COMPREHENSIVE LAND USE PLAN SANTA CLARA COUNTY HELIPORTS

Transcription

1 COMPREHENSIVE LAND USE PLAN SANTA CLARA COUNTY HELIPORTS Adopted by SANTA CLARA COUNTY AIRPORT LAND USE COMMISSION San Jose, California October 28, 2015 Prepared by Walter B. Windus Aviation Consultant Saratoga Creek Dr. Saratoga, California (408) i

2 TABLE OF CONTENTS 1 INTRODUCTION AND BACKGROUND PURPOSE AND SCOPE LEGAL AUTHORITY BACKGROUND AND HISTORY CONTENTS OF THE LAND USE COMPATIBILITY PLAN TECHNICAL REFERENCE DOCUMENT HELIPORTS AND THEIR ENVIRONS HELIPORT ROLES HELIPORT LAYOUT PLANS Future Heliport Facilities AVIATION ACTIVITY Based Helicopters Helicopter Operations HELIPORT ENVIRONS LAND USE COMPATIBILITY GUIDELINES OVERVIEW LAND USE COMPATIBILITY CRITERIA NOISE RESTRICTION AREA Noise Descriptors Land Use Compatibility Standards California Land Use Compatibility Standards Santa Clara County Land Use Compatibility Standards City of San Jose Land Use Compatibility Standards City of Santa Clara Land Use Compatibility Standards City of Palo Alto Land Use Compatibility Standards City of Gilroy Helicopter Operations CNEL & SEL Noise Exposure Contours Impacts on Land Use HEIGHT RESTRICTION AREA Primary Surface Approach Surface Transitional Surface Summary SAFETY RESTRICTION AREA FAA Safety Area Helipad Protection Zone Approach Safety Zone Sideline Safety Zone OVERFLIGHT RESTRICTION AREA HELIPORT INFLUENCE AREA ii

3 4 LAND USE COMPATIBILITY POLICIES LAND USE PLANNING ISSUES JURISDICTIONAL RESPONSIBILITIES Santa Clara County Airport Land Use Commission Affected Local Agencies Heliport Owner/Operator Responsibilities COMPATIBILITY POLICIES General Compatibility Noise Compatibility Height Compatibility Tall Structure Compatibility Safety Compatibility Overflight Reconstruction Infill IMPLEMENTATION CONSISTENCY WITH LOCAL PLANS AND ZONING LAND USE DESIGNATIONS Heliport Overlay Zones Avigation Easements Buyer Awareness Measures Methods of Calculating Density and Building Occupancy BIBLIOGRAPHY APPENDIX A HELIPORT SPECIFIC DETAILS Heliport Specific Land Use Compatibility Plan Data Template Parameters for heliport under consideration Figures to be developed iii

4 LIST OF TABLES Table 3-1 Heliport Design Parameters Table 4-1 Noise Compatibility Policies Table 4-2 Safety Zone Compatibility Polices iv

5 LIST OF FIGURES Figure 1 Heliport Location Map..2-4 v

6 Section 1 1 INTRODUCTION AND BACKGROUND 1.1 PURPOSE AND SCOPE This Heliport Land Use Compatibility Plan (HLUCP) is intended to safeguard the general welfare of the inhabitants within the vicinity of heliports and the helicopter occupants. Heliports are airports that are used solely for the takeoff and landing of helicopters and are too small for fixed-wing aircraft operations. Some larger airports have areas designated for the operations of helicopters but land use plans for those heliports are included in the airport CLUPs and are not included in this HLUCP. This HLUCP is also intended to ensure that surrounding new land uses do not affect the Heliport s continued operation. Specifically, the HLUCP seeks to protect the public from the adverse effects of helicopter noise, to ensure that people and facilities are not concentrated in areas susceptible to helicopter accidents, and to ensure that no structures or activities adversely affect navigable airspace. The implementation of this HLUCP is intended to prevent future incompatible development from encroaching on the Heliport and allow for its development in accordance with the current heliport master plan. Consistent with California Public Utilities Code (PUC) et seq., the purpose of this Heliport Land Use Compatibility Plan (HLUCP) is to serve as a policy reference document and thus adoption of this HLUCP does not require that the corresponding general plans for the cities within the County be updated to be consistent with this document, per Public Utilities Code This policy reference document establishes sizing standards and a standard methodology for adopting heliport specific HLUCP s at a future date. These future location-specific HLUCP s for existing heliports will include the establishment of a Heliport Influence Area (HIA) with safety, height and noise policies. Consistent with California Public Utilities Code section 21675, future HLUCP s would only be established for public-use heliports and policies contained herein do not apply to private-use heliports. Each heliport covered by this HLUCP will have its specific elements included in the appendix under the heliport s name. The aviation activity forecast for the heliport is to be updated to reflect the existing aviation activity and provide at least a 20-year forecast of helicopter activity at the heliport. The updated helicopter activity forecasts form the basis for preparation of helicopter noise contours. The Heliport Layout Plan and updated aviation activity forecast and available helicopter noise contours form the basis for preparation of the HLUCP. 1.2 LEGAL AUTHORITY The Public Utilities Code of the State of California, Sections et seq. authorizes each county to establish an Airport Land Use Commission (ALUC) and defines its range of responsibilities, duties and powers. The Santa Clara County Airport Land Use Commission is composed of 7 members, two appointed by the Santa Clara County Board of Supervisors, two appointed by the Santa Clara County City Selection Committee, two appointed by a committee composed of the Aviation Director of San Jose International Airport and the Director of the County Roads and Airports Department and one appointed at large by the ALUC. Section allows the ALUC to formulate and maintain an airport land use compatibility plan (ALUCP) for the area surrounding each public-use airport within Santa Clara County. An ALUCP may also be developed for military airports and heliports at the discretion of the ALUC. (The ALUCP developed for heliports is called a HLUCP.) Caltrans Division of Aeronautics and Santa Clara County records show that the County has thirteen heliports not located on public use airports. Section also specifies that comprehensive land use plans will: (a) provide for the orderly growth of each public airport and the area surrounding the airport within the jurisdiction of the commission, and will safeguard the general welfare of the inhabitants within the vicinity of the airport and the public in general. The 1-1

