Chapter 12

Noise and Vibration

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 Chapter 12
Noise and Vibration

This chapter identifies and evaluates noise concerns in the action area, and
analyzes the proposed action’s potential impacts related to noise and
groundborne vibration. Key sources of information used in the preparation of
this chapter include the following.

The Guidelines for the Preparation and Content of the Noise Element of the
General Plan prepared by the California Governor’s Office of Planning and
Research (2003).
Standard noise analysis and reduction methodologies developed by the U.S.
Forest Service (USDA Forest Service 1980), the Federal Transit
Administration (1995), Nelson (1987), Hoover and Keith (1996), and others.

Background
Sound, Acoustics, and Noise
Sound travels through the air as pressure waves caused by some type of
vibration. In general, sound waves travel away from a noise source at ground
level in a hemispherical pattern. The energy contained in a sound wave is spread
over an increasing area as it travels away from the source, so loudness decreases
at greater distances from the noise source. Noise is defined as unwanted,
intrusive, or unpleasant sound.

Sound level meters measure the air pressure fluctuations caused by sound waves,
with separate measurements made for different sound frequency ranges. The
decibel (dB) scale for describing sound uses a logarithmic scale to account for
the large range of audible sound intensities. Most sounds consist of a broad
range of sound frequencies, and several frequency-weighting schemes have been
used to develop composite dB scales that approximate the way the human ear
responds to noise levels. The A-weighted dB scale (dBA) is the most widely
used for environmental noise assessments. Typical A-weighted noise levels for
various types of sound sources are summarized in Table 12-1.

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Table 12-1. Typical A-Weighted Sound Levels

Sound Level
Sound Source Typical Response
(dBA)
Carrier deck jet operation 140 Painfully loud
Limit of amplified speech 130
Jet takeoff (200 feet) 120 Threshold of feeling and pain
Auto horn (3 feet)
Riveting machine 110 Very annoying
Jet takeoff (2,000 feet)
Shout (0.5 foot) 100
New York subway station
Heavy truck (50 feet) 90 Hearing damage (8-hour
Pneumatic drill (50 feet) exposure)
Passenger train (100 feet) 80 Annoying
Helicopter (in flight, 500 feet)
Freight train (50 feet)
Freeway traffic (50 feet) 70 Intrusive
Air conditioning unit (20 feet) 60
Light auto traffic (50 feet)
Normal speech (15 feet) 50 Quiet
Living room 40
Bedroom
Library
Soft whisper (15 feet) 30 Very quiet
Broadcasting studio 20
10 Just audible
0 Threshold of hearing

Noise levels that vary with time are often quantified by two descriptors: the
equivalent sound level (Leq) and the “percentile-exceeded” sound level. Leq
represents the equivalent steady-state sound level, or the steady-state level of
sound that would contain the same acoustic energy as the actual time-varying
sound level measured during a given time period. The percentile-exceeded noise
level is the noise level that is exceeded for the indicated percentage of the
specified period. For example, L10 is the relatively loud noise level exceeded
only 10% of the time during the measurement period, while L90 is the relatively
quiet noise level exceeded 90% of the time. An additional descriptor for time
varying sound levels is the day-night level (Ldn), defined as the energy average of
the A-weighted sound levels occurring during a 24-hour period, with a 10-dBA
“penalty” added to sound levels occurring between 10:00 p.m. and 7:00 a.m.

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The nature of dB scales is such that individual dB ratings for different noise
sources cannot be added directly to give the sound level for the combined noise
source. Instead, the combined noise level produced by multiple noise sources is
calculated using logarithmic summation. For example, if one bulldozer produces
a noise level of 80 dBA, then two bulldozers operating side by side would
generate a combined noise level of 83 dBA, or 3 dBA louder than the single
bulldozer.

People generally perceive a 10-dB increase in a noise source as a doubling of

loudness. Most people cannot detect differences of 1–2 dB between noise levels
of a similar nature (for example, a 1-dB increase in traffic noise compared to
existing traffic noise). However, under ideal listening conditions, some people
can detect differences of 2 or 3 dB, and most people under normal listening
conditions would probably perceive a 5-dB change in sounds of a similar nature.
When a new, intruding sound is of a different nature than the background sound
(for example, a car alarm compared to quiet residential sounds), most people can
detect changes as small as 1 dBA.

