CHAPTER 1 Introduction

Transcription

1 CHAPTER 1 Introduction 1.1 Airport Location and Setting San Francisco International Airport (SFO or the Airport) is located in eastern San Mateo County, California and is owned by the City and County of San Francisco (CCSF) and operated by and through the San Francisco Airport Commission (Airport Commission). As shown on Exhibit 1-1, SFO is located approximately 13 miles south of downtown San Francisco. The active operations area at SFO is bordered by the San Francisco Bay to the east and U.S. Highway 101 (U.S. 101) to the west and south. The Airport is surrounded by the cities of Millbrae and Burlingame (to the south), San Bruno (to the west), and South San Francisco (to the north). 1.2 Airport History The Airport began as Mills Field in 1927, on land leased by the CCSF from the estate of Ogden Mills. The land was soon purchased by the CCSF, which sought to attract new commercial airline service to the facility. The period of rapid growth that followed, along with new developments in aircraft technology, led the CCSF to undertake several major construction projects throughout the 1930s including runway and taxiway improvements, lighting and electrical infrastructure, and construction of a new Airport Administration Building, which included a passenger terminal with a restaurant, newsstand, and ticketing counters. By the mid-1940s, San Francisco Airport was serving more than one million passengers a year. Passenger activity continued to grow rapidly during the 1940s, and the Airport saw the establishment of several trans-pacific routes to the Philippines, China, and Australia, leading SFO to become known as San Francisco International Airport. A new Central Terminal Building (later called Terminal 2) was completed in By the end of WWII, the Airport had 700 acres in use with another 2,000 under development. By the end of the 1940s, the Old Bayshore Highway, which ran through the Airport lands, was abandoned and a new Bayshore Freeway (now U.S. Highway 101) was constructed further to the west. When the new South Terminal (now called Terminal 1) opened in 1963, SFO was one of the five busiest airports in the United States, and had become a net revenue-generator for the CCSF. The mid-1960s saw the development of a large maintenance base for Pan American World Airways and a new airmail facility. The North Terminal (Terminal 3) was built in 1979, with San Francisco International Airport 1-1 ESA /

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3 Boarding Area E added in Terminal 2 underwent a significant renovation in 1983, and further modernization was conducted in Terminal 1 and other areas in By 2000, SFO had completed a new International Terminal and associated parking garages, as well as an extension of the Bay Area Rapid Transit (BART) to the Airport. In 1989, the CCSF and Airport Commission prepared a comprehensive Airport Master Plan [I-1] 1 to guide future development at SFO. The Airport Master Plan focused on the accommodation of passenger and cargo growth at the Airport through the development of improved facilities and circulation patterns for all Airport-owned lands (excluding the undeveloped area west of U.S. 101, which is referred to as the West of Bayshore Airport Commission Lands). The course of development outlined within the 1989 Airport Master Plan has been largely implemented over the past 25 years. The bullets below provide an overview of some of the major improvement projects envisioned in the Airport Master Plan. A new International Terminal and associated Boarding Areas A and G (Completed in 2000); Consolidation of cargo facilities in the North and West Field areas (Construction of one cargo building in the West Field area started in 2013 and will be complete by end of Other building projects in the West Field area are on hold due to reduced air cargo activity at the airport. In the North Field area, one cargo building was constructed in 2000; the planned cargo maintenance and aircraft parking facility are on hold); An Automated People Mover System AirTrain (The first phase was completed in 2003); Roadway and vehicle circulation improvements to the International Terminal Building (Completed in 2000); On-Airport hotel development (Construction beginning in 2015); Renovation of Terminal 2 for domestic operations (Completed in 2011); Replacement of Boarding Area B in Terminal 1 (Planned for construction beginning in 2016); and Renovation of Boarding Area C in Terminal 1 (Planned for construction in 2018). In 2007, a startup airline (Virgin America) chose SFO as its base of operations. That same year saw the introduction of new service from JetBlue Airways and the return of Southwest Airlines to the Airport. This new domestic service, as well as steady increases in international traffic, allowed SFO to maintain steady growth even through the economic downturn that began in This new traffic also served as the impetus behind the timing of the Terminal 2 renovations the new Terminal 2 opened in April In January 2014, SFO completed the renovation of Boarding Area E in Terminal Airport Noise Compatibility Planning Overview The CCSF by and through the Airport Commission has a long history of implementing aircraft noise abatement and mitigation measures at SFO. The Airport Commission prepared a 14 Code of 1 See Chapter 6 of this report for a full list of references. San Francisco International Airport 1-3 ESA /

