultz Curve considering the full NES results, in predict community response to representing transportation noise, the conjunction with additional research transportation noise." 18 According to NES results show a substantially higher findings as they become available, to the 1992 FICON Report, the DNL- percentage of people highly annoyed determine how they may inform its annoyance relationship depicted on the over the entire range of aircraft noise noise policy considerations. Schultz Curve "is an invaluable aid in levels (i.e., from DNL 50 to 75 dB) at assessing community response as it which the NES was conducted. This Overview of Community Response to relates the response to increases in both includes an increase in annoyance at Noise sound intensity and frequency of lower noise levels. The NES results also occurrence." Although the predicted Historically, two of the main types of show proportionally less change in annoyance, in terms of absolute levels, information considered by the FAA and annoyance from the lower noise levels may vary among different communities, other Federal agencies in relating noise to the higher noise levels. the Schultz Curve can reliably indicate exposure to community response have changes in the level of annoyance for Comparing the percent of population been: (1) Case studies analyzing defined ranges of sound exposure for highly annoyed due to noise exposure individual and group actions (e.g., between the updated Schultz Curve for any given community.1 While the complaints or legal action) taken by validity of the dose-response transportation noise in the 1992 FICON residents of communities in response to methodology used to create the Schultz Report and the NES: noise; and (2) social surveys (such as the Curve remains well supported, its * At a noise exposure level of DNL 65 NES) that elicit information from underlying social survey data, including dB, the updated Schultz Curve from the community residents regarding their the additional data used by FICON to 1992 FICON Report indicated that 12.3 level of noise-induced annoyance. update the curve, is now on average percent of people were highly annoyed, Annoyance is defined as a "summary more than 40 years old and warrants an compared to between 60.1 percent and measure of the general adverse reaction update. The NES was conducted to 70.9 percent within a 95 percent of people to noise that causes create a new nationally representative confidence limit from the NES. interference with speech, sleep, the dose-response curve to understand how * At a noise exposure level of DNL 60 desire for a tranquil environment, and community response to aircraft noise dB, the updated Schultz Curve from the the ability to use the telephone, radio, may have changed. 1992 FICON Report indicated that 6.5 or television satisfactorily." 13 The The NES's collection of a nationally percent of people were highly annoyed, results of social surveys of noise- representative dataset on community compared to between 43.8 percent and induced annoyance are typically plotted annoyance in response to aircraft noise 53.7 percent within a 95 percent as "'dose-response curves' on a graph provides a contemporary update to the confidence limit from the NES. showing the relationship between the Schultz Curve, including technical * At a noise exposure level of DNL 55 level of DNL 14 cumulative noise refinements to improve its reliability. As dB, the updated Schultz Curve from the exposure and the percentage of the with the Schultz Curve, the NES 1992 FICON Report indicated that 3.3 population that is "highly annoyed." describes community annoyance in percent of people were highly annoyed, Current FAA noise policy is informed compared to between 27.8 percent and 16 See Fidell, S., D. Barber, "Updating by a dose-response curve initially a Dosage- 36.8 percent within a 95 percent Effect Relationship for the Prevalence of Annoyance created in the 1970s known as the confidence limit from the NES. Due to General Transportation Noise," Journal of Schultz Curve.15 This dose-response the Acoustical Society ofAmerica, 89, January * At a noise exposure level of DNL 50 1991, pp. 221-233; also see Finegold, L.S., C.S. curve is generally accepted as a dB, the updated Schultz Curve from the Harris, and H.E. von Gierke, 1992, Applied representation of noise impacts and has 1992 FICON Report indicated that 1.7 Acoustical Report: Criteria for Assessment of Noise been revalidated by subsequent analyses Impacts on People, Journal of the Acoustical percent of people were highly annoyed, Society ofAmerica, June 1992; also see Finegold, compared to between 15.4 percent and L.S., C.S. Harris, and H.E. von Gierke, 1994, 13 Federal Agency Review of Selected Airport 23.4 percent within a 95 percent Community Annoyance and Sleep Disturbance: Noise Analysis Issues (FICON), 1992. confidence limit from the NES. Updated Criteria for Assessing the Impacts of 14 The Day-Night Average Sound Level (DNL or General Transportation Noise on People, Noise Graphics comparing the updated Ldn) is the 24-hour average sound level, in decibels, Control Engineering Journal, Volume 42, Number 1, Schultz Curve from the 1992 FICON for the period from midnight to midnight, obtained January-February 1994, pp. 25-30. after the addition of ten decibels to sound levels for 17 The FICON 1992 analysis added Report and the curve from the NES are to the Schultz the periods between midnight and 7 a.m., and Curve's original database of 161 provided on the FAA website at survey data points between 10 p.m., and midnight, local time. See 14 and calculated an updated dose-response curve www.faa.gov/go/aviationnoise. CFR 150.7. using the same methodology but with a total of 400 15 See Schultz, T.]