7 commission plan shall include and shall be based on a long-range master plan or an airport layout plan, as determined by the Division of Aeronautics of the Department of Transportation, that reflects the anticipated growth of the airport during at least the next 20 years. In formulating a land use plan, the commission may develop height restrictions on buildings, may specify use of land, and may determine building standards, including soundproofing adjacent to heliports, within the planning area. The comprehensive land use plan shall be reviewed as often as necessary in order to accomplish its purposes, but shall not be amended more than once in any calendar year. 1.3 BACKGROUND AND HISTORY Legislation passed by the State of California in 1967 mandated the creation of an Airport Land Use Commission in each county that had an airport served by a scheduled airline or operated for use by the general public. In conformance with this legislation the Planning Policy Committee, an existing decisionmaking body with representation from the 5 cities associated with an airport and the County, was designated to be the Airport Land Use Commission (ALUC) for Santa Clara County by the Board of Supervisors and the Select Committee of Mayors. After certification by the California Secretary of State, the Airport Land Use Commission officially came into existence in Santa Clara County in January of Their first land use policy plan was adopted on June 28, CONTENTS OF THE LAND USE COMPATIBILITY PLAN The Heliport Land Use Compatibility Plan (HLUCP) contains several major elements: The existing and planned-for facilities at the Heliport that are relevant to preparing the HLUCP; Appropriate noise, height, and safety restriction policies and land use compatibility standards; Specific findings of compatibility or incompatibility with respect to existing land uses, proposed General Plan land uses, or existing zoning controls; and Specific actions that need to be taken to make the County of Santa Clara and the cities General Plans, Specific Plans, Master Plans and/or Zoning Ordinances consistent with the Heliport Land Use Compatibility Plan. The HLUCP establishes a heliport land use planning area, referred to as the Heliport Influence Area (HIA), which sets the boundaries for application of ALUC Policy. The HLUCP contains the relevant policies for land use compatibility and specific findings of compatibility or incompatibility of land uses within the HIA. Of particular interest to the ALUC are areas "not already devoted to incompatible uses" and, more specifically, undeveloped lands within the HIA. The planning effort is focused on identifying these lands because the policies and standards of the plan are intended to control the compatibility of future development in these areas. The HLUCP is not intended to define allowable land use for a specific parcel of land, although the plan establishes development standards or restrictions that may limit or prohibit certain types of uses and structures on a parcel. The HLUCP is not retroactive with respect to existing incompatible land uses, but discusses actions to be taken when expansion, replacement or other significant changes are made to incompatible land uses. The HLUCP does not apply to property owned by the federal government but may be used as a planning guide for land use development. 1.5 TECHNICAL REFERENCE DOCUMENT A separate Technical Reference Library is being maintained by the County of Santa Clara. The Technical Reference Library will contain the major reference documents associated with the land use compatibility planning criteria in this HLUCP. The documents will be available for review at Santa Clara County Planning Office. 1-2

8 Section 2 2 HELIPORTS AND THEIR ENVIRONS 2.1 HELIPORT ROLES Heliports fall into several use categories, such as Commercial, Emergency Services and Personal use. This HLUCP will focus on Emergency Service heliports, although heliports of the other uses may be included at a later date if the need arises. Emergency Services heliports are typically privately owned and for the private use of their owners. Pursuant to PUC and CCR 3533, Emergency Medical Services (EMS) heliports and Emergency Use (EU) heliports are exempt from State Heliport Permit requirements if they are used, over any 12-month period, for no more than an average of 6 landings per month with a patient or patients on the helicopter... CCR 3527 (g) (2). Public use and personal use heliports require local agency review and approval. There are 10 recognized emergency service heliports in Santa Clara County. They are: 1. Kaiser Hospital, Santa Clara, CA EMS 2. Good Samaritan Hospital, San Jose, CA EMS 3. Valley Medical Center, San Jose, CA EMS 4. Regional Medical Center, San Jose, CA EMS 5. Stanford Hospital, Palo Alto, CA EMS 6. Saint Louise Hospital, Gilroy, CA EMS 7. Lexington CDF, Los Gatos, CA EU 8. Lick Observatory CDF, Santa Clara County EU 9. Sheriff s Metcalf Gun Range, San Jose, CA EU 10. Sweetwater Fire Station, Santa Clara County EU The location of these heliports with respect to nearby communities and other heliports is illustrated on Figure 1. The 5 personal use heliports in the county are: Almaden Vineyards, San Jose, CA Canyon Creek, Morgan Hill, CA Fleaport, San Jose, CA Google, Inc, Mountain View, CA McCandless Towers, Santa Clara, CA Heliports in general and especially emergency service heliports are not listed in the Federal Aviation Administration s (FAA) National Plan of Integrated Airport Systems (NPIAS) ( ) but are included in the California Aviation System Plan published by Caltrans, Aeronautics Program. 2.2 HELIPORT LAYOUT PLANS The development of a HLUCP requires several types of information, one of which is a heliport layout plan (HLP). This is a drawing of the heliport helipad with its markings and the surrounding support environment. As an emergency service heliport, there is little advantage in having a FAA approved or Caltrans approved HLP. The FAA-approved HLP is primarily used by the FAA for FAA airport grants and by Caltrans for their Airport Improvement Program (AIP) grants for eligible construction and development projects. These grant funds are only available to publicly owned aviation facilities. The FAA may review a heliport HLP and Accept it rather than Approve it. Selected data about some of the existing heliport facilities in Santa Clara County and information about their planned development are presented in the appendix under the name of the heliport. 2-1