4 Federal Regulations (CFR) Part 150 [I-2] Noise Compatibility Program (NCP) for SFO in the early 1980s. The 14 CFR Part 150 NCP was adapted from the 1980 Joint Land Use Study Final Technical Report [I-3] which was approved by the Joint Powers Board in March The Joint Powers Board was established in June 1976 when the CCSF and the County of San Mateo entered into a Joint Exercise of Powers Agreement to coordinate long-range land use planning for both SFO and adjacent airport influenced lands. The noise exposure maps (NEMs) included in the CFR Part 150 Study were accepted by the Federal Aviation Administration (FAA) on January 17, 1983 and the NCP was approved by the FAA on July 22, The NCP was the first in the nation to be approved by the FAA under 14 CFR Part 150. At the FAA s request, the CCSF updated the 1983 NEM document in 1995 to reflect changes that had occurred at the Airport and in the airport environs. The 1995 NEM update was accepted by the FAA as complying with 14 CFR Part 150 on May 17, The CCSF prepared a subsequent NEM Update in 2001; the 2001 NEM Update was accepted by the FAA on July 17, The existing conditions NEM in the 2001 NEM Update represents calendar year 2001 conditions and the future-year NEM represents projected conditions in calendar year Many of the noise abatement measures and noise mitigation measures (i.e., land use measures) recommended in the 1983 NCP have been implemented or are continuing to be implemented. NCP measures that have been implemented or that are underway include, but are not limited to: Establish noise as a priority function within the Director s office including staff and resources to monitor the mitigation plan and recommend corrective actions (Action Element A.1); Develop a noise performance monitoring system (Action Elements A.2a and A.2b); Expand Airport s Rules and Regulations to include Actions contained in the Noise Mitigation Plan (Action Element A.3); Develop a Community Information Program including a communications link with citizens (Action Element A.4); Establish Runway 10 as the voluntary preferential Noise Abatement Departure Runway from 1 a.m. 6 a.m. (Action Element B.1); Increase use of the Visual Shoreline Departure Procedure as the preferential departure route for Runway 28[R/L] takeoffs when weather and operating restrictions permit (Action Element B.2); Continue to encourage use of the Quiet Bridge Approach (visual) as the preferential arrival route for Runway 28R landings (Action Element B.4); Avoid overflights of Foster City by aircraft arriving from the north, west and south that are expected to land on Runway 28L (Action Element B.5); Develop and implement a voluntary noise insulation/avigation easement demonstration program for existing homes and schools within the Community Noise Equivalent Level (CNEL) (Action Elements D.1a and D.1b); Continue to prohibit new or redeveloped noise sensitive land uses within the CNEL (Action Element F.1); and San Francisco International Airport 1-4 ESA /