When distance is the only factor considered, sound levels from isolated point
sources of noise typically decrease by about 6 dB for every doubling of distance
from the noise source. When the noise source is a continuous line, such as
vehicle traffic on a highway, sound levels decrease by about 3 dB for every
doubling of distance. Noise levels can also be affected by several factors other
than the distance from the noise source. Topographic features and structural
barriers that absorb, reflect, or scatter sound waves can affect the reduction of
noise levels. Atmospheric conditions (wind speed and direction, humidity levels,
and temperatures) and the presence of dense vegetation can also affect the degree
of sound attenuation.

Groundborne Vibration
In addition to generating noise, heavy construction equipment can generate
groundborne vibration. Pile driving and similar activities, because they result in
blows or impacts on the ground surface, produce vibrational waves that radiate
along the surface of the earth and downward into the earth, potentially resulting
in effects that range from annoyance to structural damage. As vibrations travel
outward from the source, they excite the particles of rock and soil through which
they pass and cause them to oscillate by a few ten-thousandths to a few
thousandths of an inch. Differences in subsurface geologic conditions and
distance from the source of vibration will result in different vibration levels
characterized by different frequencies and intensities. In all cases, vibration
amplitudes will decrease with increasing distance. The maximum rate or velocity
of particle movement is the commonly accepted descriptor of the vibration
“strength.” This is referred to as the peak particle velocity (ppv) and is typically
measured in inches per second.

Human response to vibration is difficult to quantify. Vibration can be felt or

heard well below the levels that produce any damage to structures. The duration

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of the event has an effect on human response, as does frequency. Generally, as

the duration and vibration frequency increase, the potential for adverse human
response increases.

Table 12-2 summarizes the average human response to vibration that may be
anticipated when a person is at rest in quiet surroundings. If the person is
engaged in any type of physical activity, vibration tolerance increases
considerably.

It is important to understand that Table 12-2 describes the responses of average

individuals. Individual responses can fall anywhere within the full range of the
human response spectrum. At one extreme are those people who receive some
tangible benefit from the pile driving operation (for example) and probably
would not be disturbed by any level of vibration, as long as it does not damage
their property. At the opposite extreme are people who would be disturbed by
even barely detectable vibration. Individuals at either of these two extremes are
not represented in the summary of average human response presented in Table
12-2 or in the impact analyses presented later in this chapter; both focus on
average or typical responses.

Table 12-2. Human Response to Ground Vibration

Ground Vibration
Response
(ppv, inches/second)
Barely to distinctly perceptible 0.02–0.10
Distinctly perceptible to strongly perceptible 0.10–0.50
Strongly perceptible to mildly unpleasant 0.50–1.00
Mildly unpleasant to distinctly unpleasant 1.00–2.00
Distinctly unpleasant to intolerable 2.00–10.00
Source: Bender 1996.

Affected Environment
Regulatory Framework
Noise Regulations
Noise is regulated at the state and local level.

The State of California requires each local government entity to include a noise
element as part of its general plan. To support appropriate land use planning at
the local level, Title 4 of the California Administrative Code presents guidelines
that identify the noise levels that are compatible with various types of land uses.
The state land use compatibility guidelines are shown in Table 12-3.

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Table 12-3. State Land Use Compatibility Standards for Community Noise Environment

Community Noise Exposure –

Ldn or Community Noise Equivalent Level (CNEL) (db)
Land Use Category 50 55 60 65 70 75 80