. 1978, "Synthesis of Social survey data points. 20 Federal Interagency Committee Surveys on Noise Annoyance," Journal of the 18 FICON, 1992. on Aviation Noise Research Review of Selected Aviation Noise Acoustical Society ofAmerica 64(2): 377-405. 191bid., vol. 1, p. 2-6. Issues (FICAN), 2018. 2726 Federal Register/Vol. 86, No. 8/ Wednesday, January 13, 2021/ Notices Advancements in Survey Methodology teleworking in today's economy.24 Aviation Environmental Design Tool Earlier work to understand Changes in expectations for spending time outdoors versus indoors and the The Aviation Environmental Design community response to noise, including associated aircraft noise exposure Tool (AEDT) is the FAA's required noise Schultz's dose-response analysis, was may also be a factor. and environmental modeling based on the premise that the application for all U.S. domestic annoyance from any source of noise * The rise of social media, the regulatory analyses requiring FAA would be the same for a given DNL internet, and other national and global review. The AEDT also provides noise level. However, more recent work information sources, leading to an analysis support for the International has shown that aircraft noise often increased awareness and perception of Civil Aviation Organization results in higher levels of local and national noise issues. annoyance Committee on Aviation Environmental compared to the same level of noise * Overall societal response to noise Protection, and is used as a research and from ground transportation sources.21 due to a combination of these or other assessment tool by other Federal There have been relatively few surveys factors. agencies, universities, and industry of communities in the United States In addition to the NES, which focuses stakeholders. about aircraft noise undertaken over the on annoyance, the FAA is also engaged Through collaborations with last four decades. However, other in a range of research initiatives aimed government, university, and industry countries around the world have at providing information on other partners, the FAA actively manages conducted aircraft noise surveys during impacts of aircraft noise, including AEDT to ensure that features and this time considering aircraft noise effects on children's learning, sleep capabilities are developed to meet separately from noise from other modes disturbance, and potential health expanding environmental analysis of transportation. The results of these effects. Each of these research initiatives needs, and to ensure that as new data surveys, as reflected in a dose-response focuses on a distinct type of potential and technologies become available they relationship published by the adverse effect associated with aviation are incorporated in order to enhance International Organization for noise exposure. The potential adverse modeling accuracy and efficiency. The Standardization? have consistently effects explored by these initiatives AEDT builds on a legacy of noise shown higher levels of annoyance than may also be factors influencing the modeling development, and is based on exhibited by the Schultz Curve. Informed by these results, the national annoyance reported by the NES. detailed aircraft-specific noise However, research in these areas is still measurements and internationally dose-response curve in the NES report reflects only responses to the question ongoing and therefore was not accepted aircraft performance models about aircraft noise exposure. specifically addressed by the NES. and standards. A dynamic development Additional details on these research process is used to create new versions Other Factors programs is provided below. of AEDT. This process allows for new features and capabilities to be added as In addition to enhancements in (2) Noise Modeling, Noise Metrics, and needed, for example, when required by Environmental Data Visualization survey techniques and changes to the policy updates or informed by emerging way aircraft operate, there are likely As a core component of FAA's work research findings. other factors contributing to a change in to address aircraft noise, as well as the way communities respond to aircraft a Noise Screening noise. Future work is needed to fully requirement of its environmental regulatory commitments, the FAA must Building from the high-fidelity noise understand the specific drivers behind maintain the ability to accurately modeling capabilities available through these reasons, but several possibilities AEDT, the FAA is also working to include: quantify aircraft noise exposure around airports and throughout the National develop an updated noise screening * Changes to where people are Airspace System. High-fidelity tool. This updated noise screening tool choosing to live, including societal modeling is the only practical method to will use a simplified noise modeling migration to increasingly urban accomplish this objective, as aircraft process to facilitate an expedited review environments.23 Additionally, growth noise needs to be quantified over of proposed Federal actions where and changes to the makeup of suburban relatively large scales in an efficient and significant noise impacts are not communities and their proximity to consistent manner. For more than four expected. Such an approach is urban hubs may also