5 Require adequate sound insulation and avigation easements for all new or redeveloped noise sensitive land uses within the CNEL (Action Element F.2) Noise mitigation and abatement measures have also been identified and pursued outside the 14 CFR Part 150 process by the SFO Aircraft Noise Abatement Office (ANAO), a section of the Bureau of Planning and Environmental Affairs (BPEA). For example, the ANAO has worked with the FAA, NASA, United Airlines, and Boeing Company since 2006 to evaluate the potential for a continuous descent approach at SFO (referred to as Oceanic Tailored Arrivals) for flights arriving from the Pacific Rim. The ANAO has also worked cooperatively with the SFO Airport/Community Roundtable since its inception in 1981 to reduce aircraft noise impacts. Accomplishments of this partnership have included reducing arrival-related noise by raising minimum recommended altitudes for arrival procedures and development of electronic noise complaint forms on SFO s website. Additional information regarding the status of measures included in the 1983 NCP and other noise abatement and mitigation measures pursued at SFO outside 14 CFR Part 150 will be provided in the forthcoming NCP Report. 1.4 Purpose of the Current 14 CFR Part 150 Update The BPEA is updating the 14 CFR Part 150 NEMs and NCP for SFO to reflect changes in aircraft operations, fleet mix, and land uses in the Airport environs since the last 14 CFR Part 150 NEM Report was accepted by FAA in The BPEA s goals for this NEM Update are to: (1) efficiently and cost effectively develop NEM documentation for SFO, (2) obtain FAA s acceptance of the updated NEMs, and (3) ensure that ongoing 14 CFR Part 150 noise mitigation programs in the SFO environs (i.e., the residential sound insulation program) will be eligible to receive FAA funding in the future. Following FAA acceptance of the updated NEMs, the BPEA will be preparing an updated 14 CFR Part 150 NCP for SFO. The updated NCP will replace the NCP approved by the FAA on July 22, Approach to Planning In May 2014, the SFO BPEA retained a team of consultants to assist in updating the SFO 14 CFR Part 150 Noise Compatibility Study in accordance with 14 CFR Part 150. Environmental Science Associates (ESA) was retained as the overall project manager for the process, and also to manage public outreach, FAA coordination efforts, and prepare all 14 CFR Part 150 documentation. BridgeNet International was retained as the acoustical consultant responsible for the development of aircraft noise exposure contours using the FAA s Integrated Noise Model (INM). The 14 CFR Part 150 Noise Compatibility Study update consists of two primary elements: Airport noise exposure maps and a noise compatibility program. The noise exposure maps depict existing and future aircraft noise levels in the areas around the Airport. This report describes the analysis, methodology, assumptions and findings associated with development of the NEMs. For SFO, the existing (2014) NEM is based on aircraft operations at the Airport in calendar year 2013, the most recent full calendar year for which aircraft operations (landings and takeoffs) San Francisco International Airport 1-5 ESA /

6 information were available when the maps were prepared. The future NEM represents 2019 conditions in conformance with 14 CFR Part 150, which requires preparation of an NEM representing forecast aircraft operations five years after the NEM date of submittal to the FAA (anticipated in 2014). Development of the noise compatibility program (NCP or the Program) update will include the following steps: Evaluating the status of noise abatement and mitigation measures included in the FAAapproved 1983 NCP; Compiling information regarding voluntary noise abatement procedures at SFO that have been implemented outside of the 14 CFR Part 150 process; Compiling information regarding noise mitigation programs that have been implemented at SFO outside of the 14 CFR Part 150 process; Consultation/coordination with the FAA, the airlines, other Airport tenants and users, local and regional planning agencies, local elected officials, and the general public; Development of a Draft and Final NCP and completion of the FAA s NCP Checklist; and Conducting a public hearing for the updated NCP. 1.6 Consultation and Public Involvement 14 CFR Part 150 Sections (b) and A (a) requires that the NEMs and documentation submitted be developed and prepared in consultation with states, public agencies and planning agencies whose area, or any portion of whose area, of jurisdiction is within the L dn 65 db contour depicted on the map, FAA regional officials, and other Federal officials having local responsibility for land uses depicted on the map. This consultation must include regular aeronautical users of the airport. The elements of the consultation and public involvement process included the following to provide adequate opportunities for engagement and participation in development of the NEMs: The airlines serving the Airport, other Airport tenants and users, the FAA, state, local and regional planning agencies, local elected officials representing potentially affected residents within the airport environs, and the general public were involved in the development of the NEMs for SFO. (See Section and Appendices E and F for list of attendees.); Public Workshops soliciting input at the start and after publication of the draft Noise Exposure Map report update; and Study website to provide downloadable 14 CFR Part 150 Study Update draft NEM report, provide updates and progress of the project and schedule to stakeholders, agencies, and the general public, as well as information on staff contacts and direct link on the website to submit questions and comments Consultation Meetings and Briefings The public involvement program for the NEM update included briefings to members of the SFO Airport/Community Roundtable on June 4, 2014 and December 3, 2014, a coordination meeting San Francisco International Airport 1-6 ESA /

