INSTALLATION ENVIRONMENTAL NOISE MANAGEMENT PLAN Camp Grayling Maneuver Training Center Fort Custer Training Center Michigan Army National Guard November 2001 Prepared by: Environmental Noise Program Directorate of Environmental Health Engineering US. Army Center for Health Promotion and Preventive Medicine 5158 Blackhawk Road. Aberdeen Proving Ground Maryland 21010-5403EXECUTIVE SUMMARY OVERVIEW. The Installation Environmental Noise Management Plan (IENMP) provides a strategy for noise management for the Michigan Army National Guard (MIARNG) training facilities at Camp Grayling Maneuver Training Center and Fort Custer Training Center (FCTC). Elements of the IENMP include education, complaint management, noise and vibration mitigation, noise abatement procedures, and the Installation Compatible Use Zone (ICUZ) program. ‘The ICUZ program provides a methodology for analyzing exposure to noise and safety hazards associated with military operations and provide land use guidelines {for achieving compatibility between the Army and the surrounding communities. ‘The Army has an obligation to U.S. citizens to recommend uses of land around its installations, which will: (a) protect citizens from noise and other hazards; and (b) protect the public's investment in these training facilities. ‘The noise impact on the community is translated into noise zones. The program dofines three noise zones and two buffer zones. Noise zone I is compatible for most noise-sensitive land uses. Zone II is normally incompatible for noise- sensitive land uses. Zone Il is incompatible for noise-sensitive land uses. The land use planning zone consists of a portion on noise zone I. The zone of influence consists of a 1.6 kilometer (1 mile) wide strip around the installation boundary. CONCLUSIONS. The environmental noise zones II and III, and the land use planning zone from activities at Camp Grayling Maneuver Training Center extend beyond the camp boundary. The noise zone II and land use planning zone from activities at Fort Custer Training Center extends beyond the facility boundary. Also, the noise {from single events may cause some of the neighbors of both facilities to be annoyed, and could lead to complaints. The Clear and Accident Potential Zones for Grayling Army Airfield extend beyond the airfield boundary. ‘The MIARNG, with its Environmental Noise Management Program (ENMP), will continue to be a good neighbor to the communities surrounding its training facilities. They will use the program to reduce the potential of annoyance and noise complaints caused by training through education and awareness training of both the military and community of its training mission,BRBRE 13 14 24 22 22.1 2241 2.2.1.2 22.13 22.14 2.2.2 2.2.2.1 2.2.2.2 22.2.3 22.24 23 234 2.3.2 2.3.21 2.3.2.2 24 2.4.1 24,2 25 3.1 32 33 34 TABLE OF CONTENTS INTRODUCTION General History of the Noise Controversy ‘The Threat to Military Installations ... Contending with the Threat ... Amny's Installation Environmental Noise Management Plan Stages of the Installation Environmental Noise Management Plan Process Purpose Objectives Content MICHIGAN ARMY NATIONAL GUARD & THE COMMUNITY General Michigan Anny National Guar ‘Camp Grayling Maneuver Training Cente Physical Description History .. Mission ror Training Activities . Fort Custer Training Center Physical Description History .. Mission Training Activit The Civilian Community Camp Grayling Maneuver Training Center Community Population and Employment Economics ... Fort Custer Training Center Community .. Population and Employment Economics Civilian Community Relationships ... Camp Grayling Maneuver Training Center Fort Custer Training Center Summary .. FEDERAL, STATE AND LOCAL LAND USE POLICY AND CONTROL General Federal . State of Michigan Local sues aaan wovweor sas 16 16 16 16General . Impulsive Noise Small Arms Range Noise Aircraft Noise a ts Other Summary ... 59 ARMY AND COMMUNITY RESPONSIBILITIES Introduction Land Use Guidelines Noise Implications Safety Implications Army Responsibilities Responsibility for Noise Impact Reduction Responsibility for Safety of Operations .... Responsibility for Participation with Local Communities Civilian Community Responsibilities Recommendations .. General Recommendations Specific Recommendations Michigan Army National Guard Local Jurisdictions .. Joint Action Recommendations Community Involvement Program Land Use Agreements ..... COMMUNITY INVOLVEMENT Purpose of Community Involvement Purpose of this Section Introduction .. Designing a Community Involver General Principles ... ‘Community Involvement Thought Process Identify Decision-Making Process Tdentify the Objectives ... Tdentify Constraints and Opportunities . Identify the Community Involvement Objectives. Identify the Information Exchange Which Must Take Place with the Community Identify the Information Sources in the Community Identify the Community Involvement Techniques to Use with the Public 6... Identify When the Information Exchange Activities Should Take Place Identify the Place Where the Community Involvement Information Exchange Can Take Place ....Al A2 AB AA AAI AA2 Ad3 AS ASI AS2 AG Al AS ci C2 C3 C4 cs C6 C7 C8 co Clo cil C2 C13 cl4 cls C16 C7 C18 cig C20 C21 APPENDICES ENVIRONMENTAL NOISE Introduction ee oO History of Noise Evaluators . 92 LEQ/DNL Noise Evaluators .. 93 Noise Contours 94 High-Energy Impulsive Noise 94 Aircraft Noise .. Small Arms Noise .. . 95 Single Event Noise Levels eee Ys High-Energy Impulsive Noise See Oa: Aircraft Noise .. 96 Noise and Vibration Monitoring . Noise Level Reduction Features Conclusion GUIDELINES FOR COMPATIBLE LAND USE 100 LAND USE PLANNING AND CONTROL TECHNIQUES General E 7 Zoning . Easements ‘Transfer of Development Rights (IDR) Land Purchase Building Codes U8 Subdivision Regulations ug Health Codes .. : Disclosure of Noise Levels .cnnstinnneneinennernnneivnie 120 HUD/VA Regulations 126 Land Banking .. 126 Special Tax Treatment Capital Improvement Program (CIP) Development Loan Restrictions Public/Private Leaseback .. Sales Agreement Deeds/Covenants 130 Purchase of Development 130 Eminent Domain 131 Purchase Option .. . 