be influencing decades, the FAA has workedclosely beneficial where a proposed Federal factors on community expectations for with industry, academic, and Action is limited in scope and could aircraft noise exposure. governmental stakeholders to advance qualify for a categorical exclusion under the FAA's procedures for implementing * How people work and live, research and development in aircraft the National Environmental Policy Act including influencing factors such as noise modeling. This effort advances the increased in-home business and analytical tools, metrics, data, and (NEPA).25 The primary goal of updating standards required to provide high the noise screening tool is to decrease the amount of time that an analyst will #1 See, for example: Janssen, S., &, Vos, H. (2011). quality results to inform the public and Dose-Response Relationship between DNL and other stakeholders about noise exposure need to conduct an assessment while Aircraft Noise Annoyance: Contribution of TNO. levels. The FAA has also beenactively also ensuring a fully validated result Retrieved from TNO Report TNO-060-UT2011 exploring ways to use emerging that is readily understandable by the 00207. 22 International Organization for Standardization. technologies to visualize environmental public. While the output from a noise (2016, March 1, 2016). International Standard 1996 data including noise exposure. screening tool cannot provide the same 1, AcousticsDescription Measurement and level of detail as a comprehensive Assessment of Environmental NoisePart 1: Basic 24 Work to explore changes modeling tool, the simplified process Quantities and Assessment Procedures, 3rd edition. to how population distribution throughout the day are related to provides for an expedited initial view of 23The U.S. Census Bureau indicates that the aircraft noise exposure is planned under Airport percentage of the population living in urban areas has increased from 73.6 Cooperative Research Project (ACRP) 02-84 25 See FAA Order 1050.1F, Environmental percent in 1970 to 80.7 percent in 2010, an increase of 7.1 percent. [Anticipated] http://apps.trb.org/cmsfeed/ Impacts: Policies and Procedures, Chapter 5 TRBNetProjectDisplay.asp?ProjectID=4421. ("Categorical Exclusions"). Federal Register/Vol. 86, No. 8/ Wednesday, January 13, 2021 / Notices 2727 any potential changes in aircraft noise (3) Reduction, Abatement, and As new aircraft and engine exposure. Mitigation of Aviation Noise technologies lead to quieter aircraft over Environmental Data Visualization To directly address noise concerns, time, the FAA works to establish aircraft certification standards based on noise The FAA has been developing ways to the FAA sponsors multiple research utilize geospatial data to improve the stringency requirements. These programs to explore different concepts standards are a requirement of the agency's ability to communicate for aircraft noise reduction. As aircraft airworthiness process and are described environmental data to the public. For noise is a complex issue, no single in 14 CFR part 36. These requirements example, the FAA has designed an concept is capable of providing a do not force manufactures to develop Environmental Visualization Tool to universal solution. However, by new technology. However, as new noise take advantage of the availability of high conducting research across different reduction technologies emerge they do quality geospatial data to deliver an areas, the FAA is developing solutions ensure that new aircraft continue to agency-wide resource using a to reduce noise at its source, abate noise meet increasingly quieter standards consistent, common visual language. through operations, and mitigate the within the bounds of what is Once fully implemented, this common effects of noise on communities. The visualization platform will serve the intent of this approach is to have a technologically feasible and needs of multiple environmental economically reasonable. variety of options to reduce the noise programs within the FAA, including being experienced by those living near Noise Abatement those presenting aircraft noise data to airports around the country and to have The FAA is also supporting multiple the public. options that could be tailored to specific efforts to identify means to abate noise Supplemental Noise Metrics airports. through changes in how aircraft are The FAA's primary noise metric, Aircraft Source Noise Reduction operated in the airspace over communities. In the immediate vicinity DNL, was developed and validated to As noted previously, the single most of an airport, use of voluntary noise identify significant aviation noise influential factor in the historical abatement departure procedures (NADP) exposure for land use and mitigation decline in noise exposure was the has been a longstanding technique planning as well as for determining phased transition to quieter aircraft. available to reduce noise. Recent significant change in noise exposure Through the public-private partnership research is examining the effectiveness under NEPA review. In some cases, of the Continuous Lower Energy, of these procedures and identifying however, it can be useful to supplement Emissions, and Noise (CLEEN) Program, means of improving their use. DNL with the use of other noise metrics. the FAA and industry are working As the FAA works to modernize the While other noise metrics may not together to develop technologies that National Airspace System, new aircraft provide as complete an understanding will