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10 2.2.1 Future Heliport Facilities Any planned future additions to the heliport facility are to be included in the HLP and documented in the appendix associated with the heliport. 2.3 AVIATION ACTIVITY The noise impact of a heliport is a direct result of the number of helicopter operations at that heliport and the types of helicopters using the facility. Given this information, and some other factors such as flight paths and the distribution of flight operations throughout the day and night, computer models can generate a representation of the noise contours around a heliport. The generalized flight tracks for the heliport are to be shown in a figure in the appendix for the associated heliport. The noise contours created by the computer model reflect the data provided and entered into the program. Thus the activity data, both current and forecasted, needs to be as accurate as possible. As the HLUCP is a 20-year planning document, the stated base year aviation activity shall be reviewed, and updated aviation activity forecasts prepared for the next 20-year period. A summary of the existing and forecast aviation activity is presented in the appendix associated with the heliport Based Helicopters The make and model of each helicopter likely to use the facility is to be listed in a table associated with the specific HLUCP in the appendix. These data are taken from the Heliport Master Plan if any, and/or discussions with the heliport management Helicopter Operations The number of annual helicopter operations at the heliport is to be presented in a table in the appendix for the specific heliport HLUCP including any forecasted change over the 20-year planning period. Local Operations. No local operations are expected at the heliport since all operations are anticipated to be from another site with the helicopter departing after discharging or picking up its passengers at the heliport. Local operations are those helicopter flights operating in the heliport traffic pattern and those departing and returning without landing at another heliport. Itinerant Operations. Itinerant operations are conducted by helicopters that takeoff from one heliport and land at another heliport, or the reverse. They include the operations of helicopters to and from the heliport. 2.4 HELIPORT ENVIRONS One of the figures associated with a specific HLUCP is to be a figure showing the current land use designations within the Heliport environs based on the current city and/or County General Plans. The predominant land uses in the Heliport environs are to be shown in the figure. 2-3

11 Section 3 3 LAND USE COMPATIBILITY GUIDELINES 3.1 OVERVIEW Land use compatibility policies and standards are based on community values, sound technical knowledge, and acceptable analytical methods. These policies and compatibility criteria form the basis for evaluating existing land use compatibility and provide the foundation for the Santa Clara County Airport Land Use Commission (ALUC) policies. These standards focus on the three areas of ALUC responsibility including helicopter noise, the control of objects in navigable airspace, and the safety of persons on the ground and in the helicopter. These compatibility criteria are contained in relevant State and Federal statutes and regulations and are discussed in this section. Federal, State and other local agencies have developed and published guidelines for land use compatibility planning. Unfortunately, no civilian or military authority has established regulations or statutes that specify a single methodology for mitigating the incompatibilities between a heliport and its environs, nor have such incompatibilities been adequately defined. The enabling legislation for the Santa Clara County Airport Land Use Commission offers some guidance while directing the Commission to provide for the orderly growth of the heliports and the areas surrounding the heliports, and to safeguard the general welfare of the inhabitants within the vicinity of the heliports and the public in general. The legislation further enables the Commission to develop height restrictions on structures, to specify the use of land, to determine building standards, including noise insulation, and to assist local agencies in ensuring compatible land uses in the vicinity of the heliports to the extent that the land in the vicinity of the heliports is not already devoted to incompatible uses. The Commission is also empowered to coordinate planning at the State, regional and local levels so as to provide for the orderly development of air transportation, while at the same time protecting the public health, safety, and welfare. 3.2 LAND USE COMPATIBILITY CRITERIA The principal source for heliport land use compatibility planning is the October 2011 California Airport Land Use Planning Handbook (2011 Handbook) published by the California Department of Transportation, Division of Aeronautics (Caltrans). The 2011 Handbook provides guidelines for formulating compatibility criteria and policies for preparing Heliport Land Use Compatibility Plans (HLUCPs). Noise and safety compatibility concepts and issues are presented, and copies of relevant legislation and examples of mitigation measures, such as model noise and avigation easements are included. The 2011 Handbook is available for review at: and at the Santa Clara County Planning Department office. Note that a local agency is not precluded from establishing land use policies that are more restrictive than those described in this HLUCP. 3.3 NOISE RESTRICTION AREA Helicopter noise can affect people in neighborhoods surrounding heliports. At certain levels, helicopter noise can interfere with sleep, conversation, or relaxation. It also may disrupt school and work activities. At even higher levels, helicopter noise may impact outdoor activities and if frequent enough, may begin to raise health concerns with respect to hearing loss and stress-related problems. However, hearing damage from helicopter noise may not be a problem for nearby neighbors because noise levels are simply not of sufficient intensity to cause such damage. An exception to this is the exposure a ground crew member receives during the handling of a helicopter on the helipad. Similarly, medical studies are inconclusive on a cause-and-effect relationship for non-auditory health concerns near heliports. A more general conclusion is that noise may have an additive effect for some people with anxieties, ulcers, and tension illness. The amount of annoyance that helicopter noise creates among people living and working in the vicinity of a heliport varies on an individual basis. Studies show that a certain percentage of people will continue to be annoyed by helicopter noise at any given noise level, regardless of how low that helicopter noise may be. All levels of government share responsibility for addressing the heliport noise issue. The Federal government establishes noise standards for helicopters as published in Federal Aviation Regulations (FAR) 3-1