132 Techniques for Dealing with Noise in Land Use Planning 13221 22 41 42 43 44 46 47 48 49 410 LIST OF FIGURES Camp Grayling Maneuver Training Center Area Fort Custer Training Center Area ... Noise Monitoring System Sensor Locations .. Noise Contours for South Camp Small Arms Ranges ... Noise Contours for South Camp Large Weapon Systems ...... Noise Contours for North Camp Range 30 Complex Small ‘Arms Firing Noise Contours for North Camp Range 30 Complex Large ‘Weapon Systems ..... Noise Contours for North Camp Range 40 Complex Large ‘Weapon Systems Noise Contours for Grayling Army Airfield i Future Noise Contours for North Camp Range 30 Compix Large Weapon Systems Noise Contours for Small Arms Ranges, Sette ag: Noise Contours for Explosive Detonations and Other Weapon Systems .. a Clear and Accident Potential Zones for Airfield ... Sample Noise Easement Sample Noise Disclosure North Carolina Residential Property Disclosure Statement Complaint Investigation Report Form. . Noise Data Card for Small Arms Ranges Noise Data Card for Artillery, Armor and Other Range Data Noise Data Card for Explosive Detonations ..... Noise Data Card for Aircraft Operations Noise Data Card for Other Noise Producing Activity . Sample Memoradum of Understanding wivcicmsunesnennenennee 1441d 1d SECTION ONE INTRODUCTION GENERAL. One of the goals of the Department of the Army (DA) is to plan, initiate, and cary out actions and programs designed to minimize adverse impacts upon the quality of the human environment without impacting the Army's mission. In keeping with this goal, the Army established the Environmental Noise Management Program (ENMP) as the framework for the control of noise produced by Army activities since noise has been determined by the United States Congress, as recorded in the Noise Control Act of 1972, to "presents danger to the health and welfare of this Nation's population" (PL 92-574 1972). The primary strategy for noise ‘management is the Installation Environmental Noise Management Plan (IENMP) of which the Installation Compatible Use Zone (ICUZ) program is a portion. HISTORY OF THE NOISE CONTROVERSY. The advent of jet aircraft in the 1950’s resulted in significantly greater noise lovels around commercial airports, which led to an intense outery from the public. This public outcry caused Congress to revise the Federal Aid to Airports Act fo make Federal aid contingent upon implementation of programs to resolve noise problems with surrounding neighborhoods. Subsequently, Congress passed the Noise Control Act of 1972 and the Quiet Communities Act of 1978. Under these laws, airports carried out noise control measures such as: outright purchase of adjoining land; work with local communities to ensure zoning which would permit only compatible uses; development of procedures for including noise information in the consumer disclosure documents provided when real estate is sold; altering run-up procedures and locations; and, changing approach and takeoff patterns. At the present time the Federal Aviation Administration (FAA) has specific requirements for community involvement in all airport planning. The Federal Aid to Airports Act exempted military aircraft, as did portions of the Noise Control Act of 1972. However, the Noise Control Act and the Quiet Communities Act did contain language outlining the responsibilities of Federal agencies in protecting the public from unreasonable noise impacts. Specifically these laws state that: “Federal agencies shall, to the fullest extent consistent with their authority under federal laws administered by thems, carry out the programs within their control in such a ‘manner as to ... promote an environment for all Americans ‘free from noise that jeopardizes their health and welfare.”13 As the consequence of adverse public reaction to military operations, some military installations have closed and others have had limitations placed upon the conduct of operations. One of the best examples of the degradation of mission performance due to urbanization occurred at the Naval Air Station (NAS), Los Alamitos, CA. When originally established during World War Il, this NAS was in a rural area. With the postwar expansion of southern California, Los Alamitos NAS was eventually surrounded with homes and the Navy could no longer routinely fly jet aireraft into this property. Today, the airfield serves the needs of the Califomia Army National Guard (ARNG), which, compared to the Navy, operates relatively few noisy flights. In the Army’s case, as an example, the size of the explosives which were used in Combat Engincer ficld training at Fort Belvoir, VA, was restricted severely which made it necessary to move a portion of the training to a less urbanized area at Fort AP. Hill, VA and finally move the schoo! to Fort Leonard Wood, MO. In another case, limitations were placed upon the types of weapons, which could be fired at Fort Dix, NJ, as well as the times the weapons could be fired (U.S. Army undated), In both of these cases, the limitations upon operational activities degraded the installations’ capability to support essential training and the training missions of these installations were moved to other installations. More recently the Senior Readiness Oversight Council, chaired by the Under Secretary of Defense concluded that: ‘* "Encroachment on DOD ranges and training areas is a serious and growing challenge to the readiness of U.S. Armed Forces." ‘© "Encroachment issues are many, are complex, and involve multiple federal, state and local agencies, as weil as Congress and the public." ‘© "Further, the impact of encroachment is broad affecting our ability to execute realistic air, ground and naval training across the nation, as well as beyond its borders." * "The Department of Defense needs a comprehensive and coordinated approach to addressing encroachment issues. The approach should include an outreach strategy to increase public awareness of how essential, realistic and effective training it to the readiness of the U.S. Armed Forces." CONTENDING WITH THE THREAT. ‘The consequences of ignoring the conflicts between noise generated on military installations and the desires of the civilian community regarding use of the land surrounding these installations can be grave. If the Army fails to respond to theStage 2: Identify noise- and accident potential-impacted areas. During this stage noise contours are overlaid on maps to determine areas that are currently or potentially impacted. Stage 3: Identify existing and potential incompatible land uses. Using the overlays, current and future land uses are examined to identify those Jand areas that are or will be incompatible. This stage requires coordination between the installation and the civilian communities. Stage 4: Identify alternative actions to mitigate/minimize noise impacts. ‘The purpose of this stage is to generate a wide range of altemative actions that could be taken by cither the installation or the community to minimize noise impacts, Like stage 3, this also requires coordination between the installation and the civilian communities. Stage 5: Evaluate alternative actions. During this stage the impact of the various alternatives identified must be evaluated. Stage 6: Develop agreements with local communities and agencies. At this stage good-faith efforts will be made to negotiate agreements with local ‘communities and agencies that affect or will be affected by the commitments made as a result of the IENMP. Stage 7: Submit agreements for review by decision-makers. ‘All agreements must be ratified by commanders and the elected bodies or decision-makers within the affected civilian communities. Stage 8: Publish final IENMP and implement agreements. The final IENMP must be made available to the public and contain all elements of the process, including agreements reached. It is at this stage that agreements should begin to be implemented. Expectations regarding timing and sequencing of implementing actions should be defined, so that disagreements do not arise. Stage 9: Review and update IENMP. Procedures should be established to monitor the agreements and to determine the effectiveness of actions taken. Agreements, like physical