Residential – low density single family,

duplex, mobile homes

Residential – multi-family

Transient lodging – motels, hotels

Schools, libraries, churches, hospitals,

nursing homes

Auditoriums, concert halls, amphitheaters

Sports arenas, outdoor spectator sports

Playgrounds, neighborhood parks

Golf courses, riding stables, water

recreation, cemeteries

Office buildings, business commercial

and professional

Industrial, manufacturing, utilities,

agriculture

Normally Acceptable Specified land use is satisfactory, based upon the assumption that any buildings involved are of normal
conventional construction, without any special noise insulation requirements.
Conditionally Acceptable New construction or development should be undertaken only after a detailed analysis of the noise
reduction requirements is made and needed noise insulation features are included in the design.
Conventional construction, but with closed windows and fresh air supply systems or air conditioning
will normally suffice.
Normally Unacceptable New construction or development should generally be discouraged. If new construction or
development does proceed, a detailed analysis of the noise reduction requirements must be made and
needed noise insulation features included in the design.
Clearly Unacceptable New construction or development generally should not be undertaken.

Source: California Governor’s Office of Planning and Research 2003.

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Consistent with the Title 4 guidance summarized in Table 12-3, each city and
county in California develops planning guidelines that are implemented through
its general plan. More specifically, the noise element of the general plan contains
goals and policies to support land use planning that will allow the jurisdiction to
ensure that the Title 4 standards are met for various land uses.

Many local jurisdictions also have noise ordinances and/or municipal code
statutes that are intended to protect citizens from exposure to noise levels that
could result in disturbance or adverse effects. Such ordinances and codes permit
noise limitations to be enforced through legal mechanisms as well as land use
planning. City and county noise ordinances and municipal codes are used
primarily to limit noise from stationary sources. In many cases, they also
regulate noise generated by construction. To assist local jurisdictions in
developing noise ordinances, the State of California has developed a Model
Noise Ordinance that serves as a template.

The requirement that PG&E comply with local noise ordinances is preempted by
the exclusive jurisdiction of the CPUC. However, CPUC requires that PG&E
consult with local agencies and jurisdictions regarding land use matters, and
make every feasible effort to meet local noise standards. If for some reason,
PG&E cannot meet local standards, its project managers and construction leads
are responsible for implementing a variety of BMPs, depending on the nature of
the activity (see PG&E’s Existing Environmental Programs and Practices in
Chapter 2).

Groundborne Vibration Regulations

There are no widely adopted standards for acceptable levels of ground vibration
generated by construction activities. However, the U.S. Department of
Transportation has identified a “vibration damage threshold” of 0.20 inch per
second (0.51 centimeter per second) for fragile buildings and 0.12 inch per
second (0.31 centimeter per second) for extremely fragile historic buildings
(Federal Transit Administration 1995). In addition, the Transportation Research
Board suggests maximum allowable peak particle velocities from pile driving for
various structure types and conditions (Transportation Research Board 1997), as
summarized in Table 12-4 on the following page.

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Table 12-4. Transportation Research Board Building Maximum Structure Vibration Criteria

Limiting Peak Particle Velocity

Structure and Condition
Inches per Second Centimeters per Second

Historic buildings; certain other old buildings 0.5 ~1.3

Residential structures 0.5 ~1.3
New residential structures 1.0 ~2.5
Industrial buildings 2.0 ~5.1
Bridges 2.0 ~5.1
Source: Transportation Research Board 1997.

Some jurisdictions elect to adopt vibration standards, which may be based on the
guidelines summarized in Table 12-4.

As identified above for noise, the requirement that PG&E comply with local
vibration ordinances is preempted by the exclusive jurisdiction of the CPUC,
although CPUC requires compliance to the extent feasible. To that end, PG&E’s
standard BMPs include measures that address some common sources of
vibration.

Existing Conditions
Ambient Noise Environment
The action area is located within portions of San Joaquin, Stanislaus, Merced,
Mariposa, Madera, Fresno, Kings, Tulare, and Kern Counties, and includes a
diversity of land uses ranging from urban to agricultural and rural, as discussed in
Chapter 3 (Land Use and Planning). Based on experience with similar settings,
it is assumed that existing noise levels in the action area’s rural and agricultural
regions are in the range of 40–50 dB Ldn. In developed areas, ambient noise
levels could be as high as 65 dB Ldn. Table 12-5 summarizes typical ambient
noise levels based on population density.

