Compilation of Noise Programs in Areas Outside DNL 65 (2009)

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23 The two case studies presented in this section demonstrate that there is a need for airports to have continued flexibility in addressing noise outside DNL 65—whether because commu- nities have demanded it (Naples Municipal Airport) or because the airport has conducted proactive planning (Dallas/Ft. Worth International Airport). NAPLES MUNICIPAL AIRPORT The Naples Municipal Airport (APF) is the only airport in the United States with an approved Part 161 study; it has no resi- dents living within the DNL 65 contour. A key factor in the success of the Part 161 study was Naples Airport Authority’s diligence working with local land use planning jurisdictions to implement land use policies that were aimed at residential land uses to DNL 60 dB. Part 150/161 Background In 1987, the Naples Airport Authority (NAA) conducted its first FAR Part 150 study. As a result, in 1989, an Airport High Noise Special Overlay District was established that required rezoning for any new development or major redevelopment of land within the 65 dB DNL contour. In 1997, the NAA sub- mitted a revised Part 150, which adopted DNL 60 dB as its threshold of compatibility for land use planning to preclude the development of incompatible uses in the vicinity of the Airport (Figure 12). The FAA approved 14 of 15 measures; perhaps most importantly, the FAA approved a ban on nonemergency night operations in Stage 1 jet aircraft. In 1998, the NAA sub- mitted a second Part 150 update, which included a single mea- sure: a 24-hour ban on nonemergency Stage 1 jet operations. In 1999, the FAA approved this measure. The implementation of this measure essentially eliminated any population within the DNL 65 dB contour. Despite diligent—and successful—NAA efforts to imple- ment the approved measures, including the Stage 1 ban, the NAA continued to receive community pressure regarding noise exposure. In August 1999, the NAA initiated a Part 161 study to identify potential operational restrictions that would be appropriate for addressing these community concerns. The Part 161 study determined that Stage 2 jets were the principal source of the noise impact that caused community concern. The number of people estimated to live within the 60 dB DNL contour if there were no restrictions in 2000 was approxi- mately 1,400; a 24-hour ban on Stage 2 operations would reduce this to approximately 130. The Part 161 study was pub- lished in June 2000 and recommended the total ban on Stage 2 aircraft operations as the most reasonable and cost-effective measure to minimize incompatible land use. On January 1, 2001, the Stage 2 restriction went into effect. Implementation of DNL 60 Land Use Compatibility Criteria by City of Naples and Collier County The city of Naples Comprehensive Plan contained specific information regarding rezoning of areas affected or poten- tially affected by the airport for the first time in 1984. In 1989, the city updated the Comprehensive Plan to establish an Airport High Noise Special Overlay District (City Special District), depicted in the 1989 Comprehensive Plan as the area of land exposed to noise in excess of DNL 65 accord- ing to the five-year forecast case (1991) in the 1987 APF FAR Part 150 Study. Any applicant proposing to develop or significantly redevelop land in the City Special District was— and is today—required to first obtain a rezoning of the prop- erty to Planned Development. To obtain the rezoning, the pro- posed development or redevelopment must conform to existing zoning standards and must, after specific review for this purpose, be deemed compatible with the airport in terms of safety and noise. In 1997, the city revised the map of the City Special District in the Comprehensive Plan to reflect the five-year forecast case (2001) 60 contour. In February 2001, the city and the NAA executed an interlocal agreement to update the District and Comprehensive Plan to reflect the 2005 forecast case DNL 60 contour. In 1986, Collier County developed zoning maps indicat- ing aircraft noise boundaries. In 1987, the Collier County planning department began referencing standards for sound control. In 1991, Collier County approved Ordinance 91-102 that redesigned aircraft noise zones using the five-year forecast case (1991) 65 dB DNL contour (County Special District), added land use restrictions, and implemented notification and sound level requirements for buildings and structures. These requirements are contained in the county’s Land Development Code. In June 1999, the NAA requested that the county adopt the five-year forecast case (2003) 60 dB DNL contour from the CHAPTER SEVEN CASE STUDIES