facilities, need ‘occasional maintenance. Established procedures for monitoring the agreement are essential to ensure that problems are identified and solved in a cooperative manner.A 22 221 SECTION TWO. MICHIGAN ARMY NATIONAL GUARD & THE COMMUNITY GENERAL. This section examines the relationships between the Michigan Army National Guard and the civilian communities surrounding Camp Grayling MTC and Fort Custer Training Center in terms of the histories, populations, activities and needs of what are, in reality, parts of an integrated system rather than separate, independent entities, Since there are few areas in which the National Guard and the communities do not depend upon each other, it is important to understand the nature of the mutual interests and concerns which form the bases for both present and future civilian and military cooperative efforts. MICHIGAN ARMY NATIONAL GUARD. The Michigan Army and Air Guard have two primary missions. The first is to execute the duties laid down by various State of Michigan statutes and the Governor. Included in this mission is the administration of several veteran's programs, primary of which is administering two veterans’ homes with a resident population which can reach 1,000 veterans. ‘The Guards second mission is better known. ‘The Organized Militias traditional mission is military preparedness to assist both state and federal anthorities is expressed in the two basic missions of the Michigan National Guard. ‘The Michigan National Guard's state mission is to protect the lives and property of Michigan citizens during times of natural disaster and to preserve the peace, order, and public safety at the direction of the Governor. ‘The Michigan National Guard's federal military mission is to assist the federal government in defending the sovereign interests of the United States when they are threatened or violated. CAMP GRAYLING MTC. 2.2.1.1 PHYSICAL DESCRIPTION. Camp Grayling MTC is located in Crawford, Kalkaska, and Otsego Counties in the north central portion of the lower peninsula of Michigan (Figure 2-1). The Camp is divided into two areas, North and South Camp. Camp Grayling MTC consists of 146,600 acres of which 143,000 are available for taining. The terrain is level, with some low rolling hills. Vegetation varies from ‘open spaces to sparsely wooded to densely wooded areas. The soil is sandy, and there are several small lakes.2.2.1.2 HISTORY. Camp Grayling MTC is the largest state-owned and operated field-training site in the United States. Camp Grayling MTC and the City of Grayling gets their name from small fish called Grayling, a trout-like fish that was prominent in the erisp, clean waters of the AuSable and Manistee Rivers, both with headwaters near Camp Grayling MTC. The City of Grayling is located adjacent to the installation, ‘The original tract of land for Camp Grayling MTC was donated to the State of Michigan by a local lumber baron, Mr. Rasmus Hanson, in 1913. Troops first trained on the new military installation in 1914, and have been training here ever ce. 2.2.1.3 MISSION. Camp Grayling MTC is the Maneuver ‘Training Center (MIC) for National Guard soldiers as well as Reserve, Active components of the U.S. military, along with components of military units from other countries. 2.2.1.4 TRAINING ACTIVITIES. Camp Grayling MTC is divided into two camps. North Camp is primarily used for autllery and armor training. It also contains the air-(o-ground range. ‘South Camp is primarily used for small arms and mortar training. The cantonment area is contained within South Camp. Grayling Army Airfield is located north of South Camp and west of North Camp, just on the outskirts of the City of Grayling. 2.2.2. FORT CUSTER TRAINING CENTER. 2.2.2.1 PHYSICAL DESCRIPTION. Fort Custer ‘Training Center is located in Kalamazoo and Calhoun Counties, in the southwestern portion of the lower peninsula of Michigan (Figure 2-2). The nearest metropolitan center, Battle Creek, with a population of 53,540, lies about 1/2 mile to the northeast. Fort Custer consists of 7,569.52 acres, of which 4,968.01 are available for training. “The terrain is low and rolling with some marsh areas. Soil type is clay-loam. Vegetation varies from open spaces to sparsely wooded areas.2.2.2.2 HISTORY. (The Wolverine Guard, 2000) Camp Custer was built in 1917 for military training during World War I. Named after Civil War cavalry officer General George Armstrong Custer, more than 100,000 troops trained or demobilized there during the war. In the years following World War I, the camp was used to train the Officer Reserve Corps and the Civilian Conservation Corps. On August 17, 1940, Camp Custer was designated Fort Custer and became a permanent military training base. During World War II, more than 300,000 troops trained there including the famed S'” Infantry Division (also known as the "Red Diamond Division") which left for combat in Normandy, France, June 1944, Fort Custer also served as a prisoner of war camp for 5,000 German soldiers until 1945. Fort Custer became home to units of the Navy Reserve in 1949 and to a Marine Corps Reserve Tactical Bridge Company in 1952. Also, during that time, approximately 17,000 troops were trained for the Korean War. Beginning in 1959, Fort Custer served for a decade as part of the North American Air Defense system. The Michigan Department of Military Affairs assumed control of Fort Custer in 1968. The federally-owned, state-operated training facility is used today for training by the Michigan National Guard and other branches of the Armed Forces primarily from Ohio, Illinois and Indiana. Many Reserve Officer Training Corps (ROTC) students from colleges in Michigan, Ohio, Iinois and Indiana also train at this facility, as well as the Federal Bureau of Investigation (FBI), the Michigan State Police, various law enforcement agencies and the Lansing Community College Truck Driver Training School. 2.2.2.3 MISSION, ‘The mission of the Fort Custer Training Center is to provide training areas and facilities for National Guard and other branches of the Armed Forces. 2.2.2.4 TRAINING ACTIVITIES. 23 ‘The training facilities at FCTC include small arms ranges, helicopter landing zones and a helipad. There are also areas used for bivouac and maneuver. ‘THE CIVILIAN COMMUNITY. Amny National Guard facilities do not have the economic impact on the surrounding communities that active military installation have because of the small number of permanently stationed personnel. Even though the population of these facilities increases dramatically during training periods, most of the wages eared by these soldiers are not spent in the local community. uTABLE 2.3. INCOME FOR CAMP GRAYLING MTC AREA. Median Household Percent of Persons Income ($) Below Poverty Level 1989 1993 1989 1993 Michigan 31,020 32,533, 13.1 15.0 Crawford = 21,497 23,713 14.6 176 Kalkaska 22,078 25,709 14.2 15.6 Otsego 26,356 30,630 95 10.2 2.3.1.2 ECONOMICS. Camp Grayling MTC has an economic impact on the surrounding communities. Personnel permanently stationed at the camp live and/or shop in these communities. The Camp provides nearly 200 full-time jobs, and feeds approximately $20 million annually into tae local economy. 