12 Part 36, Noise Standards: Aircraft Type and Airworthiness Certification, Appendix H & J, and conducts research on noise abatement techniques and noise compatibility. The preparation of a special heliport noise study under the provisions of FAR Part 150, Airport Noise Compatibility Planning, provides technical assistance to the public-use heliport operator in planning and implementing a noise compatibility program. The State of California also prescribes noise standards for all airports, including heliports, as defined in Title 21, Airport Noise Standards, of the California Code of Regulations, and sets noise insulation standards for residential structures as defined in Title 24, California Building Standards Code, of the California Building Standards Commission. The heliport operator may develop heliport noise control programs and enact operational restrictions to control and reduce noise levels in the community. Finally, local governments have the responsibility to limit the exposure of the population to excessive heliport noise levels through the land use planning and zoning process Noise Descriptors To adequately address the airport noise issue, local governments need a standard way to measure and describe heliport noise and establish land use compatibility guidelines. The County of Santa Clara has identified DNL and CNEL as being equivalent measures of noise. Relative to aviation, it is common to use the Community Noise Equivalent Level (CNEL) for determining land use compatibility in the community environment. The Community Noise Equivalent Level (CNEL) descriptor is a method of averaging single-event noise levels over a typical 24-hour day and applying penalties to noise events occurring during the evening (7 p.m. to 10 p.m.) and night (10 p.m. to 7 a.m.) hours. CNEL is usually defined in terms of average annual conditions, so that the CNEL measured on a given day may be either less than or greater than the annual average. The State of California uses the CNEL descriptor to describe land use compatibility with respect to aircraft and helicopter noise exposures. CNEL is the noise descriptor standard defined in Title 21 of the California Code of Regulations, Airport Noise Standards, and the standard specified for evaluation of exterior and interior noise impacts in Title 24 of the California Building Standards Commission, California Building Standards Code. The CNEL is identified as one of two noise descriptors used in the preparation of a noise element of a general plan according to guidelines established by the Office of Noise Control, California Department of Health Services (now documented as General Plan Guidelines, Appendix A). The Federal Aviation Administration (FAA) recognizes the CNEL as essentially equivalent to the Yearly Day-Night Average Sound Level (DNL), which is the basis for FAA recommendations for land use compatibility with respect to aircraft noise described in FAR Part 150, Airport Noise Compatibility Planning. Averaging metrics like CNEL are not an adequate measure of the impact of noise from helicopter operations since most heliports have a small number of operations (arrivals and departures) over the analysis period. Thus the CNEL contours are very small and do not adequately represent the level of annoyance from operations at the heliport within the surrounding community. Helicopter noise has a character all its own. Although a portion of the noise emanates from the engines themselves, the uniqueness of helicopter noise is mostly due to the modulation of sound created by the relatively slow-turning of the main rotor as it hits the air around it. This sound modulation is known as blade slap. Blade slap is most pronounced during low-speed descents and high-speed cruise. To a listener on the ground, it is most audible as the helicopter approaches. Helicopters are also notable for creating perceived vibrations or rattle in structures. A better measure of community impact for helicopter operations is the single event noise metric, Sound Exposure Level (SEL) or Single Event Noise Exposure Level (SENEL). SENEL used in California is virtually identical to the SEL used by the Federal Aviation Administration and other federal agencies. The Sound Exposure Level (SEL) is a measure of the total noisiness of an event that takes duration into account. The Single Event Noise Exposure Level (SENEL) is the SEL for a defined noise threshold level. The SEL value represents the one-second long steady level that contains as much energy as the varying level over the full event. Lmax is the value in dba of the maximum instantaneous noise level of the event. 3-2