7 with FAA Airport Traffic Control Tower (ATCT) staff on October 2, 2014, and a briefing to the airlines and the Airline Liaison Office on December 18, The purpose of these meetings and briefings was to provide information, answer questions, encourage participation, and consider stakeholder input for inclusion in the NEM update. Outreach letters were also transmitted to the California Department of Transportation (Caltrans) Division of Aeronautics and the U.S. Coast Guard (USCG) San Francisco Air Station on May 22, Table 1-1 lists the City and County representatives that participated in the June 4, 2014 and December 3, 2014 SFO Airport/Community Roundtable meetings. The purpose of the briefings regarding the 14 CFR Part 150 NEM update was to provide project status updates and to encourage participation. The SFO Airport/Community Roundtable was established in 1981 as a voluntary committee to address community noise impacts from aircraft operations at SFO. The Roundtable membership consists of elected officials from the cities within San Mateo County, the City/County Association of Governments of San Mateo County and the Airport Land Use Committee, County of San Mateo Board of Supervisors, City and County of San Francisco representatives, and the San Francisco Airport Commission (Airport Director). The Roundtable s advisory members include airline representatives, FAA ATCT staff located at SFO, and the FAA Northern California Terminal Radar Approach Control (NORCAL TRACON) staff. The Roundtable monitors a performance-based noise mitigation program implemented by Airport staff, interprets community concerns and attempts to achieve noise mitigation through a cooperative sharing of authority among the aviation industry, the FAA, SFO management and local governments. All Roundtable meetings are also open to the general public and advertised on the Roundtable s website. Meeting agendas and packets with prior meeting minutes and technical reports are made available for review/download by the Roundtable Coordinator in advance of the scheduled meetings. Planning staff from the public agencies represented on the SFO Airport/Community Roundtable and other planning agencies whose area of jurisdiction fell fully or partially within the CNEL 65 db contour depicted on the 2014 and 2019 NEMs (See Chapter 5) were also invited to the public workshops held on June 4, 2014 and December 11, TABLE 1-1 LIST OF ATTENDEES JUNE 4, 2014 AND DECEMBER 3, 2014 SFO AIRPORT/COMMUNITY ROUNDTABLE MEETINGS Name Representing Meeting(s) Attended Julian Chang CCSF Mayor s Office June 4, 2014 and December 3, 2014 John L. Martin / Doug Yakel CCSF, San Francisco Airport Commission June 4, 2014 and December 3, 2014 Dave Pine San Mateo County Board of Supervisors June 4, 2014 and December 3, 2014 Richard Newman C/CAG Airport Land Use Committee June 4, 2014 and December 3, 2014 Elizabeth Lewis Town of Atherton June 4, 2014 and December 3, 2014 Cliff Lentz City of Brisbane June 4, 2014 and December 3, 2014 Richard Ortiz City of Burlingame June 4, 2014 Raymond Buenaventura City of Daly City December 3, 2014 Steve Okamoto City of Foster City June 4, 2014 and December 3, 2014 Alvin Royse Town of Hillsborough June 4, 2014 San Francisco International Airport 1-7 ESA /