23.2 FORT CUSTER TRAINING CENTER COMMUNITY. Fort Custer Training Center is located in Calhoun and Kalamazoo Counties. The neighboring towns and cities include Augusta, Battle Creek, and Galesburg. Kalamazoo is approximately 15 kilometers west of FCTC. 2.3.2.1 POPULATION AND EMPLOYMENT. {As indicated in Table 2.4, the area around Fort Custer Training Center has shown sporadic changes in population since 1980. TABLE 2.4. POPULATION SUMMARY FOR FORT CUSTER TRAINING CENTER, AREA. Population Percent Change 1980 1990 1997 80-90 90-97 Michigan 9,262,044 9,295,287 9,773,892 0.4 5.1 Calhoun, 141,579 135,982 141,821 4.0 43 Kalamazoo 212,378 223,411 229,192 5.2 2.6 ‘Table 2.5 shows the size of the civilian labor force and the percent unemployment in the Fort Custer Training Center Area. The percent unemployment in this area is less than the state. B2.4.2 FORT CUSTER TRAINING CENTER. 2.5 The programs and activities at FCTC include: Lansing Community College truck driving school. Boy Scouts Police agencies use of firing ranges Hunters SUMMARY. The Michigan Anny National Guard Installation Environmental Noise ‘Management Plan has been developed for the specific purpose of aiding military and civilian officials and planners in the creation of land use plans and policies that promote compatibility between the needs of the civilian sector and the National Guard's mission requirements. The concept, program and methodology behind the program are discussed in the sections that follow. 1535 facility, is agricultural, with scattered residential. The area to the north and west is controlled by the Federal and State governments, and is used as a recreational area (west), and veterans facility and cemetery (north). ‘The City of Battle Creek Comprehensive Plan (Battle Creek 1997) shows the future land uses along the easter boundary of FCTC as predominately industrial, with some residential. A special use area around Hart's Lake has been established to preserve this environmentally sensitive scenic area. OTHER PLANNING TOOLS. ‘The installation cannot consider itself isolated, nor can planners ignore the surrounding communities. Evolving Army missions, equipment, and operations cause annoyances to those communities. Disregarding them can ultimately lead to ‘unwanted limitations on future installation operation, such as changes in flight patterns, range uses, or levels of military activities that adversely affect private property. The Joint Land Use Study (JLUS) can remedy some of these problems (US. Army 1996a). The JLUS program can assist the local communities and counties with implementing the Installation Environmental Noise Management Plan (IENMP).. ‘The JLUS program provides technical and financial assistance to the local x jurisdictions to develop proper land use and development regulations, which are ‘consistent with the noise, accident potential, and safety impacts from the MIARNG training and operations. ‘The JLUS (U.S. Army 19942) is a civilian community response to the IENMP program objectives. itis a collaborative, compatible use planning effort involving the military installation and adjacent local governments working together. The ILUS provides land use and development control recommendations that support and encourage compatible development near military installations. Its purpose is to protect the public health, safety and welfare by guiding the long-term development decisions made by neighboring governmental entities to ensure that the installation mission is not compromised by incompatible development, The JLUS program is managed by the Department of Defense Office of Economic ‘Adjustment (OEA) (DODD 1983). OBA may provide technical and financial ‘grant assistance directly to state and local governments to help local jurisdictions understand and development controls to resolve perceived community - land development incompatibilities and make informed land use and development decisions, The scope of the program is divided into three major tasks: Impact analysis to provide an in-depth review of existing and proposed land development pattems, transportation and utility improvements, installation mission activities (particularly noise; existing and proposed routes; and38 3.9 To achieve the foregoing DA goals, the policy of the Michigan Amy National Guard (MIARNG), which applies to all subordinate organizations, agencies and activities, is to: ‘© Comply with Army Regulation 200-1 (U.S. Army 1997), and all applicable federal, state, and local environmental quality laws, regulations, and other requirements. ¢ Plan, initiate, and carry out all actions and programs in a manner that will preserve, protect, restore, or mitigate the degradation of human and natural environments. ‘© Ensure historic, archeological, and cultural sites, structures, and other objects under MIARNG's jurisdiction will be preserved, restored, and maintained for the benefit of future generations, © Eliminate or control environmental degradation resulting from training, operations, maintenance, repair, or construction of real property facilities, ‘owned, leased, or supported by the MIARNG. LAND USE COMPATIBILITY. With an overview of the MIARNG’s land, airspace and facility requirements, the rationale behind the Army’s efforts, through the Installation Environmental Noise Management Plan and the ICUZ program, to achieve compatibility between military operations and private property interests should be more apparent. The sucoessfil accomplishment of the Army training mission depends upon the positive involvement of the civilian communities in all clements of the IENMP including land use planning and control. The land owned and leased by the MIARNG is needed to conduct training and other mission essential operations. There is a significant amount of interest by command officials in achieving civilian community cooperation in regulating use of land at a number of locations adjacent to the perimeter of the military reservations. ENVIRONMENTAL JUSTICE. Environmental Justice (BI) is defined by the U.S. Environmental Protection Agency as "fair treatment of all races, cultures, and incomes, regarding the development of environmental laws, regulations, and policies." Over the last decade, attention to the impact of environmental pollution on particular segments of our society has been growing. Concem that minority populations and/or low- income populations bear a disproportionate amount of adverse health and environmental effects, led President Clinton to issue Executive Order 12898 in 19SECTION FOUR THE INSTALLATION ENVIRONMENTAL NOISE MANAGEMENT PLAN 4a 42 INTRODUCTION. In the past, the emphasis of the Army’s Environmental Noise Program has been the Installation Compatible Use Zone (ICUZ) program. The goal of the ICUZ program is to maintain land use compatibility with the installation’s noise environment, At many installations, the land uses around the facility already are not compatible with the noise environment. To reduce the potential for conflict between the installation and surrounding communities, the Army has developed the Installation Environmental Noise ‘Management Plan. In addition