1998 NEM. Collier County adopted the resolution in June 2000. That same month, the NAA requested the County use the five-year forecast case (2005) 60 dB DNL contour from the 2000 NEM Update for future land use planning. The county updated its zoning map in December 2000 to reflect those contours. City and County Development Application Processes In 2001, NAA staff met with city and county staff to review the processes that they follow on a day-to-day basis to iden- tify development applications for properties located in the City Special District and the County Special District. As dis- cussed previously, both of these overlay districts are based on 60 dB DNL contours. For the city, any applicant propos- ing development in the City Special District must submit a General Development Site Plan that provides the city coun- cil and staff the opportunity to consider the compatibility of 24 the proposed development with the airport. The County Spe- cial District is incorporated directly in the zoning code, which provides applicants and county staff the ability to readily iden- tify whether proposed development is located in the County Special District. As part of the county staff’s review of the development application, staff considers whether the appli- cant has included necessary information to ensure compli- ance with the noise compatibility standards identified in the Land Development Code (i.e., land use restrictions, notifica- tions, and sound insulation). DALLAS/FT. WORTH INTERNATIONAL AIRPORT Dallas/Ft.Worth International Airport (DFW) has used “policy contours” to guide development of residential and other noise- sensitive land uses around the airport. The contours are based on projections of ultimate aircraft noise made in the 1970s. These policy contours are larger than “acoustic” contours that FIGURE 12 Forecast 2001 APF 60 dB DNL with NCP implemented.

25 would reflect actual operations in recent years, yet provide a buffer to protect the airport. However, DFW is coming under increasing pressure from landowners to revise its policy con- tours and allow development closer to the airport. Noise Contour History DNL contours have been developed for DFW on the follow- ing occasions: • In 1971, the North Central Texas Council of Govern- ments developed a forecast set of DNL contours for future 1985 activity. These contours have been used over the years as policy contours and serve as an impor- tant factor in minimizing and preventing incompatible land use from developing around DFW. • In the early 1990s, DFW prepared DNL contours for an EIS for the construction of two new runways and rede- velopment of terminals. Neighboring cities challenged DFW Airport on zoning authority; court tests ensued on the EIS. In 1992, the FAA issued a Record of Decision; this decision also required DFW to “implement an extensive noise mitigation program . . . to mitigate for the increased noise levels to residences and other noise- sensitive uses.” • The most recent DNL contours for DFW were prepared in 2002 for the Environmental Assessment of new RNAV flight procedures. Those contours show that the 65 DNL noise contour for 2002 is almost entirely within the airport property boundary. Figure 13 presents a comparison of DNL 65 contours at DFW over time, including the North Central Texas Council of Governments contours prepared in 1971 (for 1985 future operations—the policy contour); 1992 contours prepared for the Final EIS, and 2002 contours prepared for the RNAV Environmental Assessment. FIGURE 13 Comparison of historic DNL contours at DFW.

Dallas/Fort Worth Noise Program Most of DFW’s noise program is focused on areas outside DNL 65, including: • Operational procedures to minimize noise in neigh- borhoods surrounding the airport: the FAA has imple- mented precision navigation procedures for departures using RNAV; this is estimated to improve efficiency and reduce noise in some areas—all outside DNL 65. • Policy contours that limit noise-sensitive development in noncompatible areas. The DNL 65 noise contour as depicted on the policy contour is well outside the DNL 26 65 noise contour based on an acoustic contour of today; hence, DFW protects a substantial amount of land in its environs that is outside of the current 65 DNL. • A state-of-the-art monitoring system to track noise lev- els over time. One of the biggest challenges currently facing the airport is the continued application of policy contours for land use plan- ning that does not reflect acoustic reality. DFW has committed to update noise contours by 2009. An important question remains over whether local jurisdictions will adopt updated noise contours for land use planning purposes, which will no doubt result in noise-sensitive development closer to DFW.