8 TABLE 1-1 (CONT.) LIST OF ATTENDEES JUNE 4, 2014 AND DECEMBER 3, 2014 SFO AIRPORT/COMMUNITY ROUNDTABLE MEETINGS Name Representing Meeting(s) Attended Naomi Partridge City of Half Moon Bay June 4, 2014 Robert Gottschalk City of Millbrae June 4, 2014 and December 3, 2014 Sue Digre City of Pacifica June 4, 2014 and December 3, 2014 Rosanne Foust City of Redwood City June 4, 2014 Ken Ibarra City of San Bruno June 4, 2014 and December 3, 2014 Mark Addiego City of South San Francisco June 4, 2014 Dave Burrow Town of Woodside December 3, 2014 Ann Wengert Town of Portola Valley December 3, 2014 NOTES: C/CAG = City/County Association of Governments of San Mateo County; CCSF = City and County of San Francisco All SFO Airport/Community Roundtable members are noticed and invited to participate at the scheduled meetings of the Roundtable. The Roundtable Coordinator also provides information packets to members prior to the scheduled meeting to provide adequate opportunity to participate at the meeting. The information packet includes the meeting agenda, minutes from the prior meeting, and supplemental / technical reports. All SFO Airport/Community Roundtable meetings are noticed to the general public through the Roundtable website ( All information packets and agendas are available for download for review prior to the meetings. The following members were not present at either of the meetings: CCSF Board of Supervisors (vacant), City of Belmont (vacant), City of Menlo Park, City of San Carlos, and the City of San Mateo. SOURCE: SFO Airport/Community Roundtable records. Table 1-2 lists the FAA ATCT staff located at SFO who participated in the October 2, 2014 briefing regarding the 14 CFR Part 150 NEM update. Presentation slides and comments from the October 2, 2014 briefing are provided in Appendix E. FAA regional officials including San Francisco Airports District Office staff also participated in the October 2, 2014 briefing and were briefed at other points in the 14 CFR Part 150 NEM update process. FAA regional staff provided comments regarding the Administrative Draft and Draft NEM Reports. FAA regional officials were notified regarding the June 4, 2014 and December 11, 2014 public workshops. TABLE 1-2 LIST OF ATTENDEES OCTOBER 2, 2014 FAA BRIEFING Name John Bergener Paul Dunholter Peter Escobar Bert Ganoung Camille Garibaldi Greg Kingery Audrey Park Representing SFO Bureau of Planning and Environmental Affairs BridgeNet International Federal Aviation Administration, Airport Traffic Control Tower at SFO SFO Aircraft Noise Abatement Office Federal Aviation Administration, San Francisco Airports District Office Federal Aviation Administration, Airport Traffic Control Tower at SFO SFO Bureau of Planning and Environmental Affairs SOURCE: SFO Bureau of Planning and Environmental Affairs, October Table 1-3 presents a list of airline representatives that were invited to a briefing on December 18, Presentation slides from the December 18, 2014 airline briefing are presented in San Francisco International Airport 1-8 ESA /

9 Appendix E. The presentation slides to the FAA ATCT staff and the airlines are identical with the exception of the meeting dates. Airlines that were not able to attend the briefing were given the opportunity to submit comments regarding the presentation slides and the NEM documentation. Airlines and other regular aeronautical users of the Airport were also invited to the public workshops held on June 4, 2014 and December 11, TABLE 1-3 LIST OF INVITEES DECEMBER 18, 2014 AIRLINE BRIEFING Name Representing Name Representing Abbas Shaban Emirates Airline Kim Cheong Tae Asiana Alan Nakai Japan Airlines Kirk McBride Hawaiian Air Bader Al Marzouqi Emirates Airline Kristen Owens Airline Liason Office Butch Generoso Phillippine Airlines Larry Karp Delta Air Lines Christine Perkins British Airways Lynae Craig Alaska Airlines Chu Ge Malaysia airlines Marco Artero TACA Airlines Chuck Aquino Phillippine Airlines Marit Sormus British Airways Colm Wynne Aer Lingus Mark Hoey Cathay Pacific Airways Craig Peterson Frontier Airlines Mitch Dubner Continental Airlines David Morgan Air New Zealand Myrka Manzo Airline Liason Office Davina Pratt Aer Lingus Patrick Durgan United Airlines Fidel Melara TACA Airlines Rinnell de Guzman American Airlines Gary Valvo Delta Air Lines Rob Maas KLM Royal Dutch Airlines Gopala Subramaniam Singapore Airlines Robert Lawson Air Canada Hassan Alhammadi Emirates Airline Scott Mills American Airlines Henry Meng EVA Air Sha Chi-Ping China Airlines James Daulton jetblue Airways Simon Scholey British Airways Jean-Michel Bastard Air France Stephen Riley British Airways Jeffery O. Morgan Delta Air Lines Sukhdeep Singh Singapore Airlines Jim Colburn Frontier Airlines Tom Bailey Virgin America John Alsford Emirates Airline Wang Wei China Airlines José Caballero Avianca Warren Lampitt Airline Liason Office Keith Rimer United Airlines William Hawkins Lufthansa Kevin Barry Virgin America SOURCE: SFO Bureau of Planning and Environmental Affairs, December Outreach letters were also sent to the U.S. Coast Guard (USCG) San Francisco Air Station and the California Department of Transportation Division of Aeronautics (Caltrans Division of Aeronautics) to notify them of the NEM update and to solicit input. An was received from Caltrans Division of Aeronautics about a viewing error on the Project Website. No responses / questions were received from the USCG San Francisco Air Station. Copies of both letters and an informational from Caltrans are provided in Appendix E. Copies of correspondence letters between the SFO BPEA and the FAA related to the NEM update are provided in Appendix E. Public notices published in three local newspapers San Francisco International Airport 1-9 ESA /