enable manufacturers to create of the cumulative noise exposure from flight procedures have been designed to aircraft and engines with lower noise take advantage of PBN technologies. To activity around an airport and its and emissions as well as improved fuel better understand both the associated airspace, they often can efficiency.28 The technologies being environmental benefits and challenges provide opportunities to communicate accelerated by the CLEEN Program have the specific characteristics of noise posed by PBN, the FAA is working to relatively large technological risk. re-examine ways to routinely consider changes due to the unique aspects of a Government resources help mitigate this noise during flight procedure design. proposed action. The FAA's NEPA risk and incentivize aviation This effort includes an exploration of procedures address the use of manufacturers to invest and develop how PBN can better control flight paths supplemental noise metrics.26 To assist these technologies. By cost-sharing the and move them away from noisethe public in understanding noise impacts, and to better facilitate development with the FAA, industry is sensitive areas, how changes in aircraft communication among communities willing to accept the greater risk and can performance could be safely managed to better support the business case for this reduce noise, and how systematic interested in systematic departure flight track dispersion, the FAA is working to technological development. Once departure flight track dispersion can be entered into service, the CLEEN assess the use of potential supplemental implemented to abate noise concerns. metrics. For a supplemental metric to be technologies will provide societal In a recent partnership with the benefits in terms of reduced noise, fuel Massachusetts Port Authority effective in evaluating potential means of achieving flight track dispersion, and burn, and emissions throughout the fleet (Massport) and MIT, the FAA jointly for years to come. In addition to the contributed to research considering how to ensure that communities understand benefits provided by technologies Area Navigation (RNAV) PBN the impacts of dispersion (i.e., that dispersion does not eliminate noise but developed under the CLEEN, the procedures could be designed and rather it may move noise to other program leads to advances in the implemented to reduce noise. Multiple neighborhoods), the supplemental analysis and design tools that are used concepts were explored that highlighted on every aircraft or engine product how collaborations between the FAA, metric will need to effectively communicate the changes in noise being made by these companies; this airport operators, and community extends the benefits of the CLEEN members can produce innovative noise exposure that will occur in all of the communities affected by the change, Program well beyond the individual abatement strategies. both those that would be exposed to less technologies being matured. A recently completed analysis of noise and those that would be exposed operational procedures that resulted to more noise.2? Section 188 and Sec 173, https://www.faa.gov/ from the Massport-MIT-FAA about/plans_reports/congress/media/Day-Night_ partnership shows that for modern aircraft on departure, changes in aircraft 26 See FAA Order 1050.1F, Environmental Average_Sound_LevelsCOMPLETEDreportw_ letters.pdf. climb speed have minimal impact on Impacts: Policies and Procedures, Appendix B, 28 See, for example, information paragraph B1.6; 1050.1F Desk Reference, Section on the FAA's the overall aircraft departure noise. The "Continuous Lower Energy, Emissions, and Noise" 11.4. (CLEEN) Program at: https://www.faa.gov/about/ current best practice for NADP, using 27FAA, 2020, Report to Congress: FAA office_org/headquarters_offices/apl/research/ International Civil Aviation Reauthorization Act of 2018 (Pub. L. 115-254) aircraft_technology/cleen/. Organization distant community or 2728 Federal Register/Vol. 86, No. 8/ Wednesday, January 13, 2021/Notices "NADP-2" departure procedure, has individual home treatment costs, been shown to minimize modeled noise minimal benefit can be expected for impacts. This analysis also shows that sound insulation treatments applied for The FAA recognizes that a for modern aircraft on arrival, changes range of noise exposures below DNL 65dB. factors may be driving concerns due to in approach airspeed could have a aircraft noise. However, as outlined in noticeable impact (reductions of 4-8 Aircraft Noise Policy Background this notice, a broad understanding of dBA) on the overall aircraft noise at Community response to noise has aircraft noise and its potential impacts relatively large distances from touching historically been a primary factor is needed in order to better down (between 10 and 25 nautical miles manage and underlying the FAA's noise-related reduce concerns from aviation noise. from the runway). While NADP policies, including the establishment of procedures have the potential to reduce The FAA is inviting comments on DNL 65 dB as the threshold of community noise, they may also have these concerns to assist the "significant" aircraft noise exposure. agency in implementation challenges that will The FAA has been using a DNL of 65 assessing how resources should be need to be overcome. Research is dB as the basis for: (1) Setting the directed to better understand and ongoing at MIT to address these agency's policy goal of reducing the manage the factors underlying the challenges.29 