to the ICUZ, the plan includes education of both, installation personnel and surrounding community residents, management of noise complaints, mitigation of the noise and vibration, and noise abatement procedures. However, all of the steps and progress toward the reduction of the physical measurable quantities of noise will not reduce the public's pereeption of the noise generated on the Michigan Army National Guard (MIARNG) facilities unless communication channels are established between the command at these facilities and their neighbors. One of the most important outcomes of the Environmental ‘Noise Management Program is the development of a capability for these parties to talk and to begin to understand each other. Open dialogue, consensus decision making, and teamwork in seeking creative solutions can build the beginnings of trust and respect among the parties and provide a basis for institutionalizing the process so that the parties continue to work together and develop a practical and rational decision-making capability (Eldred 1998). EDUCATION/AWARENESS. An important element of the Installation Environmental Noise Management Plan is education. This includes the education of both the noise producers and the noise receivers. ‘The noise producers must be aware of all MIARNG policies and regulations dealing with environmental noise, These include the locations of no-fly areas, noise sensitive areas, and safety fans, The education will include the potential for adverse consequences to the MIARNG’s ability to perform and maintain its mission due to violations of the policies and regulations. The noise receivers will be made aware of the MIARNG’s mission and its by- products, including noise, through newspaper articles, community displays, public presentations, and other information released to the community. ‘These will address the concems of the community. 21to the problem once the cause of the concem is discovered. The MIARNG will also be responsive to the community by telling them, for example, why they must perform the operation. The public’s perception of the MIARNG is their reality. A successful noise complaint management procedure will assist the MIARNG in aveiding community action against its activities. Like the other elements of the Installation Environmental Noise Management Plan, this procedure will be proactive. Its purposes are to reduce the potential of noise complaints by keeping the publie informed about what is going to happen and to satisfy the complainants so that noise complaints do not escalate into political actions, ‘The potential of noise complaints will be reduced by providing the news media with press releases when unusual operations ate scheduled or when normal operations are scheduled to resume after a period of inactivity. The press release will include a telephone number that the community can use to receive additional information or complain about the noise. The news media will be monitored to make sure the information is being released to the community in a timely manner. ‘The MIARNG will respond to all complaints in a timely and polite fashion to reduce the potential of the complainants organizing into citizen action groups, ‘These groups can address the complaint to higher levels of command and government. When the situation becomes political, the installation’s mission can be impaired by unnecessary operational restrictions and resources spent reacting to political pressures, both local and Congressional. ‘A noise complaint procedure is required by Army Regulation (AR) 200-1 (U.S. Anny 1997) to log and investigate all complaints. An effective procedure will enable the MIARNG to maintain 2 good relationship with the surrounding ‘communities. The minimum requirements of the complaint procedure are discussed below. © A log is maintained of all noise complaints, ‘The log will contain the complaint, ocation, date, time, and cause of complaint. The complaint log will help in isolating habitual complainers, will show the effectiveness of predictions, and will identify the types and times of operations that are most offensive. © Complaints are investigated without delay. By investigating complaints immediately, it may be possible to delay the cause of the complaint until noise propagation conditions improve. This action will reduce the risk of additional complaints and will show the complainants that the MIARNG is concemed about their health and welfare. © The complainant is aware of the insiallation’s mission and that every effort will be made to correct the problem, mission permitting. MIARNG representatives should visit the complainant. If feasible, this visit should occur during a time period when the operation that caused the complaint is being 2BFigure 4-1 Noise Monitoring System Sensor Locations 3K Monitoring System Locations [7] Camp Grayling 2545.1 are under consideration. This includes a positive and continuous effort designed to: © Provide information, criteria and guidelines to Federal, state, regional and local planning bodies, civic associations and similar groups. © Inform such groups of the requirements of the operational activity, noise exposure, aircraft accident potential and ICUZ plans. © Describe the noise reduction measures, which ate being or could be used, © Ensure that all reasonable, economical and practical measures are taken to reduce or control the impzet of noise-producing or hazardous activities so as to minimize the exposure of populated areas. This must be done without jeopardizing the safety or effectiveness of military operations. The ICUZ program considers the land areas, with noise-sensitive land uses, that are exposed to generally unacceptable noise levels and aircraft accident potential. ‘These areas include, Noise Zones III (NZ Il), Il (NZ Il) and I (NZ), which are projected using computer models (See Appendix A). Noise sensitive land uses include, but are not limited to, residences, schools, medical facilities, and churches, NOISE ZONES. 45.1.1 DESCRIPTION. © NOISE ZONE UL, NZ Ill consists of the area around the source of the noise in which the day-night sound level (DNL) is greater than 75 decibels, A- weighted (dBA) for aircraft, vehicle, and small arms range noise, and greater than 70 decibels, C-weighted (dBC) for noise from weapon systems larger than 20-mm. The noise level within NZ Ill is considered so severe that noise sensitive land uses should not be considered therein © NOISE ZONE Il. NZ. Ii consists of an area where the day-night sound level is between 65 and 75 dBA or 62 and 70 dBC. Exposure to noise within this area is considered significant and use of land within NZ TI should normally be limited to activities such as industrial, manufacturing, transportation and resource production. However, if the community determines that land in NZ IL areas must be used for residential purposes, then noise level reduction (NLR) features should be incorporated into the design and construction of the buildings. A discussion of NLR features is included in Appendix A. © NOISE ZONE I. NZ includes all arcas around a noise source in which the day-night sound level is less than 65 dBA or less than 62 dBC. This area