10 (including the San Francisco Chronicle, San Jose Mercury, and San Mateo County Times), sign-in sheets, workshop handouts, and presented materials (boards) for the two public workshops are provided in Appendix F. Comments received during the preparation of the updated noise exposure maps and responses to those comments are provided in Appendix G Public Workshops Two Public Workshops were held during the Study where members of the public were able to interact directly with the Project Team, including Airport and consultant staff. The workshops were held in an open house format with guided displays/boards with information regarding the 14 CFR Part 150 Study update process, project schedule, noise metrics, and methods used to quantify aircraft noise exposure. Members of the public were afforded the opportunity to participate in discussions about the information, provide written and/or verbal comments, have their questions answered, and take away printed materials on the items being discussed at both Public Workshops. Handouts, copies of the presentations, and comments received at both Public Workshops are provided in Appendix F. The Public Workshops took place at the Checuti Room at Millbrae City Hall, which is the regular meeting place of the SFO Airport/Community Roundtable. The Public Workshops were advertised in three local newspapers, published on the Project website, and also announced verbally and through written communication to the SFO Airport/Community Roundtable during their regularly scheduled meetings. These materials and the local newspaper advertisements are provided in Appendix F Project Website Early in the process, a Project website was created to provide broad access to schedules, technical data, other pertinent information, and to engage stakeholders and to solicit input. The website was updated throughout the Project to provide updates to stakeholders, and includes the following information: Overview of the 14 CFR Part 150 Study update, including descriptions of regulations, purpose of the study, and the process; Project schedule; Noise Exposure Map report update, downloadable by chapter, including the two fullsized Noise Exposure Maps; Public Workshops, which includes: o Handout summarizing the Study purpose, process, and ways to get involved with the Study; o Glossary of terms; o Informational boards presented at the workshop; and o Link for the public to provide comments. San Francisco International Airport 1-10 ESA /

11 Contacts and links for the public to submit written comments and questions as well as to obtain additional information about the Study. Also included were links to external sources of information, including the FAA s Airport Nosie Compatibility Planning, SFO Aircraft Noise Abatement Office, and the SFO Airport/Community Roundtable websites. The publicly-accessible website for the 14 CFR Part 150 Study Update NEM report is compliant with the Americans with Disability Act and available for viewing and download at: The Study website is hosted on the SFO Aircraft Noise Abatement Office section of the Airport s main website. 1.7 Report Organization This report provides the NEMs for SFO and the technical documentation required under 14 CFR Part 150. The remainder of this report is organized as follows: Chapter 2: Chapter 3: Chapter 4: Chapter 5: Chapter 6: Appendix A: Appendix B: Appendix C: Summary of the aviation activity forecast for the Airport. Description of the existing Airport and currently planned improvements that could affect future noise exposure; existing and planned land use in the Airport environs; and zoning controls available to the local jurisdictions to achieve land use compatibility. Summary of the aircraft noise analysis, including the assumptions and inputs used to develop the existing and future NEMs. Delineation of the NEMs and documentation of the number of households, people and noise-sensitive land uses exposed to aircraft noise. A list of references used in preparing the NEM Report documentation. Glossary of Terms Summary of Land Use Plans and Zoning Radar Flight Tracks for San Francisco International Airport Appendix D: Annual Average Day Aircraft Operations: 2014 and 2019 Appendix E: Appendix F: Appendix G: Correspondence and Consultation Public Information Workshops Public Comments and Responses San Francisco International Airport 1-11 ESA /

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