Table 12-5. Population Density and Ambient Noise Levels

Population Density dBA Ldn

Rural 40–50
Suburban
Quiet suburban residential or small town 45–50
Normal suburban residential 50–55

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Population Density dBA Ldn

Urban
Normal urban residential 60
Noisy urban residential 65
Very noisy urban residential 70
Downtown, major metropolis 75–80
Under flight path at major airport, 0.5–1 mile from runway 78–85
Adjoining freeway or near a major airport 80–90
Sources: Cowan 1984, Hoover and Keith 1996.

Noise-Sensitive Land Uses

Noise-sensitive land uses are generally defined as locations where people reside
or where the presence of unwanted sound could adversely affect the use of the
land. Noise-sensitive land uses typically include residences, hospitals, schools,
guest lodging, libraries, and certain types of recreational uses. Noise-sensitive
receptors are found throughout the action area. Receptors such as residential
areas, schools, and hospitals are typically most concentrated in developed areas,
but residences and other sensitive uses also occur in sparser distribution in
rural/agricultural areas.

Environmental Consequences and Mitigation

Strategies
Methodology for Impact Analysis
Analysis focused on generation of noise during O&M and minor construction
activities, and assumed a continuing commitment on PG&E’s part to satisfy the
CPUC requirement to conform to local standards where feasible, while still
meeting the company’s legal responsibility to provide safe, reliable electricity
and natural gas service. Because O&M and minor construction activities—as
well as CPUC requirements for noise control—would be the same under the
proposed action and all alternatives, analysis assumed that noise generation
would be similar for all alternatives. Actual noise generation would vary
depending on site-specific constraints, so potential noise impacts are of necessity
discussed qualitatively, at a program level of detail.

The proposed action and alternatives would each result in a slightly different
balance of impact avoidance versus compensation for unavoidable impacts, so
there could be some in-practice difference in long-term noise generation related
to increases/decreases in the extent of compensation lands, and the noise-
generating activities (notably, earthwork) needed to manage them. However, it is
impossible to predict the extent and type of management- or restoration-related

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earthwork needed under each alternative, because the location and condition of
compensation lands cannot be identified at this time. Consequently, although
differences in noise generation among the proposed action and alternatives are
expected to be minor, detailed analysis of potential differences would be
speculative at this time, and this topic is not addressed further in this EIS/EIR.

Significance Criteria
For the purposes of this analysis, an impact was considered to be significant and
to require mitigation if it would result in any of the following.

Exposure of persons to or generation of noise levels in excess of standards

established in a local general plan or noise ordinance or applicable standards
of other agencies.
Exposure persons to or generation of excessive groundborne vibration or
groundborne noise levels.
Substantial permanent increase in ambient noise levels in the project vicinity
above levels existing without the project.
Substantial temporary or periodic increase in ambient noise levels in the
project vicinity above levels existing without the project.

Impacts and Mitigation Measures—All Alternatives

Impact N1—Potential for temporary or permanent exposure of noise-
sensitive land uses to elevated noise levels. As discussed above, PG&E’s
ongoing O&M and minor construction activities are expected to be the only
substantial source of noise associated with the proposed action, and they would
be similar across all alternatives. Noise associated with O&M and minor
construction would be generated primarily by the following sources.

Vehicles (e.g., trucks, helicopters and fixed-wing light aircraft, and ATVs)
used for inspection patrols and employee access trips.
Heavy machinery (e.g., cranes, excavators, and scrapers) used for
maintenance and construction of PG&E facilities and infrastructure.
Smaller equipment (e.g., chainsaws and generators) used for a variety of
O&M activities.

Table 12-6 presents typical noise levels generated by equipment that may be used
in O&M and/or minor construction activities.