13 The 1997 FICAN noise studies of aircraft noise events correlated to awakenings (see ANSI /Part 6) were done using SEL noise metrics. Clearly the value for Lmax is lower than the value for SEL, unless the event is exceedingly short, less than 1 second (an explosion or gun shot for example). In aviation events, Lmax is about 10 dba below the SEL value. Since this HLUCP deals with emergency service and public use heliports, the focus on helicopter noise impacts will be on those impacts occurring between 10 PM and 7 AM, normal sleeping hours, and schools, churches and meeting facilities. The decibel (db) is the unit of measurement for the magnitude of a sound. A decibel is equal to the logarithm of the ratio of the intensity of the sound to the intensity of an arbitrarily chosen standard sound, specifically a sound just barely audible to an unimpaired human ear (e.g., 55, 60, 65, 70 and 75 db) Land Use Compatibility Standards California Land use compatibility guidelines for airport (including heliport) noise are included in the 2011 Handbook. Amendments to the law enacted in October 1994 mandate the use of these guidelines in the preparation of aviation land use plans. These guidelines were originally developed in 1983 after considering State Office of Noise Control (ONC), FAA, and U.S. Department of Housing and Urban Development (HUD) guidelines together with a review of available airport land use plans. Existing Federal and State laws were reviewed as part of the updated 2011 Handbook. The State ONC criteria established the 55 db CNEL as a residential threshold value to distinguish normally acceptable from conditionally acceptable situations. The Caltrans guidelines for land use compatibility standards extend below the Federal 65 db CNEL, as the Federal threshold does not sufficiently explain the annoyance area surrounding general aviation airports and heliports. The frequency of operations from some heliports, visibility of helicopters at low altitudes and typically lower background noise levels around many heliports are all believed to create a heightened awareness of helicopter activity and potential for annoyance outside of the 65 db CNEL contour. At and above the 60 db CNEL level, the California Building Code, Section 1208A.8.3 requires an acoustical analysis of proposed residential structures, other than detached single-family dwellings, to achieve an indoor noise level of 45 db CNEL. The noise attenuating properties of existing types of construction were considered in setting state standards. Typical wood frame construction with drywall interiors provides noise reduction of between 15 and 20 db. Thus, residential units exposed to outdoors noise in the range between 60 and 65 db CNEL can be attenuated to achieve the 45 db CNEL level indoors when built using normal standards of construction. The 2011 Handbook (see Appendix C therein) urges ALUCs to be conservative when establishing noise contours Land Use Compatibility Standards Santa Clara County In the Noise Element of the 1994 Santa Clara County General Plan, the County identified 55 db DNL as the normally acceptable standard for residential uses. Above 55 db DNL, residential uses are conditionally acceptable, however the noise exposure is great enough to be of some concern Land Use Compatibility Standards City of San Jose The Land Use Compatibility Guidelines for Community Noise in the Environmental Leadership chapter of the Envision San Jose 2040 General Plan Noise Policy EC-1.1, Interior Noise Levels, says: The City s standard for interior noise levels in residences, hotels, motels, residential care facilities and hospitals is 45 dba DNL. For Exterior Noise Levels, The City s acceptable exterior noise level objective is 60 dba DNL for residential and most industrial land uses (Table EC-1). The acceptable exterior noise level objective is established for the City, except in the environs of the San Jose International Airport and the Downtown.. The San Jose 2040 General Plan, Table EC-1 indicates that the maximum acceptable exterior noise exposure limit of 60 DNL for residential, hotels and motels, hospitals and residential care facilities, 3-3

14 schools, libraries, museums, meeting halls and churches is 60 dba DNL. Specified land uses in noise areas above these exterior noise levels are permitted after an acoustical analysis of the amount of attenuation necessary to maintain an indoor level of DNL <= 45 dba. Table EC-1 recommends a maximum exterior noise level of 50 DNL for Public and Quasi-Public uses, which include auditoriums, concert halls and amphitheaters. Additionally, the San Jose 2040 General Plan noise policies acknowledge the pre-existing noise context of the Airport. Specifically, noise policy numbers EC-1.9, EC-1.10, EC-1.11 and EC-1.12 in the General Plan state: Envision San Jose 2040 General Plan Noise Policy EC-1.9: Require noise studies for land use proposals where known or suspected loud intermittent noise sources occur which may impact adjacent existing or planned land uses. For new residential development affected by noise from heavy rail, light rail, BART or other single-event noise sources, implement mitigation so that recurring maximum noise instantaneous noise levels do not exceed 50 dba Lmax in bedrooms and 55 dba Lmax in other rooms. Note that the noise levels referenced in EC-1.9 above are approximately equivalent to a SEL of 60 dba in bedrooms and 65 dba in other rooms. With a 15 dba attenuation due to typical home construction, this equates to an external noise level of 75 to 80 dba SEL. Envision San Jose 2040 General Plan Noise Policy EC-1.10: Monitor Federal legislative and administrative activity pertaining to aircraft noise for new possibilities for noise reducing modifications to aircraft engines beyond existing Stage 3 requirements. Encourage the use of quieter aircraft at the San Jose International Airport. Envision San Jose 2040 General Plan Noise Policy EC-1.11: Require safe and compatible land uses within the Mineta International Airport noise zone (defined by the 65 CNEL contour as set forth in state law) and encourage aircraft operating procedures that minimize noise. Envision San Jose 2040 General Plan Noise Policy EC-1.12: Encourage the Federal Aviation Administration to enforce current cruise altitudes that minimize the impact of aircraft noise on land use Land Use Compatibility Standards City of Santa Clara The Noise Element in the Environmental Element of the City of Santa Clara General Plan, Figure 5-G, indicates that for Residential and Public Educational facilities, an exterior noise level between 55 and 70 CNEL requires design & insulation to reduce noise levels. Above 70 CNEL, Avoid land use except when entirely indoors and an interior noise level of 45 Ldn can be maintained. (CNEL and Ldn are considered equivalent.) Noise Policy 23 says: Within the San Jose Airport noise impact area, maintain residential neighborhoods as designated in the Land Use Element. Permit appropriate residential development in these neighborhoods subject to noise insulation. Noise Policy 25 says: Prohibit any significant new residential development in the adverse noise environment created by the San Jose International Airport (65 CNEL and over) Land Use Compatibility Standards City of Palo Alto In the Natural Environment element of the 1998 Palo Alto Comprehensive Plan, the City specifies a maximum interior noise level limit of 45 db Ldn (equivalent to CNEL) and 50 db SENL for single family residences and multiple family dwellings, and a maximum exterior noise level guideline of 60 Ldn for residences, hotels, motels, schools, libraries, museums, hospitals, meeting halls, personal care, and churches. Specified land uses in areas above these exterior noise levels are permitted after an acoustical analysis of the amount of attenuation necessary to maintain an indoor level of Ldn <=45 db. Outdoor areas intended for residential recreational use with a noise level above 60 db LDN are required to reduce noise levels as close to 60 db Ldn as feasible through project design Land Use Compatibility Standards City of Gilroy The Noise element of the Community Resources and Potential Hazards Chapter of the June 2002 Gilroy General Plan sets the goal of Protection of Gilroy residents from exposure to excessive noise and its effects through appropriate mitigation measures responsive land use planning, especially in regard to noisesensitive land uses such as schools, hospitals and housing for seniors. Figure 8 identifies the maximum 3-4