is usually suitable for all types of land use activities. a(zone TI) noise zone, The LUPZ provides the facilities with a better means to predict possible complaints, and meet the public's demand for a better assessment of the noise environment that will exist during periods of increased training, ‘The LUPZ, which extends outward from noise zone II, is five decibels wide. This corresponds to a three-fold increase in the number of rounds fired or aircraft overflights from the average number. ‘The following discussion shows the rational for using the Land Use Planning Zone as.a planning tool for Camp Grayling MTC and Fort Custer. © USE OF LAND USE PLANNING ZONE FOR LAND USE PLANNING. ‘The Department of Defense (DOD) has a long-standing policy (U.S. Army 1964) to assess environmental noise around military airfields using the average busy day. This policy predated the U.S. Environmental Protection Agency's (BPA) 1974 (EPA 1974) recommendation that Federal agencies use the annual average to assess the effect of noise on the health and welfare of citizens ‘Amny policy, which was written after the EPA's 1974 recommendation, incorporated the annual average. Nevertheless, litigation and the requirement to respond to public comments under the National Environmental Policy Act (PL 91-190 1970) have ied to the Army supplementing the annual average with busy day analyses. Based on review of these legal precedents, recomendations are made for the use of both measures, each with a different purpose, Scientific evidence in support of either the annual average or the LUPZ is limited, because most social surveys are from communities experiencing about the same noise exposure from one day to the next. Nevertheless, the few studies from communities experiencing large day-to-day differences underscore the importance of considering the highest exposure. Fields and Powell (Fields, ct.al. 1987) demonstrated that naive subjects (people who are not accustomed to the noise) make orderly judgments of the annoyance of daily exposures to helicopters (1 to 32 flights per day). Fidell et.al. (1985) showed that naive subjects made orderly judgments of the annoyance of the past week along with the annoyance of the past year. Two other relevant findings from Fidell et. are (1) that annoyance continues to accumulate as the number of continuous days of aircraft noise exposure inereases, and (2) it takes longer for people to forget they are annoyed after levels are lowered than it takes for them to become annoyed when levels are increased. Webb and Warren (Webb, et.al, 1967) first demonstrated this asymmetry in memory with explosive noise in 1967. ‘The subjects were English villagers ‘who, on Mondays and Tuesdays, were subjected to 24 daily explosions at a 29understanding of the installation's mission and purpose. Thus, informing the community of the installation's existence reduces citizen concems and misunderstandings related to noise from unknown installation activities. Given the threat to the MIARNG's training facilities from the process of urbanization, action by both county and municipal authorities is essential if the jurisdictions should adopt ordinances that will promote land use, including Noise Level Reduction (NLR) features in new noise sensitive buildings, that are compatible with the noise produced at these facilities. Disclosure of the existence of these facilities, and noise levels from training operations, should be mandatory for any property located within noise zones II and III, ZOI or LUPZ. Optimally, for any new residential development, or transfer of existing residents, ordinances should be in place to ensure purchasers are aware of the noise environment from the neighboring MIARNG training facilities. The following give suggestions on how this could be accomplished. New Residential Development - Some jurisdictions have recognized that certain types of land use ate not always compatible, In response to this, their land use ordinances include the establishment of agricultural easements. These easements protect existing agricultural lands from new residential development owners objecting to the nuisances caused by farming activities. They have also developed similar easements for areas with existing extractive land use. A similar easement could be applicable to the noise generated by the MIARNG training facilities and applied to property contained within the land use disclosure buffer. A proposed noise easement is contained in Appendix C. ‘Transfer of Residential Property - Many states have disclosure statements that are required when residential property is transferred. Nuisances to land uses, such as noise, must be included in the disclosure. A proposed noise disclosure is contained in Appendix C. An example of North Carolina's Property Disclosure is also included in Appendix C. A similar disclosure statement could be applied in the jurisdictions surrounding the MIARNG training facilities. New Subdivisions - Another means of disclosure that could be used, to ensure that purchasers of homes in new subdivisions are aware of the MIARNG training facilities, is public offering statement for new subdivisions. An example is Minnesota's Rule Chapter 2810, Section 9930, which defines the format necessary for the Public Offering Statement for new subdivisions. Item 8(d) requires the developer to "list all existing or proposed unusual conditions relating to the location of the subdivision and to noise, safety or other nuisances which affect or might affect the subdivision." Local jurisdictions should make sure that new subdivisions disclose that they are located within these land use disclosure buffers. 3aFigure 4-2 Noise Contours for South Camp Small Arms Ranges LEGEND gy 60-65 Luz 65-75 Zone Il { 900 900 1800 Meters Hl >75 Zone ill le {_] Camp Grayling 33NORTH CAMP. Range 30 Complex. The noise contours for the noise from smell arms firing at the Range 30 Complex are shown in Figure 4-4. ‘The noise zones If and If, and the land use planning zone do not extend beyond the camp boundary. The land contained within these zones is used for training, which is compatible with the noise environment. ‘The noise contours for the noise from large weapons systems firing at the Range 30 Complex are shown in Figure 4-5. The noise zones II and III, and the land use planning zone do not extend beyond the camp boundary. ‘The land contained within these zones is used for training, which is compatible with the noise environment, Range 40 Complex. The noise contours for the noise from large weapons systems firing at the Range 40 Complex are shown in Figure 4-6. ‘The incompatible (zone II1) noise zone does not extend beyond the camp boundary. ‘The land contained within this zone is used for training, which is compatible with the noise environment, The normally incompatible (zone 11) noise zone and the land use planning zone % extend beyond the camp boundary and into several inholdings. The residential land uses in these areas are incompatible with the noise environment. Air-to-Ground Range. ‘The noise contours for aircraft activities on the air-to-ground range are shown in Figure 4-7. ‘The noise zones I and III do not extend beyond the camp boundary. The land within these zones is used for training, which is compatible with the noise environment. The land use planning zone extends beyond the northern camp boundary. GRAYLING ARMY AIRFIELD. The noise contours for Grayling Army Airfield are shown in Figure 4-8. The incompatible (zone II) noise zone extends beyond the southeast airfield boundary along the axis of the runway 14/32 to approximately Michigan Route 72. The off- camp land uses in this area are predominately commercial, These land uses are generally compatible with the noise environment if 30 decibels of noise level reduction is included in the structure. The land within this zone on Camp Grayling MIC is used for aireraft operations, which are compatible with the noise environment. 