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Table 12-6. Typical Noise Generation for Commonly Used Construction

Equipment

Typical Noise Level Typical Noise Level

Equipment (dBA) 50 Feet from Equipment (dBA) 50 Feet from
Source Source
Air Compressor 81 Jackhammer 88
Backhoe 80 Loader 85
Bulldozer 85 Paver 89
Chainsaw 86 Pile driver 101
(impact)
Compactor 82 Pile driver 96
(sonic)
Concrete mixer 85 Pneumatic tool 85
Concrete pump 82 Pump 76
Concrete 76 Rock drill 98
vibrator
Crane, derrick 88 Roller, sheep’s 74
foot
Crane, mobile 83 Saw 76
Excavator/ 82 Scraper 89
shovel
Generator 81 Truck 88
Grader 85 Wood chipper 89
1
Helicopter 79
(single rotor)

1
At 500 feet under level flight conditions.
Source: Cowan 1984, Federal Transit Administration 1995, Nelson 1987, USDA
Forest Service 1980.

The noise impacts associated with a specific activity would depend on the type of
activity, the types and number of pieces of equipment in use, the noise level
generated by the various pieces of equipment, the duration of the activity, the
distance between the activity and any noise-sensitive receivers, and possible
shielding effects that might result from local topography, vegetation, or
buildings. Because the proposed project is a 30-year operating conservation
program, information regarding the range of covered activities is known, but site-
specific information is not. For individual O&M and minor construction
activities that may occur during the 30-year permit term, the specific types and
number of vehicles and equipment at a given site, and their duration and
frequency of use, are not available. The same is true for activity-specific noise
levels. Noise levels for these activities are expected to be similar, however, to
levels for existing O&M and minor construction currently implemented by
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PG&E. In most instances, existing O&M activities are temporary and sporadic;
although some, such as patrols, are regularly scheduled, others, such as
emergency maintenance, occur on an “as-needed” basis. With the exception of
larger maintenance activities and minor construction projects, O&M and
construction noise generation would thus be intermittent and very short-term in
nature. In addition, PG&E would continue to employ its current slate of BMPs
under all alternatives. As discussed in Chapter 2, typical measures include

conducting work during daytime hours;

using standard equipment with noise control devices (e.g., mufflers) that
meet manufacturers’ specifications;
using “quiet” equipment (i.e., equipment designed with noise control
elements);
installing portable barriers to shield compressors and other small stationary
equipment where necessary;
installing sound barriers for pile-driving activity, where practicable, by using
an acoustic curtain or blanket around the point of impact;
directing equipment exhaust stacks and vents away from buildings, when
feasible;
routing truck traffic away from noise-sensitive areas, where feasible;
following a common-sense approach to vehicle use; and encouraging
workers to shut off vehicle engines whenever possible;
limiting pick-up trucks and other small equipment to an idling time of five
minutes;
identifying “sensitive receptors” who might be disturbed by construction
noise and notifying them in advance of upcoming work; and
responding immediately to complaints raised by adjacent residents.

In light of the CPUC requirement to conform to local standards where feasible,

and with PG&E’s existing noise BMPs in place, most activities enabled under the
proposed action are not expected to substantially expose persons to or generate
noise levels in excess of standards established in a local general plan or noise
ordinance or applicable standards; result in a substantial permanent increase in
ambient noise levels in the work vicinity; or result in a substantial temporary or
periodic increase in ambient noise levels in the work vicinity. Thus, in the
majority of cases, impacts of O&M and minor construction noise are
expected to be less than significant.

Some O&M and minor construction activities (in particular, those that require
multiple pieces of heavy equipment; and those that occur in close proximity to
sensitive residential, school, hospital, or recreational land uses) would have the
potential to generate noise in excess of local general plan or noise ordinance
standards. For example, a bulldozer (85 dB at 50 feet) and grader (85 dB at 50
feet) operating concurrently would result in a combined noise level of 88 dB at
50 feet, exceeding the noise standards of many jurisdictions. This is a potentially
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significant impact. The significance of that impact would be reduced through

implementation of PG&E’s standard business practices and BMPs, which will be
incorporated in all O&M and minor construction activities enabled under the
proposed action. Typical practices include consulting and coordinating with
local jurisdictions to minimize and lessen noise effects; implementing a range of
noise reduction BMPs, as appropriate; and responding quickly to public
complaints or concerns about noise effects. The business practices and BMPs
PG&E brings forward as part of the proposed action reflect PG&E’s obligations
under CPUC regulations. PG&E’s obligations under the CPUC, including its
commitment to implement regular business practices and the BMPs described in
Chapter 2, would substantially lessen the potential for significant intermittent
occurrences of higher levels of construction noise. Related noise impacts are
expected to be less than significant as a result.