number of people exposed to significant concern from aircraft noise exposure. In addition to airplane operations, the aircraft noise; 32 (2) the level of aircraft FAA is also examining the potential for noise exposure below which residential helicopter noise abatement through land use is "normally compatible,"as changes in operational procedures. The defined in regulations implementing the FAA has partnered with the Volpe Aviation Safety and Noise Abatement Center, the National Aeronautics and Act of 1979,33 and (3) the level of Space Administration, the Pennsylvania f any, additional aircraft noise exposure below which State University, and operator noise impacts of FAA actions in investigation, analysis, or research organizations to explore new ways to should be undertaken in each of the residential areas are not considered safely fly rotorcraft while also reducing "significant" under section 102(2)(C) of following three categories as described noise through the Fly Neighborly the National Environmental Policy Act in this notice: Program.3 of 1969.34 e Effects of Aircraft Noise on Noise Mitigation Research Research results, as reflected in the Individuals and Communities; Noise mitigation is the effort to take programs and studies described in this * Noise Modeling, Noise Metrics, and actions to reduce the impact of aircraft notice, will provide new information on Environmental Data Visualization; and noise exposure that occurs. The primary how aircraft noise in communities near * Reduction, Abatement, and mitigation strategies involve airports may be effectively managed and Mitigation of Aviation Noise? encouraging responsible land use will inform future decision making on planning in airport communities and, the FAA's aircraft noise policies. (2) As outlined in this notice, the FAA where appropriate, the application of However, as previously stated, the recognizes that a range of factors may be sound insulation treatments to eligible FAA will not make any determinations driving the increase in annoyance homes or other noise-sensitive public on implications from these emerging shown in the Neighborhood buildings (e.g., schools or hospitals). In research results for FAA noise policies Environmental Survey results compared extreme cases where sound insulation until it has carefully considered public to earlier transportation noise technologies cannot provide adequate and other stakeholder input, and annoyance surveysincluding survey mitigation, the acquisition of residential assesses the factors behind any methodology, changes in how homes and conversion to non- increases in community impacts from commercial aircraft operate, population residential land use is also an option. aircraft noise exposure. Unless and until distribution, how people live and work, As sound insulation treatment costs any changes become effective, all and societal response to noise. The FAA have continued to rise and new research existing FAA regulations, orders, and requests input on the factors that may be on the human impacts from noise policies remain in effect. The FAA is contributing to the increase in becomes available, the FAA is exploring committed to informing and involving annoyance shown in the survey results. the cost-benefit calculus of existing the public, and to giving meaningful noise mitigation strategies and consideration to community concerns (3) What, if any, additional categories technologies in order to better direct and views as the FAA makes aviation of investigation, analysis, or research where and how limited mitigation decisions that affect them. should be undertaken to inform FAA resources should be applied. Recent noise policy? academic research 31 and internal 32 See "Aviation Environmental and Energy Authority: National Environmental Policy assessments have raised questions about Policy Statement," 77 FR 43137, 43138 (July 23, Act (NEPA) 42 U.S.C. 4321 et. the benefits of sound insulation relative 2012), available on the FAA website at [URL]. The seq., Aviation "noise goal" identified in this document includes Safety and Noise Abatement Act (ASNA) 49 to the costs. While the relative benefits "[rJeduc[ing] the number of people exposed to U.S.C. 47501 et. seq., Federal Aviation Act, of sound insulation for noise exposures significant noise around U.S. airports." 49 U.S.C. 44715. above DNL 65dB will depend on the 3349 U.S.C. 47502. The regulations implementing this section are codified at 14 CFR Issued in Washington, DC. part 150. 29 https://ascent.aero/project/anal 3449 U.S.C. 4332(2)(C). See FAA Order Kevin Welsh, lytical 1050.1F, approach-for-quantifying-noise-from-advanced- "Environmental Impacts: Policies and Procedures" Director, Office ofEnvironment andEnergy. operational-procedures/, https://ascent.aero/ (2015), Exhibit 4-1. The "j ifi : threshold for project/aircraft-noise-abatement-procedure- noise used for NEPA [FR Doc. 2021-00564 Filed 1-12-21; 8:45 am] purposes in FAA Order modeling-and-validation/. 1050.1F is also used by the FAA for determining BILLING CODE 4910-13-P 30 https://www.rotor.org/initiatives/fly-neighborly. significant adverse noise effects under 49 U.S.C. #1 Wolfe, Malina, Barrett 47106(c)(1)(B) for airport development projects & Waitz 2016, Cost and benefits of US Aviation noise land-use policies, involving the location of an airport or runway or a major runway extension. See 80 FR 44209, 44223 Transportation Research Part D. (July 24, 2015) (preamble to FAA Order 1050.1F).
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