35Figure 4-5 Noise Contours for North Camp Range 30 Complex Large Weapon Systems LEGEND (ll 67-62 LUPZ + 62-70 Zone Il 7001400 Meters g [] Camp Grayling 37Figure 4-7 Noise Contours for Grayling Army Airfield LEGEND, (ey 60-65 LuPZ [7265-75 Zone it (GBI >75 Zone ti (_] Camp GraylingFigure 4-8 Future Noise Contours for North Camp Range 30 Complex Large Weapon Systems 1000 _2000 Meters N otk g LEGEND [ame 57-62 LUPZ (J Camp Grayling 4Figure 4-9 Noise Contours for Small Arms Ranges LEGEND (2) 60-65 LuPZ 500, 500 1000 Meters [2 >75 Zone in [£1 68-75 Zone I [] Fete {1} County Boundary 43TABLE 4.2. PREDICTED LEVELS FOR 4 POUNDS OF TNT. Distance, Predicted Level, dBP ‘meters Negative! Base” Focus? 300 129 134 138 1,000 120 127 131 1,500 us 123 127 2,000 112 120 125 2,500 109 118 122 3,000, 107 116 121 4,000 103 113, 118, 5,000 100 110 16 } ‘These levels are most likely to occur on windy, sunny days with cumulus clouds during midday hours. ? These levels are most likely to occur on fall and winter days, with low winds and clouds during daytime hours, > These levels are most likely to occur on fall and winter days, with low stable clouds and very low winds (less than 2 meters per second) during nighttime hours to 2 hours after sunrise. Helicopters. The helipad at FCTC is located in the northeast comer of training area 1. There are landing zones in training area 3. The helipad and landing zones are used by AH-1 and UH-60 helicopters. Because of the small number of operations at these facilities, the noise zones IIT and I, and the land use planning zone do not extend beyond the helipad or landing zones, Even though the contours do not extend beyond the helipad and landing zones, individual helicopter overflights could cause annoyance. The distance from the ground projection of the flight track for several altitudes above ground level (AGL) and maximum noise levels are given in Table 4.3 for the AH-I and Table 4.4 for the UH-60, The percentage of the exposed population that would consider themselves highly annoyed is also included in the Tables. A-10 Overflights. ‘The FCTC is overflown by Air National Guard A-10 aircraft from the neighboring W.. Kellogg Regional Airfield. The distance from the ground projection of the flight track for several altitudes above ground level (AGL) and maximum noise levels are given in Table 4.5 for this aircraft. The percentage of the exposed 454.5.4.2 FUTURE NOISE ENVIRONMENT. The noise environment from the small arms ranges and explosive detonations is not expected fo change in the future. The noise environment from the helicopter activities will decrease when the noisy AH-1s are replaced by the quieter AH-64s in the future. 4.5.4.3 EFFECTS ON SURROUNDING COMMUNITIES. ‘The noise environment from Fort Custer Training Center has a minimal impact on the residential and recreational areas around the facility. The noise from individual events, such as explosive detonations, A-10 aircraft overflights, and helicopter operations could cause some of the users of these areas to be annoyed and may lead to noise complaints, 45.4.4 ZONE OF INFLUENCE, 455 A 1.6 kilometer (1 mile) wide zone of influence should be established around Fort Custer Training Center. The communities within this zone should disclose, to existing and potential landowners, the existence of the center, its activities and the by-products, including noise, of these activities. AVIATION SAFETY. In addition to noise concems, planning is also concerned with two other land use determinants; ie., (a) accident potential and (b) hazards to air navigation, for example, erection of structures that protrude into the airspace or release of substances into the air which can impair visibility. Officials in the civilian obstruction height criteria. It is essential that civilian officials re this off-post land to provide for the safety of both military and ci Accident potential, as discussed here, is in terms of where most accidents have occurred in the past at military airfields (U.S. Army 1981). The results of this approach do not produce accident probability statistics since the question of probability involves too many variables for an accurate prediction model to be developed. Rather, the analysis of military aircraft accident history focused on determining where, within the airfield environs, an accident is likely to take place and how large an impact area was likely to result from any single accident. To this end, an expanded Clear Zone and two Accident Potential Zones have been designated at both ends of military runways. Compatible land uses for these zones are listed in Appendix B. a© OBSTRUCTIONS TO AIR NAVIGATION. Construction of towers within the MIARNG aircraft training area and flight corridors directly affects aircraft procedures and indirectly impacts upon the local community. Towers present an air navigation hazard that must be avoided by aircraft for safety reasons. Improper location of tower sites may result in change of flight procedures such as rerouting air corridors and routes, alteration of departure/arrival directions and traffic pattems, or closure of remote landing sites. ‘These alterations could result in an increased noise impact upon the local community. 4.5.5.2 GRAYLING ARMY AIRFIELD. 45.6 ‘The runways at Graying Army Airfield are Class A. The Clear and Accident Potential Zones for the runways are shown in Figure 4-11. These zones extend beyond the airfield boundary. ‘The compatible and incompatible land uses in these zones are listed in Appendix B, Table B-1. RANGE SAFETY. Firing ranges should be located away from populated areas and buffered to prevent unacceptable noise levels, hazards from ricocheting projectiles, and exposure to laser beams from devices such as weapon sights, range finders, or laser target designators. The character of the land needed depends, to a large extent, upon the ‘weapons systems, which will be used on the range. For example, tank and artillery firing ranges need large areas and varied terrain, which permit units to maneuver, and, ideally, fire into a common impact area. Ranges used for aerial weapons such as bombs, rockets, guided missiles, and cannons must process the same characteristics required of ranges used by ground-fired weapons. In addition, aerial weapon access to the range must be over routes, which will not expose the general population to hazards from live ordnance carried