15 acceptable indoor residential noise level at 45 Ldn (dba). The City of Gilroy Zoning Ordinance Section discusses regulation of noise and its effects but Section 41.31(c) (1) grants an exemption for Persons, equipment, vehicles, alarms or sirens utilized in essential activities necessary to preserve, protect or save lives or property from danger, loss or harm:. The City of Gilroy does not identify a specific SEL or SENEL noise limit Helicopter Operations An analysis of annual helicopter operations and related noise levels for the Heliport is to be made to prepare CNEL noise contour exposure maps for the base year helicopter operations based on the existing and/or forecasted use. A second analysis is to be made to prepare SEL noise contour exposure maps for the base year helicopter operations based on the existing and/or forecasted use. These noise contours are assumed to be representative of the noise contours which may exist in the vicinity of the heliport and on which land use planning decisions should be made. The Federal Aviation Administration's (FAA) Integrated Noise Model (INM) Version 7.0 or later should be used to prepare CNEL and SEL noise exposure maps based on the FAA helicopter noise level database and heliport operational factors described for each heliport. The INM was developed by the FAA and represents the Federally sanctioned and preferred method for analyzing helicopter noise exposure. Version 7.0c is the currently available version of the INM, which incorporated an updated database of helicopter performance parameters and noise levels. Helicopter operational factors that can significantly affect overall noise levels as described by CNEL and SEL include the helicopter fleet mix, the number of daily operations and the time of day when helicopter operations occur. Trip length can also affect helicopter single-event noise levels. A helicopter that is making a local flight may carry less fuel and fewer passengers than that for a long flight and therefore make less noise on departure. The INM applies corrections to air carrier aircraft takeoff profiles to account for these differences, but makes no corrections to helicopter takeoff profiles. Descriptions of helicopter flight tracks must be developed for use in the INM through discussions with heliport management and review of the assumptions used for previous descriptions if any, of helicopter operations at the heliport. Based on these data, generalized flight tracks are to be prepared for use in the noise modeling process to describe areas with a concentration of helicopter overflights. It is recognized that variations in flight paths may occur at the heliport and that the tracks used for this analysis are a general representation of those flight tracks CNEL & SEL Noise Exposure Contours The Integrated Noise Model (INM) Version 7.0c or later version should be used to prepare CNEL and SEL noise exposure contours for the heliport based on the helicopter noise level and operational factors described for the base year. Version 7.0c is the most recent version of the INM and incorporates an updated database of helicopter performance parameters and noise levels. User inputs to the INM include the following: Heliport altitude and mean temperature Helicopter flight track definition Helicopter departure and approach profiles Helicopter traffic volume and fleet mix Flight track utilization by helicopter types The INM database includes helicopter performance parameters and noise level data for numerous commercial and general aviation (but not military) helicopter make and models. When the user specifies a particular helicopter make and model from the INM database, the program model automatically provides the necessary inputs concerning helicopter power settings, speed, departure profile, and noise levels. INM default values might be used for all helicopter types. 3-5