Once constructed, new minor facilities would generate noise related to the
operation of power transformers, switchyards, and other equipment. Additional
fairly minor noise would be generated by vehicles used for inspection and
maintenance visits to new facilities. In most instances, the types of facilities that
would be constructed under the proposed action operate well within local
standards. Likewise, in designing, constructing, and operating new minor
facilities, PG&E carries forward its obligations under the CPUC, including its
regular business practices and BMPs. Typical practices include consulting and
coordinating with local jurisdictions to minimize and lessen noise effects;
implementing a range of noise reduction BMPs, as appropriate; and responding
quickly to public complaints or concerns about noise effects. Noise impacts
related to operation of new facilities are expected to be less than significant
as a result.

Mitigation Measure—No mitigation is required.

Impact N2—Potential for temporary or permanent exposure of noise-

sensitive land uses to elevated vibration levels. O&M activities may generate
minor groundborne vibration. Vibration from typical construction and
earthmoving activity is generally below the threshold of perception at distances
of more than about 50 feet; adverse effects related to vibration are most often
associated with “high impact” activities such as pile driving. Most O&M
activities are thus unlikely to expose persons to or generate excessive
groundborne vibration or groundborne noise levels even at nearby sensitive land
uses, so in the majority of cases, impacts are expected to be less than
significant.

There may be some instances where “high impact” activities would occur in
close proximity to sensitive land uses, potentially resulting in temporarily
elevated vibration levels. In rare cases, vibration levels could temporarily exceed
applicable standards, representing a potentially significant impact. However, the
significance of any impact would be reduced through implementation of PG&E’s
standard business practices and BMPs, which will be incorporated in all O&M
and minor construction activities enabled under the proposed action, as discussed
above. As described in Chapter 2, typical practices include consulting and
coordinating with local jurisdictions to minimize and lessen effects on nearby

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land uses, including effects of construction-generated vibration; implementing

vibration reduction BMPs, as appropriate; and responding quickly to public
complaints or concerns about vibration. The business practices and BMPs PG&E
brings forward as part of the proposed action reflect PG&E’s obligations under
CPUC regulations. PG&E’s obligations under the CPUC, including its
commitment to implement regular business practices and the BMPs described in
Chapter 2, would substantially lessen the potential for significant intermittent
occurrences of higher levels of construction vibration. Related vibration
impacts are expected to be less than significant as a result.

Vibration levels associated with operation of new facilities would typically be

very low, and no significant long-term impact is anticipated.

Mitigation Measure— No mitigation is required.

References Cited in this Chapter

Bender, W. L. 1996. Report on Estimated Airblast and Blast-Related Vibration
at the Lincoln Project, Placer County, California. Green Valley, AZ.

California Governor’s Office of Planning and Research. 2003. Guidelines for

the Preparation and Content of the Noise Element of the General Plan.
Appendix A in State of California General Plan Guidelines. Sacramento,
CA.

Cowan, J. P. 1984. Handbook of Environmental Acoustics. New York, NY:

Van Nostrand Reinhold.

Federal Transit Administration. 1995. Transit Noise and Vibration Impact

Assessment. Washington, DC: U.S. Government Printing Office.

Hoover, R. M., and R. H. Keith. 1996. Noise Control for Buildings,

Manufacturing Plants, Equipment and Products. Houston, TX: Hoover &
Keith, Inc.

Nelson, P. 1987. Transportation Noise Reference Book. Boston, MA:

Butterworth Legal Publishers.

Transportation Research Board. 1997. Dynamic Effects of Pile Installations on

Adjacent Structures—A Synthesis of Highway Practice. Washington, DC:
U.S. Government Printing Office.

USDA Forest Service. 1980. Predicting Impact of Noise on Recreationists.

ED&T Project No. 2688. April.

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