on the aircraft. On the other hand, ranges used for firing small arms require relatively small areas and do not necessarily require a common impact area. Safety is an important consideration in the overall planning of firing range facilities. Firing ranges have specific limitations on the type of weapons, which can be fired, and the direction in which the weapons can be fired, to ensure that rounds or projectiles will not inadvertently endanger people in adjacent areas. Precautions taken to prevent individuals from entering from entering danger areas include road barriers, range guards, and waming signs and flags. The boundaries ofall firing ranges adjacent to roads or other points of entry, and along the outer limits of ricochet areas are posted with permanent signs. These signs warn of the dangers connected with the firing range areas and the unauthorized handling of unexploded ammunition or duds. 49Figure 4-11 Clear and Accident Potential Zones for Grayling Army Airfield LEGEND [1] Camp Grayling 51412 473 ‘The maximum ground-borme vibration level recommended by the U.S. Bureau of Mines (Bureau of Mines 1980a) to prevent threshold damage is 0.5 inches per second, The threshold level at which minor structural damage may begin to occur in 0.01 percent of structures is set at 2.0 inches per second, Using the models developed in the above study, the maximum predicted ground vibration at 12.5 kilometers for a 105-mm howitzer round detonating in the impact area is 0.00042 inches per second. For a 500-pound bomb, the maximum ground vibration is 0.0033 inches per second. The 0.5 inches per second ground vibration threshold is exceeded at distances less than 350 meters from the 500-pound bomb impact point. AIRBORNE VIBRATION. Airbome vibration is the dominant cause of vibration of structures off the installation. Most of the studies of airbome vibration and the damage guidelines derived from these studies used sonie booms as the source. The vibration from arfillery and tank main gun firing is similar to the vibration from sonic booms. Structural shaking and window rattling caused by airborne vibration can annoy the occupants and cause possible structural damage. The vibration levels and corresponding unweighted-peak-sound-pressure levels for annoyance and damage (Siskind 1989) are listed in Table 4.7. TABLE 4.7. AIRBORNE VIBRATION LEVELS. Vibration Peak Sound Level Level Response (ips) (dBP) Concer by Homeowners about Structural Rattling and Possible Damage Ol 120 Glass and Plaster Cracks, Worst Case’ 05 134 Structural Damage to Lightweight Super- structure >2.0 >175 Damage to Concrete >4.0 >185 ips inches per second * Poorly fitted loose window glass and stressed plaster walls. VIBRATION DAMAGE GUIDELINES. Structures exposed to high energy-impulsive noise can crack for a variety of reasons that have nothing to do with the vibration and noise environment. For 33AT Fatigue in ductile materials, such as most metals and woods, requires approximately one million events to reduce the strength of the material by 50 percent. ‘* Normal preventive maintenance on a structure will negate the effect of fatigue. ‘The most common form of structural damage from vibration caused by artillery firing, tank-main gun firing and explosive detonations is window breakage, There have been several studies of the probability of window breakage. The results of one study (FAA 1976) are summarized in Table 4-8. ‘TABLE 4.8. PROBABILITY OF WINDOW BREAKAGE. Pressure, Sound Pressure Probability of pounds per Level, BP. Breakage, panes per square foot million pane events" 1 128 0.28 10 148 5,000 100 168 380,000 “Number of window panes per million window panes broken for cach event. ‘The threshold level used to evaluate window damage claims against the Amy (US. Amy 1994a) is 136.5 dBP. This level is more conservative than the 140 ABP used by the U.S. Bureau of Mines (Bureau of Mines 1980b). VIBRATION STUDIES. There have been many studies of the effects of ground-borme and airbome vibration on structures. Most of these studies used sonic booms or mining and quarrying operations as the vibration source. The findings of five studies performed at Army installations are summarized in the following paragraphs. ‘* Aberdeen Proving Ground, Maryland An extensive study of vibration in the homes of eight concerned residents caused by impulsive sound pressure was performed by USACHPPM (U.S. Army 1994b). The study showed that the homes were exposed to levels well below the threshold levels for damage. A frame building close to the firing points was used as a control site, Even though this building was exposed to levels several times higher than the threshold level, no damage occurred. During the extreme cold and wet 1994 winter, USACHPPM personnel monitored the noise and vibration at eight homes on the Eastem Shore of the Chesapeake Bay, Maryland, and at a building near the firing points at 35between 4,350 and 8,100 meters (14,300 and 26,600 feet) from the explosion. ‘The vibration measurements are summarized in Table 4.10. TABLE 4.10. SUMMARY OF FORT CARSON VIBRATION MEASUREMENTS. Distance Vibration, inches per second Meters Vertical Radial Transverse 4,350 0.083, 0.171 0.046 4,600 0.075 0.110 0.034 7,900 0.007 0.0036 0.0012 8,100 0.0056 0.0028 0.0008 Analyses of the measurements revealed that the vibration was caused by the airborne pressure wave passing over the ground motion sensors. The ground- bome vibration levels were below the threshold level of the instrumentation, All of the measurements were below the threshold levels for damage. ‘The measured levels at the 7,900 and 8,100 meter sites were approximately ‘equivalent to the vibration levels produced by vehicular traffic at 30 meters. © McAlester Army Ammunition Plant, Oklahoma ‘To provide the data required to answer complaints and damage claims, two studies were performed at McAlester Army Ammunition Plant (Siskind 1989 and White Engineering 1982). These studies included measurements of both the ground-borne and airbome vibrations. The measurements were made of vibrations caused by the detonations of between 100- and 450-pounds of explosive. The studies showed that the maximum velocity for a 300-pound detonation was 0.008 inches per second at a site 2,100 meters (7,000 fect) from the demolition area. At 3,900 meters (12,800 feet), the maximum velocity for 2 450-pound detonation was 0.0005 inches per second. These measurements are many times smaller than the damage threshold level of 0.5 inches per second. The authors of both studies concluded that the measurements were s0 Jow that claims for structural damage caused by ground-borne vibration cannot be considered valid. ‘The Bureau of Mines conducted a third monitoring study at McAlester (Cumerlato 1994), Monitoring took place over a three month period at ten selected residences at distances between 6.1 and 23.9 kilometers (20,000 and 78,400 feet) from the demolition area. Approximately 2,300 detonations were recorded. The study concludes that none of the residences monitored were subjected to unsafe levels of vibration or airborne overpressure, and the structural responses did not exceed threshold damage levels. 37