16 After the model had been prepared for the various helicopter classes, INM input files must be created containing the number of operations by helicopter class, time of day and flight track for annual average day helicopter operations and future operations. From these data, the INM produces lines of equal noise levels, i.e. noise contours. The location of these noise contours become less precise with distance from the helipad since helicopters do not follow each flight track exactly as defined in the model. However, they are accurate enough to indicate general areas of likely community response to noise generated by helicopter activity and serve as the basis for land use compatibility determinations Impacts on Land Use The 60, 65, 70 and 75 dba CNEL and 75, 80, 85, and 90 dba SEL noise contours based on the helicopter operations in the base year are to be presented for the specific heliport under consideration. 3.4 HEIGHT RESTRICTION AREA Height limitations in the vicinity of a heliport are required to protect the public safety, health, and welfare by ensuring that helicopter can safely fly in the airspace around the heliport. This protects both those in the helicopter and those on the surface who could be injured in the event of an accident. In addition, height limitations are required to protect the operational capability of heliports and the functions they serve. Federal Aviation Regulations (FAR) Part 77, Objects Affecting Navigable Airspace, establishes imaginary surfaces for helipads and runways as a means to identify objects that are obstructions to air navigation. Each surface is defined as a slope ratio or at a certain altitude above the Heliport elevation. FAA uses FAR Part 77 obstructions standards as elevations above which structures may constitute a safety hazard. Any penetrations of the FAR Part 77 surface are subject to review on a case-by-case basis by the FAA. The FAA evaluates the penetration based on the published flight patterns for the heliport, as they exist at that time. If a safety problem is found to exist, the FAA may issue a determination of a hazard to air navigation. The FAA does not have the authority to prevent the encroachment, however California law can prevent the encroachment if the FAA has made a determination of a hazard to air navigation. The local jurisdiction can establish and enforce height restrictions. The dimensions and slopes of the imaginary surfaces vary depending on the approach and departure paths to the helipad as shown on the Heliport Layout Plan Primary Surface The heliport Primary Surface is defined as an area that coincides in size and shape with the designated takeoff and landing area (TLOF) as shown in the Heliport Layout Plan. This surface is a horizontal plane at the elevation of the established heliport elevation Approach Surface The Approach Surface is defined as a sloping surface centered on each of the approach/departure paths beginning at the outer edge of the heliport primary surface with the same width as the primary surface, and extending outward and upward for a horizontal distance of 4,000 feet where its width is 500 feet. The slope of the approach surface is 8 to 1 for civil heliports and 10 to 1 for military heliports Transitional Surface The Transitional Surfaces are defined as sloping surfaces extending outward and upward from the lateral boundaries of the primary surface and from the approach surfaces at a slope of 2 to 1 for a distance of 250 feet measured horizontally from the centerline of the Primary Surface and Approach Surface centerlines. 3-6

17 3.4.4 Summary Where imaginary surfaces overlap, such as in the case where the Transitional Surface penetrates and continues upward and outward from the Approach Surface, the lowest surface is used to determine whether or not an object would be an obstruction to air navigation. Any proposed new construction or expansion of existing structures that would penetrate any of the FAR Part 77 imaginary surfaces of the Heliport is considered an incompatible land use, unless either the FAA has determined that the proposed structure does not constitute a hazard to air navigation or the Caltrans Aeronautics Program has issued a permit allowing construction of the proposed structure. The FAA has established minimum standards for the determination of hazards or obstructions to aviation. The FAA permits local agencies such as the ALUC to establish more restrictive criteria for determining if the height of a structure creates a safety hazard to helicopter operations. A determination by the FAA or Caltrans that a project does not constitute a hazard to air navigation does not limit the ALUC from determining that a project may be inconsistent under the policies of this HLUCP. 3.5 SAFETY RESTRICTION AREA Safety of people on the ground and in the air and the protection of property from heliport-related hazards are among the responsibilities of the Airport Land Use Commission. The 2011 Handbook presents guidelines for the establishment of heliport safety areas in addition to those established by the FAA. Heliport safety zones are established to minimize the number of people exposed to potential helicopter accidents in the vicinity of the Heliport by imposing density and use limitations within these zones. The safety zones are related to the design helicopter dimensions. In addition, the survivability of helicopter occupants in the event of an emergency landing has been shown to increase significantly if the helicopter is able to reach the ground under control of the pilot. As a result, open area requirements are established for the safety zones in addition to density and use requirements. The safety area is defined as a surface area extending beyond the FATO surface (see below) by a distance equal to 1/3 of design helicopter main rotor maximum diameter, but not less than 10 feet. Exposure to potential helicopter accidents diminishes with distance from the helipad. The safety zones described below are in descending order of exposure to potential helicopter accidents, with the Safety area and Helipad Protection Zone (HPZ) having the highest exposure followed by the Approach Safety Zone (ASZ) with the Sideline Safety Zone (SSZ) having the lowest level of exposure. The safety zones defined for the Heliport are a composite based on the 2011 Handbook guidelines. The safety zones for the helipad are based on the helipad layout and the approach/departure paths. Safety zones are exclusive in their coverage, and do not overlay each other. Thus land in the SSZ is only in the SSZ, and is not also in the HPZ. The order of precedence is, from highest to lowest: HPZ, ASZ and SSZ. If a development project spans more than one safety zone, each part of the project must meet the requirements for the safety zone in which the land for that portion of the project is located. Thus a single building that extends over two safety zones may have differing height and density-of-use requirements for the two parts of the same physical structure FAA Safety Area The FAA defines an area surrounding the Final Approach and Takeoff Area (FATO) as the Safety Area. The dimensions of this area vary depending on the designated use of the heliport but for Hospital and other emergency service heliports, the area extends beyond the FATO surface by 1/3 the rotor diameter of the Design Helicopter or 10 feet, whichever is greater. 3-7

