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Report regarding adoption of a resolution concluding the South San Francisco Airport Noise Insulation Program and returning $784,812.15 in remaining funds to the San Francisco International Airport. (Christina Fernandez, Assistant to the City Manager)
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RECOMMENDATION
Recommendation
It is recommended that the City Council adopt a resolution concluding the South San Francisco Airport Noise Insulation Program and return the remaining funds to the San Francisco International Airport.
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BACKGROUND/DISCUSSION
San Francisco International Airport (SFO) implements a Noise Insulation Program (NIP) which includes insulation of residences within SFO's Noise Impact Area. The Noise Insulation Program provides acoustic treatment to eligible properties located inside a specified aircraft noise impact area. The acoustic treatment is offered free of charge to eligible property owners. All costs are paid by SFO through a combination of Federal Aviation Administration (FAA) grants and SFO funds.
The San Francisco International Airport NIP consists of two components: (1) a Second Chance Initiative and (2) a Replacement Initiative. Under the Second Chance Initiative, property owners that previously declined NIP funding are now eligible to apply for new noise insulation work. Allowable improvements may include window and door replacement, caulking, weather- stripping, and installation of central fresh air ventilation (if the residence does not already have central ventilation). Under the Replacement Initiative, residential properties that received NIP funding for noise insulation are also eligible to apply for repairs or replacements of acoustical improvements that have failed.
To be considered for either initiative, the residential property must be located inside the current Noise Exposure Map for the Airport (“NEM”) formally accepted by the FAA (attachment 1). The NEM shows contours for average noise levels at 65 decibels (dB) or greater associated with aircraft activity. Staff identified 2,519 residential properties located within the NEM that could be eligible for the Airport’s program.
The Second Chance Initiative also requires:
• Construction or significant additions were built before October 1, 1998.
• A physical survey of the property confirms preliminary eligibility.
• The results of acoustical tests in habitable rooms finalizes eligibility.
The NEM contour depicts an average of aircraft noise levels over the period of one year using a time-weighted energy average. The contouring exercises are summarized in terms of a time- weighted daily average exposure that combines all of the noise energy created in the course of daily flight operations into a single number, for which interpretive criteria and regulatory policy evolve. The contours do not represent where planes fly or the loudness of single aircraft noise events.
The Federal NEM contour is determined through the use of the federally approved noise modelling software known as AEDT. This software takes in the amount of operations over a year, the type of aircraft in use at the given airport, distance being flown by the aircraft, specific runway used and time of day these aircraft operated. Once these values are input the model is run and it derives a noise grid where it then connects the points for similar values giving noise contours; typically, in five decibel increments.
It averages both the loudest and quietest aircraft noise levels during period of heavy and light activity. Further, it considers the periods when people are likely to be disturbed by weighting the evening noise events between 7:00 p.m. and 10:00 p.m. by adding a weighting penalty of 4.77 decibels. The nighttime hours when people are most likely to be disturbed, from 10:00 p.m. until 6:00 a.m., a penalty of 10 decibels is added. Simply put, a single flight's evening noise event is counted as three noise events of the same value. Nighttime noise events are counted as ten noise events of the same value.
The Airport is currently accepting applications online at <https://www.flysfo.com/replacement-and-second-chance-noise-insulation-initiative>. Once the application is received, the Airport process to determine eligibility of the property may take several months. Upon confirmation of eligibility, property owners must agree to grant an aviation easement to the City and County of San Francisco. The property owners will then work directly with the Airport to complete noise insulation work.
Replacement Initiative
As of March 15, 2021, the Airport received 773 applications for the replacement initiative and have since identified 457 homes that may be eligible.
• Out of 773 applications to date, SFO identified 457 dwellings that may be eligible
• 472 dwellings have undergone the initial site inspection; 48 acoustical tested (Note: 472 Initial Site Inspections and 172 Second Inspections/Treatment Recommendation Visits have been completed, for a total of 661 site visits to SSF dwellings)
• SFO is currently in the process to select the construction contractor
Second Chance
Of the 473 applications for the Second Chance program, 182 South San Francisco homes were identified as being potentially eligible. There were site visits conducted at 61 properties and acoustical tests conducted on 73 properties.
• SFO estimates it will insulate between 65-80 homes.
• The first group of 39 homes (29 in SSF) will begin construction in June 2021
• And the second group of an additional 26 homes (19 in SSF) will begin construction in December 2021
• According to the Airport, this shows a significant number of South San Francisco properties in the pipeline.
South San Francisco Outreach
In 2018, in order to promote awareness of the Airport’s noise insulation program, City staff sent letters directly to properties within the boundaries of the 2019 Noise Maps. If a property owner did not respond to the first letter, the City sent a second letter and attempted to reach the owner by phone number, if available.
Of note, staff maintains a list of residents who previously contacted the City regarding the ANIP program. Most requested repairs to previously performed noise insulation work or live outside of the 2019 Map but would like to participate in the program for the first time. These property owners were contacted and included within the data sent to the Airport.