18 Table 3-1 Heliport Design Parameters TLOF FATO Safety Area Helipad Protection Zone (HPZ) 1 FAA AC 150/5390-2a Private Use 1 Public Use GA 2 Transport 2 Hospital 2 1/3 rotor dia. or Rotor diameter of Rotor dia. or Rotor dia. or 40 ft 10 feet if greater Design Helicopter 50 ft if greater if greater >1.5 x LOA of >1.5 x LOA of 2X rotor dia. or >1.5 x LOA of Design Design Helicopter 100 ft by 200 ft Design Helicopter Helicopter if greater. 1/3 rotor dia. or 1/3 rotor dia. or 20 >30 ft. 1/3 rotor dia. or feet if greater feet if greater feet if greater 280 ft beyond 280 ft beyond 280 ft beyond 280 ft beyond FATO FATO FATO FATO 2 FAA AC 150/5390-2b Design Helicopter dimensions are in FAA AC 150/5390-2b, Appendix Helipad Protection Zone The function of the Helipad Protection Zone (HPZ) is to enhance the protection of people and property on the ground and helicopter occupants. The HPZ has the highest level of exposure to potential helicopter accidents. HPZs should be clear of all structures and activities. The HPZ is defined as a surface area extending 280 feet from the outer edge of the marked landing pad (TLOF) and has the same width as the surface projection of the Part Approach Surface. It is centered on the associated approach/departure path Approach Safety Zone The Approach Safety Zone (ASZ) has the second highest level of exposure to potential helicopter accidents. The Approach Safety zone(s) (APZ) are 1000 feet long extending from the outer edge of the HPZ, with the same dimensions as the surface projection of the Part Approach Surface Sideline Safety Zone The Sideline Safety Zone (SSZ) is an area extending 250 feet from the FATO edge (not TLOF). Helicopters do not normally over fly this area, except by the helicopter losing directional control on takeoff. The Sideline Safety Zone excludes the area of the HPZ and the APZ. 3.6 OVERFLIGHT RESTRICTION AREA All areas within the Heliport Influence Area (HIA) should be regarded as potentially subject to helicopter overflights. Although sensitivity to helicopter overflights will vary from one person to another, overflight sensitivity is particularly important within residential land uses and certain agricultural uses. 3.7 HELIPORT INFLUENCE AREA The Heliport Influence Area (HIA) is a composite of the areas surrounding the Heliport that are affected by noise, height, and safety considerations. The HIA is defined as a feature-based boundary around the Heliport within which all actions, regulations and permits must be evaluated by local agencies to determine how the Heliport Land Use Compatibility Plan policies may impact the proposed development. This evaluation is to determine that the development meets the conditions specified for height restrictions, and noise and safety protection to the public. [A.B. 332 (Stats. 2003) to be codified in Public Utilities Code (b)]. The compatibility of land uses within the HIA should be preserved to the maximum extent feasible with particular emphasis on the preservation of existing agricultural and open space uses, if any. The conversion 3-8

19 of land from existing or planned agricultural, industrial, or commercial use to residential uses should be the subject of consideration of the potential impacts of helicopter overflights. 3-9

20 Section 4 4 LAND USE COMPATIBILITY POLICIES 4.1 LAND USE PLANNING ISSUES The land use planning criteria for the individual land use planning issues applicable to the Heliport are discussed in Section 3.0. A figure is created for each heliport presenting a composite of the land use planning categories and the criteria that establishes the Heliport Influence Area (HIA). The Santa Clara County Airport Land Use Commission (ALUC) and the Heliport Land Use Compatibility Plan (HLUCP) for the Heliport address policies based on the following criteria: Noise Restriction Area. The Noise Restriction Area is defined as the 60 dba SEL contour, inside which an acoustical analysis is required by the local agency with land use jurisdiction demonstrating how low-density, single-family, multi-family and mobile home dwelling units and schools have been designed to meet an interior noise level of 50 dba SEL. Height Restriction Area. The Height Restriction Area is to protect the airspace around the Heliport. The Height Restriction Area is defined as the lowest of the Approach Surfaces plus the Sideline as presented on the Part 77 Surfaces figure. Safety Restriction Area. The Safety Restriction Area is to provide land use safety with respect to people and property on the ground and the occupants of helicopters. The safety zones applicable to the Heliport are defined in Section 3.5 and presented on the Safety Zone figure. Overflight Restriction Area. The Overflight Restriction Area is a composite of the areas surrounding the Heliport that are areas affected by noise, height, and safety considerations. All areas within the HIA should be regarded as potentially subject to helicopter overflights as discussed in Section JURISDICTIONAL RESPONSIBILITIES The policies set forth in this section contain criteria intended to prevent future conflicts between heliport operations and surrounding land uses. Implementation of these criteria requires action by the local jurisdictions that have control over the land uses in the Heliport Influence Area (HIA). The jurisdictional responsibilities for implementation of the HLUCP are described below. In addition, actions that are available to the local jurisdictions are also presented. Implementation of the HLUCP will be the responsibility of the County of Santa Clara and the associated city(ies) for those areas within the HIA under their jurisdiction. Note that Policies T-1 and T-2 extend countywide. The Santa Clara County Airport Land Use Commission (ALUC) will provide policy direction, advice, and technical assistance to the County and the City(ies) as needed to facilitate implementation of the HLUCP Santa Clara County Airport Land Use Commission The Santa Clara County Airport Land Use Commission shall: Adopt the heliport land use policies and the HIA boundary maps. The HLUCP and its planning boundary maps shall, upon adoption, be subject to annual review by the ALUC and be updated as required. Amendments to the HLUCP document are limited to no more than once per calendar year. Review the General Plan and applicable Specific Plans for the County of Santa Clara and the associated city(ies) to determine if such plans and regulations are consistent with the policies of this HLUCP. 4-1