Additionally, City staff documented airport noise concerns from all residents. Property owners emailed anip@ssf.net <mailto:anip@ssf.net> or called the hotline phone number at 650-829-6649 to express interest or ask questions. This contact information was shared with residents via email and appropriate social media platforms.
The City’s outreach plan included an initial press release with a link to the Airport’s website for applications, an interactive map that reflects the boundary of the 2019 Map, and an informational fact sheet about the Airport’s application and eligibility process. Regardless of property location, all interested property owners may submit an application, and City staff worked with the Airport on a case- by-case basis for specific properties within the boundaries. City staff also coordinate with the Airport to compile all information and documents received from property owners regarding eligibility. Staff maintains communication with the Airport throughout the process and provides data as necessary.
As a part of the Noise Insulation Program outreach efforts, the Airport mailed invitations to potentially eligible properties between August and September 2020. The Airport provided the City with lists of addresses of applicants who were unresponsive to airport’s outreach. City staff provided a total of 19 properties with a second letter and an invitation to apply. When phone numbers were provided, city staff also called residents to let them know of the opportunity.
The City works collaboratively with the San Francisco International Airport and its consultant, Jones Payne Group in assisting residents submit applications and receive updates on pending applications. The majority of inquiries received by the City are residents inquiring about the status of their applications. The City inquires on the residents’ behalf with the contractor and receives timely responses. City staff will continue to assist residents as needed; however, the City no longer contracts out any engineering or treatment work.
Remaining Airport Noise Insulation Program Funds
In the past, South San Francisco and other jurisdictions undertook noise insulation of residences in their respective communities within the SFO's Noise Impact Area with funds received through Federal Aviation Administration (FAA) grants and from the City and County of San Francisco through its Airport Commission.
During the initial phases of the Noise Insulation Program from the 1980s through the early 2000s, approximately 7,778 South San Francisco properties were insulated and 6,094 easements were acquired, resulting in an investment of over $86 million in South San Francisco properties alone. This accounts for nearly half of all insulations and acquisitions program wide.
Following exhaustion of funds under an initial 1992 Memorandum of Understanding (Attachment 3) between the Airport and the respective jurisdictions, the Airport Commission and South San Francisco entered into an agreement, dated October 1, 2000 (Attachment 5), which provided, among other items, for the Airport Commission to advance funds to South San Francisco for noise insulation of additional residential properties, subject to reimbursement when FAA grants were obtained by South San Francisco. South San Francisco proceeded with noise insulation of properties with funds received from the Airport Commission as well as from FAA grant reimbursements from earlier phases of South San Francisco's noise insulation program.
Under this agreement, the City previously administered the Airport Noise Insulation Program (NIP) with grants from the Federal Aviation Administration (FAA) and funding from San Francisco International Airport as part of the Aviation Safety and Noise Abatement Act of 1979. A local contribution of 20% from the Airport and/or City and County of San Francisco was matched by 80% from the FAA.
Using this 80/20 ratio from federal matching grants, the City’s program completed noise insulation work on well over 6,000 properties within the City. The four previous agreements between the City and the Airport regarding the contribution of local funds are attached to this staff report as Attachments 2 through 5 for reference.
Over the past several years, interest has accrued on the initial funds. The City’s ANIP fund currently has approximately $784,812.15. The City of South San Francisco is the only city that still retains ANIP funds, while all other surrounding cities have turned over administration of their airport noise insulation programs to the Airport along with any remaining funds to the Airport.
Next Steps
The Federal Aviation Authority (FAA) awarded SFO a $6.39 million grant in September 2019 for the 2019 Phase of the NIP (this grant covers 65% of the $9.86 million budget for this phase of the NIP). In addition. The FAA awarded a $3.22 million grant to SFO in September 2020 for the 2020 Phase of the NIP (this grant covers 51% of the $6.28 million budget for this phase). These grants are being used for noise insulation improvements through 2024. SFO currently plans to use about $8.44 million of the total $16.14 million budget to insulate eligible dwellings in South San Francisco. To date, SFO has received 473 total applications from South San Francisco residents.
All current applicants have applied through the SFO Noise Insulation Program and the City no longer contracts out the engineering or treatment work. Staff recommends closing out the Airport Noise Insulation Program this year and combining our funding with SFO’s current Noise Insulation Program to provide additional resources to assist South San Francisco residents. The City is currently holding $784,812.15 in Airport Noise Insulation Funds.
FISCAL IMPACT
There is no fiscal impact to the City. The remaining funds to be returned will be used to augment the existing airport noise insulation program and continue to insulate South San Francisco homes.
RELATIONSHIP TO STRATEGIC PLAN
Adoption of this resolution furthers the City’s strategic goals of providing a higher quality of life for its residents by providing the airport with additional funds to continue to provide improvements to South San Francisco residences.
CONCLUSION
It is recommended that the City Council adopt a resolution concluding the South San Francisco Airport Noise Insulation Program and return the remaining funds to the San Francisco International Airport.
Attachments:
1. 2019 Boundary Map
2. 1991 Agreement
3. 1992 Memorandum of Understanding
4. 1995 Memorandum of Understanding
5. 2000 Agreement with Airport Commission